Fife Constabulary and Best Value Audit and Inspection

Prepared for the Accounts Commission and Scottish ministers September 2012 The Accounts Commission

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

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

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

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

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

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

Her Majesty’s Inspectorate of Constabulary for Scotland

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

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

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

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

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

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

Commission findings Performance management and Page 2 improvement Page 19 HM Inspector of Constabulary for Scotland findings Use of resources Page 3 Page 20

Introduction Equalities Page 4 Page 22

Summary Sustainability Page 7 Page 23

Overall conclusions Part 3. Fife Police performance Page 8 assessment Page 25 Part 1. Context Page 9 Performance outcomes Page 26 The local context Part 4. Improvement Fife Police Authority recommendations Page 32 Fife Constabulary Page 10 Appendix 1. Expectations of police authorities Part 2. Corporate assessment Page 34 Page 12

Vision and strategic direction Page 13

Governance and accountability Page 14

Community engagement Page 15

Partnership working and community leadership Page 17 2 Commission findings

1. This is the eighth audit and 4. The Commission also notes the inspection report on the performance replacement of the Police, Fire and by a police authority and force of their Safety Committee by the new Police statutory duties on Best Value and Transition Committee. The positive Community Planning. It has been momentum which is apparent in produced jointly by the Controller of the Controller of Audit’s report Audit and Her Majesty’s Inspector needs to continue. This is to ensure of Constabulary for Scotland. The the effective contribution to, and Accounts Commission accepts the preparation for, the new national report from the Controller of Audit policing arrangements while at the on the Fife Police Authority. In same time continuing to improve accordance with the Commission’s effectiveness in overseeing the force. statutory responsibilities, these findings relate only to the Best Value 5. The Commission gratefully audit of the police authority. acknowledges the co-operation and assistance provided to the joint audit 2. The Commission finds that and inspection team by the elected Fife Police Authority is effective members and officers of Fife Council, and demonstrates most of the the and officers of Fife characteristics of best value. There Constabulary, and other officials and is particular strength in the vision community planning partners. for community policing shared by the authority and force. Ownership 6. The Commission welcomes the of this vision is enhanced by a joint approach with Her Majesty’s good understanding of roles and Inspector of Constabulary for responsibilities by the members Scotland on these police audit and of the Police, Fire and Safety inspection reports, and the significant Committee. The Commission contribution that this is having to welcomes the positive impact that stimulating more effective and the accountability framework has streamlined scrutiny and to driving had on working relations between commitment to securing best value. the authority and the force. The Commission emphasises that it is important that such impact is maintained in the transition to the new Police Service of Scotland.

3. The Commission notes that there is room for improvement in the scrutiny of the force. The authority needs to be clearer about the performance information and support it needs to fulfil its best value responsibilities, including in relation to cost, equalities, sustainability and the force’s improvement and community engagement activities. 3 HM Inspector of Constabulary for Scotland findings

1. As Her Majesty’s Inspector of workforce and the cost of activity Constabulary for Scotland, I hold a to assist in meaningful scrutiny statutory responsibility to inspect and allow the committee to both Fife Constabulary and Fife consider value for money Police Authority. I concur with the Accounts Commission findings on the • the force could improve its Best Value and Community Planning commitment to openness and performance of Fife Police Authority accountability by publishing force and offer the following comment on performance and policy group the performance of Fife Constabulary. minutes timeously

2. My overall assessment of Fife • although overall performance is Constabulary is that it is performing good and crime continues to fall, well and that the force demonstrates there is scope for the force to many of the elements of best value. take further steps in relation to The force executive’s long-term increases in reported domestic strategy in support of its vision abuse and hate crime where of taking policing closer to the improvements in reporting community is being delivered through and recording should provide a the force community engagement platform from which to begin to model. The force has maintained make progress. police numbers while at the same time embarking on a significant 4. I also wish to acknowledge my change programme to manage a gratitude for the co-operation and reduction in the police budget. Overall assistance afforded to the joint crime rates continue to fall and audit and inspection team by the detection rates are rising. chief constable, officers and staff of Fife Constabulary, the convener 3. Within the context of that good and elected members of Fife Police performance there remains some Fire and Safety Committee, the scope for continuous improvement. Fife Council chief executive and In particular, I would highlight that: staff providing support to the police authority, and other officials and • there is room to improve the way community planning partners. local community priorities are communicated internally 5. I look forward to receiving a plan from Fife Constabulary and • the force could work more closely the Police Transition Committee with the committee to improve which addresses the improvement performance reports by providing agenda set out in this joint audit and more contextual information on inspection report. exceptions, comparative data with other forces or organisations; information on the diversity of the 4 Introduction Introduction 5

This joint report is made by the The Scottish Government has issued The key objectives of this joint audit Controller of Audit to the Accounts further guidance for police authorities and inspection were to: Commission under section 102(1) of and forces. This guidance includes the Local Government (Scotland) Act Justice Department Circular 11/2003 • assess the extent to which Fife 1973 and by Her Majesty’s Inspector Best Value Guidance, and Guidance Constabulary and the police of Constabulary for Scotland (HMICS) for Members of Police Authorities and authority, as discharged through under section 33 of the Police Joint Authorities, June 2007. the council’s Police, Fire and (Scotland) Act 1967. Safety Committee (PFSC), are The scope of Best Value and meeting their duties under the The Local Government in Scotland Act Community Planning is broad and the Local Government in Scotland Act 2003 introduced new statutory duties guidance and statute indicate that a 2003 and complying with Scottish relating to Best Value and Community successful police authority will: Government guidance Planning. Its provisions apply to local authorities, including police authorities, • work in tandem with the chief • agree planned improvements and require specifically that: constable to develop a clear set of with the local authority, force priorities that respond to the needs and the PFSC, to be reviewed by • councils and police authorities of the community in both the short external auditors and HMICS. secure best value (defined as and longer term achieving continuous improvement As Best Value and Community in the performance of functions) • be organised to support the Planning encompass a wide variety of delivery of these priorities activities, it is not realistic to audit or • police authorities and chief inspect everything in depth. For this constables participate in the • meet, and clearly demonstrate reason we planned our detailed work community planning process. that it is meeting, the community’s in two ways: needs The Act also amended the audit • We considered the force structure arrangements set out in the Local • operate in a way that drives in detail to ensure the audit and Government (Scotland) Act 1973 to continuous improvement in all its inspection took account of the cover Best Value and gave powers to activities. different contexts and policing the Accounts Commission to examine demands. Best Value in police authorities. Similarly, a successful police force will: HMICS has a statutory duty under • We selected certain aspects of the section 33 of the Police (Scotland) • work with its partners and the force’s and authority’s performance Act 1967 to inspect police forces police authority/police authorities for detailed investigation. We used and common police services, and to develop a clear set of priorities a wide range of sources, including to report to ministers on their state that respond to the needs of the the force’s and authority’s own and efficiency. The 2003 Act extends community in both the short and assessment of their performance, this to include provision for HMICS longer term reports issued following external to inquire into and report to Scottish audit and inspections, and the ministers on whether a local authority • be organised to deliver these Scottish Policing Performance is carrying out its functions both as priorities Framework (SPPF) to assess a police authority and in relation to risks and scope our work to a number of matters including • meet, and clearly demonstrate inform this selection. Best Value. that it is meeting, the community’s needs Our joint report reflects this The 2003 Act is supported by more proportionate approach, with detailed detailed statutory guidance on Best • operate in a way that drives commentary in some areas and Value and Community Planning, continuous improvement in all its more limited coverage in others. and a series of advisory notes on activities. Our main audit and inspection work specific topics such as elected was conducted in March and April member leadership. This guidance 2012. The report includes a corporate is designed to be descriptive rather assessment of the authority and than prescriptive, defining the goals the force, while the performance that organisations should aim for but assessment covers only the force. allowing them local discretion on the methods and routes they use. 6

References to post-holders in the The existing guidance for policing authority and the force and to (Circular 11/2003 and Guidance to committee and other structures are Members, June 2007), sets out to those in place at the time of the expectations of the authority. More audit and inspection, in March and details can be found at Appendix 1 of April 2012. this report.

We gratefully acknowledge the More general information about cooperation and assistance provided the best value characteristics and a to the team by Councillor George series of toolkits which organisations Kay, Convener of Police, Fire and may find helpful in reviewing their Safety Committee; Norma Graham, approach to best value are available Chief Constable of Fife Constabulary; on Audit Scotland’s website. Ronnie Hinds, Chief Executive of Fife Council, and all other elected Police reform members, police officers and staff In June 2012, the Scottish Parliament involved. We are also grateful to the passed the Police and Fire Reform community partners who participated (Scotland) Bill, which will create a in the audit and inspection. single Police Service of Scotland (PSoS) and a single fire and rescue The tripartite arrangements and service. The Bill abolishes the existing police authorities’ leadership role unitary police and fire authorities The force is governed through a in Dumfries and Galloway and Fife tripartite arrangement between the and the six joint police and joint fire chief constable, the police authority, boards. It provides for the creation of and Scottish ministers. As the force a new corporate body, the Scottish covers only one local authority area, Police Authority (SPA). The national the authority carries out most of its force will be created in April 2013. functions through a committee of the council. Scottish ministers have Following the local government responsibility for national policy on elections on 3 May 2012, the new law and order as well as the power to Police Transition Committee (PTC) regulate on various policing matters in Fife Council is responsible for including pay and conditions. The overseeing the force through the police authority is responsible for transition to the PSoS. setting the police budget, holding the chief constable to account and ensuring that best value is achieved. The chief constable is responsible for the operational aspects of policing within the force area.

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

Overall conclusions 4. The PFSC receives good 8. Overall crime rates continue to information on force performance fall and detection rates are rising. 1. Fife Council discharges most of but needs to be more proactive However, the force should continue its police authority responsibilities by specifying what further context its work to improve performance through its Police, Fire and Safety and analysis it requires to scrutinise relating to the submission of cases to Committee (PFSC). The PFSC and performance in more detail. The PFSC the procurator fiscal, as well as taking Fife Constabulary (the force) work also needs to provide direction as to further steps to reduce the occurrence well together and demonstrate the cost and performance information of domestic abuse and hate crime strong commitment to the shared, it requires to assess value for money where improvements in reporting overarching vision of ‘taking policing and to do more to direct and monitor and recording provide a platform from closer to the community’. This the force’s continuous improvement which to make progress. strategy aims to make communities activities. The PFSC provides limited safer and stronger with less fear of oversight of the force’s progress with 9. The governance and project crime and is being delivered through equal opportunities and sustainability. planning arrangements for the an effective community engagement force efficiencies programme are model. This has ensured the vision 5. The force has worked closely exemplary. The use of process and aims are well understood at all with the PFSC to develop members’ re-engineering, along with the levels with a genuine pride in working awareness of policing and issues involvement throughout the process for the force and doing the best for affecting Fife. The PFSC and the force of the convener, has delivered a the people of Fife. Overall, the force need to build on this and develop successful change programme that is delivering a good level of service existing reporting arrangements, to has maintained police numbers and to communities in Fife, especially facilitate more in-depth scrutiny of delivered savings in the police budget. by reducing crime and antisocial force performance and its progress The fact that this is now being used behaviour and, most notably, by against the best value characteristics, to take the force through to the PSoS increasing detection rates where it and to enable the PFSC to consider demonstrates a strong commitment outperforms most other Scottish value for money. to reform, while at the same time police forces. avoiding any negative impact on 6. The force is performing well and ongoing policing services. 2. Following a period where there demonstrates many of the elements had been some difficulties in working of best value. The force executive’s 10. The audit and inspection team has relationships between the council long-term strategy in support of its taken into account that the Scottish and the force concerning governance, vision of taking policing closer to the police service is going through a period and in response to previous audit community is being delivered through of major change following the Scottish recommendations, an accountability the force community engagement Parliament’s decision to create the framework was agreed in 2010 model. The model is producing real PSoS in April 2013. We recognise that between the police authority and the benefits, with good examples of the this is a significant challenge for the chief constable. This clarified and force using different means of trying force in terms of maintaining service confirmed respective responsibilities to reach out to all communities. delivery, while at the same time and supported improvements in There are some additional aspects of preparing for re-structuring. However, the way business is conducted. the internal communication of local it is important that the PFSC focuses It is important that this progress priorities that could be improved upon. its challenge and scrutiny to ensure is maintained in the new council that police services remain effective, structures following the May 2012 7. The community policing structure make the best use of the resources local government elections and in the is very effective. The seven local allocated to them and are accountable transition to the PSoS. chief inspectors under one divisional to local communities. command structure has engendered 3. The PFSC demonstrates a good a ‘competitive but supportive’ understanding of issues affecting local approach to managing performance. policing in Fife and members support Partnership arrangements at a the community policing approach in strategic and operational level are their local areas. However, the PFSC working well with many examples of needs to take a more strategic view effective practice. The youth offender of the force’s activity, its oversight management group and the overall of community safety and the overall approach to management of young impact and effectiveness of the offenders is good practice that has community policing model. had positive impact. 9 Part 1. Context 10

The local context within the remit of the appointments will oversee police services until subcommittee of the council’s Policy, March 2013 and the creation of the 11. Fife is a unitary police service, Finance and Asset Management PSoS. The new committee is made which means that it shares its Committee. The PFSC has 15 up of 15 elected members. A new boundaries with one local authority, elected members and one non-voting convener and vice-convener have Fife Council (the council). The member nominated by NHS Fife, and been appointed to the PTC and the council and the force are also aligned meets every six weeks. council is taking steps to ensure that to a single Community Planning consequential amendments are made Partnership (CPP) and share common 16. The PFSC has a number of police- to governance documents to reflect borders with the fire and rescue related subcommittees. These are the new arrangements. service and NHS partners. the police complaints and discipline subcommittee; police pensions Fife Constabulary 12. Fife covers 1,325 square km subcommittee; chief police officers’ between the Forth and Tay estuaries. remuneration subcommittee; and 20. The force is led by the chief The population of around 367,370 senior police officers’ conduct constable, supported by a senior predominantly reside in a number subcommittee. In 2009, a PFSC management team which is made up of large towns including , scrutiny group was set up to make of the deputy chief constable (DCC), , , more time for scrutiny of service an assistant chief constable (ACC), and Methil. Fife also has rural areas, performance. the head of finance, head of human particularly in North East Fife. resources and the head of media and 17. Revenue expenditure in 2011/12 communications. The chief constable 13. Fife’s communities range from was £61.4 million, £2.5 million less has overall responsibility and is those of relative affluence, such as than budget, and the capital budget accountable to the PFSC for the and its surrounds, to was £2.2 million. The police service effective and efficient policing by some areas of significant deprivation. core funding is 51 per cent by Fife Constabulary. While the area overall has just over grant funding provided by Scottish five per cent of the most deprived Government and 49 per cent by 21. As part of its efficiencies areas in Scotland, approximately Fife Council, with additional funding programme, Fife Constabulary one in five areas in Fife is classed provided at the discretion of the has recently moved from a three- as deprived. It also has a rising police authority. division structure to two. These are population, with increases in the responsible for the delivery of and number of children and older people 18. Fife Council has seven area support to policing services, namely predicted to exceed national trends. committees. Force representatives Communities Policing Division and The changing demographics of the support these committees through Corporate and Specialist Services area will change the demands on regular attendance at meetings. Division. As at March 2012, the force services, including policing. The area committees serve the had 1,104 police officers, 109 special following areas: constables and 421 members of Fife Police Authority police staff. • Dunfermline 14. Fife Council is a unitary police 22. The Communities Policing Division authority; Dumfries and Galloway • has responsibility for all first response Council is the only other local and local community policing within authority in a similar position. All other • Glenrothes the force area. The force took the authorities in Scotland have joint forward-looking and innovative step board arrangements with • Kirkcaldy of aligning local policing areas to neighbouring authorities. the seven Fife Council local areas. • Overseen by chief inspectors, this 15. Fife’s police authority functions restructuring saw relationships are delegated in most part to its • North East Fife develop with Fife Council local area PFSC, which is responsible for services managers. It is designed police and fire and rescue services • South West Fife. to maximise resource allocation and as well as environmental safety. The working practices under local area council as police authority retains 19. Following the local elections in community safety coordinating groups responsibility for specific matters May 2012, Fife Council has a new and to increase service delivery including the approval of the police political administration. Under the new capacity among partners. (Exhibit 1). budget. The appointment of the chief administration, policing responsibilities constable, the deputy chief constable of the PFSC transferred to the Police and the assistant chief constable falls Transition Committee (PTC) which Part 1. Context 11

Exhibit 1 Map of Fife and community policing areas

Grampian Northern

Tayside

Central Fife

Lothian and Borders

Strathclyde

Dumfries and Galloway

North East Fife

Glenrothes Cowdenbeath Levenmouth

Kirkcaldy

South West Fife Dunfermline

Source: HMICS/Audit Scotland 12 Part 2. Corporate assessment Part 2. Corporate assessment 13

Vision and strategic direction Fife Constabulary the strategic objectives. In March 2011, the force moved from an Fife Police Authority The force has a clear vision and annual policing plan to a longer-term strategic direction, which is four-year plan with an annual refresh. The PFSC actively engages with informed by communities, partner The annual review is informed by the force to develop the vision and agencies and members of the widespread consultation with local strategy for policing in Fife and PFSC. The force’s vision of ‘taking communities and partner agencies demonstrates strong commitment policing closer to the community’ and consideration of emerging to community policing. The PFSC underpins all activity. The four national and local issues. The force endorses the strategic plan but strategic priorities outlined in has identified 12 policing plan priorities needs to make its contribution to the force’s strategic plan set out for 2012/13 in partnership with the setting the strategy more visible to how the force aims to achieve its PFSC. These cover both outward- the public. vision and support the Scottish facing operational priorities and Government’s objectives to make internal business support priorities. All 23. The force’s strategic plan 2011–15 Scotland wealthier and fairer, of the operational priorities are clearly sets out a clear vision based on ‘taking stronger and safer, greener, smarter articulated within the force’s control policing closer to the community’. and healthier. The plan is widely strategy and this helps to ensure that The strategic priorities which support communicated by force leadership they are communicated clearly and this vision were developed in and is understood by staff, partners consistently to staff. consultation with the public, other and the wider community. elected members and partners in 27. The format of the plan is both the public and private sectors. 26. The force shares a common deliberately short and simple to The strategic plan informs the annual vision with the PFSC of ‘taking make it easier for all to understand policing plan which sets out the policing closer to the community’. The and remember. We found that those operational activities that contribute to strategic plan 2011–15 sets out the charged with delivery demonstrated the delivery of strategic priorities. force’s strategic priorities of: tackling a clear focus and understanding of crime; being there for the community; their mission in Fife. The force has 24. PFSC members actively engage creating safer communities and made good use of marketing and in developing the force’s strategic building on success. The policing communications techniques, such plan, mainly through their attendance plan 2011–15 (Exhibit 2) details the as a reproduction of the policing at private briefing sessions and force’s priorities for the delivery of plan in a business card format for development conferences. While the PFSC endorses the plan at its public meetings, the underlying Exhibit 2 contribution which its members make Fife Constabulary Policing Plan in developing the strategy is less visible. As a result, evidence of the Taking Policing Closer to the Community influence which the PFSC brings to bear on the force’s strategic priorities based on elected members’ deep Tackling Being There For Creating Safer Building understanding of the needs of local Crime The Community Communities On Success communities is limited.

25. In putting the strategy into effect, elected members from the PFSC participate in local events and discussions to promote the overarching vision of ‘taking policing closer to the community’. Their involvement in local meetings, for • Violent Crime • Community Engagement • Anti-social Behaviour • Efficiency example, helps demonstrate to local • Drugs • Visibility • Road Safety • Effectiveness • Sexual Crime • Accessibility • Public Protection • Our People communities that the PFSC and the force work together to deliver the Fife Constabulary Policing Plan Non Emergency Number shared vision for policing in Fife. 0845 600 5702 2011/15 Priorities www.fife.police.uk

Source: Fife Constabulary 14

use by staff and the public to ensure to budgets and internal audit. The PFSC’s responsibilities, taking account that priorities are communicated framework helped improve the way of the imminent national changes in effectively throughout the force area. in which business is conducted and police and fire and rescue services. This strengthens the understanding of working relationships between the strategic priorities at a local level and PFSC and the force are good. The 33. Administrative support for the helps to ensure that the force directs convener of the PFSC, in particular, PFSC works well and contributes operational activity and resources demonstrates a strong commitment to good governance. However, the towards priority areas. The priorities to his role and a clear knowledge and PFSC has no additional support and are also clearly highlighted on the understanding of strategic issues would benefit from independent, force’s website www.fife.police.uk and facing the force and the police service professional policy advice and are easily accessible to members of more widely in Scotland. analysis. This would help elected the public. members deal with the volume and 30. The steps taken have improved variety of the issues it is required to Governance and accountability elected members’ understanding consider and would support more of their role but, similar to other focused and challenging scrutiny of Fife Police Authority police authorities, uncertainties force performance. remain about the boundary between Following a period where there legitimate areas of interest of the 34. In recognition of the time had been some difficulties in the police authority and the operational constraints associated with its working relationships between autonomy of the chief constable. wide remit, the PFSC established the council and the force, an Greater clarity, including practical a separate scrutiny group which is accountability framework was examples, would improve elected chaired by the PFSC convener and agreed in 2010 which clarified members’ confidence in their role, comprises all members of the PFSC. and confirmed respective particularly in scrutinising force While private sessions are required responsibilities and helped improve performance and holding the chief to consider sensitive matters and relationships. The PFSC needs to constable to account. minutes of the scrutiny group are maintain and build on this in the presented to the main committee transition to the new single police 31. While the accountability which is held in public, the PFSC force. The PFSC also needs to framework has supported needs to assess whether all items be more proactive in scrutinising improvement, the PFSC needs to considered by the scrutiny group need force performance. ensure it is meeting its delegated to be in private. As matters stand, a functions in full. For example, there significant part of the PFSC’s activity 28. Previous audits identified the was no evidence that the PFSC had in scrutinising force performance and need to clarify the governance contributed to the development of holding the chief constable to account arrangements and the responsibilities the internal audit programme on takes place in a forum which is not of the council as police authority, matters within the jurisdiction of the always visible or open to the public. the PFSC and the force. Following police authority (ie, non-operational some difficulties in working policing matters). There was also 35. The complaints subcommittee relationships between the council limited evidence of PFSC members provides oversight of complaints and and the force relating principally to determining the topics of reports allegations about the conduct of police governance, the PFSC and the force from the chief constable in relation to officers. It meets regularly and reviews worked together to develop a new particular policies and strategies. a number of randomly selected closed governance framework for policing complaint files. This allows members in Fife. After detailed discussions, 32. The PFSC has a wide and varied to gain a good level of assurance revised arrangements were approved remit and is responsible for police about the rigour and effectiveness of by the council in June 2010 and an and fire and rescue services as well the force’s complaint handling. accountability framework between as public protection, which includes a the council as police authority and the range of functions such as consumer 36. Briefing sessions are well chief constable was approved by the and public safety, public health and attended, provide elected members PFSC in September 2010. emergency planning and civil defence. with a detailed understanding of This means that its members benefit policing issues, and improve their 29. The accountability framework from a broad understanding of the awareness on wider issues, eg clarifies and confirms the respective context for services and community the workings of the criminal justice roles and responsibilities of the safety overall. However, Fife Council system. While the PFSC has been council, the PFSC and the chief should consider whether the current proactive in identifying its training constable. In particular, it sets structure is best suited to securing needs, the overall approach needs to out governance and scrutiny best value and ensuring continuous be more systematic and structured, arrangements, including those relating improvement across the range of the particularly in the post-election period. Part 2. Corporate assessment 15

Elected members who are asked to all first response and local community 42. The force looks carefully at oversee the police service will need policing within the force area and is complaints data using analysts to look to get up to speed quickly so they are subdivided into seven local areas, for trends involving individuals, teams fully equipped to perform their police aligned with the local committee areas, and areas of the force. The force has authority duties during the transition and each headed by a chief inspector. recognised recent rises in quality of to the PSoS. service complaints, but no discernible 39. The force has an effective issues were identified, although in Fife Constabulary approach to risk management and some cases a number of heads of the strategic risk register describes complaint were emanating from The force governance structure all risks identified, risk owners and single incidents. That said, analysis provides effective scrutiny control measures. This is refreshed has helped the force to identify weak and oversight of force activity. annually and is monitored throughout supervision and management and the Performance reporting, change and the year to ensure that it is fit for learning is made available to support risk management are embedded purpose. During 2011, a high-level improvement. and incorporated into the corporate audit of the force risk management planning process. The force process by Fife Council Audit Services 43. Force performance data is available provides regular performance concluded that Fife Constabulary to members of the public on the updates and additional briefing and was ‘risk managed’ and takes force’s website, where force-wide training on operational matters to an enterprising approach to risk and divisional quarterly performance the PFSC. Performance reports are management, which is developed and monitoring reports appear in their made available to the public via the communicated effectively. entirety. Performance is covered in force website. more detail in Part 3 of this report. 40. Governance is supported The force has some force executive 37. Governance arrangements have through business and continuous meeting minutes published on its developed over the last 12 months improvement plans, which enable website, although none have been following the efficiencies and reform the force to monitor progress against added since February 2011. The programme. The six-weekly Force all activity. These are overseen by force could improve its commitment Policy and Performance Group the deputy chief constable and to openness and accountability by (FPPG) is now the force’s main coordinated and managed by the publishing force performance and policy decision-making and accountability continuous improvement unit. group minutes in a timely manner. body. The group comprises the While the force has reported on risk force’s chief officer team and senior management to the PFSC it does Community engagement leaders and considers a wide range not routinely provide updates on of force activity including overall continuous improvement. It would Fife Police Authority performance, organisational change be mutually beneficial and assist the and budget monitoring. Senior scrutiny process if the PFSC was Members of the PFSC officers are given strategic and tactical provided with more information on demonstrate a good understanding responsibility for priority theme areas. the continuous improvement plan. of the issues affecting their Seven community chief inspectors local communities and actively have responsibility for delivering 41. The force has an effective support the force’s approach to operational performance in their areas. approach to complaints recording. community engagement. However, This strengthens ownership and In August 2011, an audit of Fife the PFSC needs to take a more understanding of priorities throughout Constabulary’s complaints recording strategic oversight of community the force. processes by the police complaints engagement across the force. commissioner for Scotland assessed 38. The force’s two divisions, the the force as ‘full assurance’, the force 44. Members of the PFSC are strongly Communities Policing Division and having a ‘sound system of control committed to the force’s community the Corporate and Specialist Services designed to achieve the system engagement model and regularly Division, are each led by a chief objectives’.1 This is the highest attend local community engagement superintendent. They are responsible level of assessment and was given meetings arranged by the force. PFSC for the delivery of and support to because the force’s initial recording members are also involved in other policing services. The Communities of complaints about the police was community-based work including Policing Division has responsibility for considered to be robust.

1 Complaints Recording Audit – Fife Constabulary, Police Complaints Commissioner for Scotland (PCCS), 2011. 16

community councils. These activities Fife Constabulary issues. Community policing teams help build strong working relationships are now deployed in 64 identified between elected members, chief The force’s vision is based on ‘beat’ areas throughout Fife. In each inspectors and community police developing a style of policing that of these areas the officers hold officers at local level. As a result, addresses the needs of its different bimonthly community consultation elected members have a deep communities. The community meetings and, in partnership with awareness and understanding of their engagement model has sought the local people, identify their top local communities’ policing priorities to involve all communities in three local priorities (Exhibit 3). The and needs. They are also well placed identifying and addressing local community engagement meetings to contribute to the overall strategy for priorities. To achieve its vision the are at the heart of community policing policing and wider work designed to force has evaluated and developed in Fife and are well publicised on improve community safety across Fife. a range of approaches to address the force’s website. Updates on the the barriers to public participation action taken by the police to address 45. Area community safety in community engagement activity. community priorities are added to the coordinating groups report to There is clear involvement of staff, website to inform the public of the the Fife-wide Community Safety partners and PFSC members in force’s response. Partnership (CSP) and to the council’s community engagement and seven area committees. The area the approach as a whole is 49. The force continues to develop committees operate differently to working well. this approach and is determined to suit local circumstances and there engage with all communities is some variation in the content 48. The force’s vision of ‘taking (Exhibit 4). Having recognised that and frequency of the local policing policing closer to the community’ attendance is often low at meetings, performance reports they receive, eg articulates a clear commitment to the force has adopted a number of some area committees receive police engaging with communities with measures to broaden engagement performance reports at every meeting a view to allowing direct influence including promoting meetings in and others receive them annually. As on local policing. The community different venues, eg supermarkets, a result, some elected members will engagement model gives members DIY stores, schools and credit union have a better insight into the local of the public the opportunity to offices; direct contact with over policing challenges and communities’ become involved in local policing 450 different minority communities; needs than others.

46. While the PFSC contributes to Exhibit 3 the vision for policing in Fife and Promoting community engagement actively supports its implementation, it needs to provide more oversight During the audit and inspection we took the opportunity to attend a of the overall effectiveness of community meeting. While not well attended, it was obvious that those the community policing model. present had consulted with other community members about local priorities The progress, key challenges and beforehand and were able to provide constructive feedback to the officers improvement areas identified in the present. Those that were present voiced strong support for the process. seven local area community safety Overall we found evidence of a growing strength of support across Fife for coordinating groups are reported to this model, with comments arguing that it gives the community a voice in Fife’s CSP, but the PFSC also needs identifying policing priorities and holds the police to account if they are not this information to assess the overall delivering. This is a view echoed by recent independent research by the impact and effectiveness of the Scottish Institute for Policing Research (SIPR).1,2 community policing model. We commend the approach to community engagement in Fife to the 47. The PFSC has identified that it national reform team as a good example of effective practice that is worthy of needs to do more to identify and consideration in the development of local policing arrangements for the PSoS. disseminate good practice arising from the application of the community Notes: engagement model so that it is 1. Police Officers’ Perceptions of the Operation and Impact of the Community Engagement Model in Fife, Hunter, J, Fyfe, NR and Brown, DM, Dundee: Scottish Institute for Policing Research, 2011. available for consideration and use 2. Community Perceptions of the Operation and Impact of the Community Engagement Model in across all the communities it serves. Fife, Hunter, J, Fyfe, NR, Dundee: Scottish Institute for Policing Research, 2011. Source: HMICS Part 2. Corporate assessment 17

and wider use of social media. This Exhibit 4 innovative approach to broaden Police in the community programme engagement is considered to be an example of good practice. Between Further evidence of the force’s commitment to ‘taking policing closer to the December 2011 and April 2012, the community’ is found in the force’s police in the community programme. This force increased its Facebook following is a community-based initiative aimed at increasing public awareness and from around 2,600 to nearly 4,000 and increasing confidence in the organisation’s ability to deliver policing services. Twitter followers from 1,700 to 2,600. It is held in the format of a training course for members of the community with a series of lectures and events over a six-week period. The first course 50. During interviews with frontline was held in 2009, since that date there have been six courses held with staff in focus groups, we found a good over 150 participants aged between 16 and 84 from all sections of Fife’s understanding of force priorities and of communities. The course delivers an overview of the force’s policing plan the community engagement model. priorities and issues facing policing. It also includes case studies and gets However, there was little evidence students to work together to look at solutions to problems in the community. of coordinated communication of Feedback from participants indicates that this was worthwhile and of great community priorities. We found that benefit to them. A number of participants went on to become special staff knew that community priorities constables or full-time officers. were listed on the force’s website but there was no process to ensure Source: HMICS that operational officers and contact centre staff were actively involved in addressing local community priorities. This presents missed opportunities Partnership working and strategy. However, they are less for police resources to assist in community leadership clear about how the PFSC links into addressing priorities. the established partnership working Fife Police Authority arrangements and how it should 51. During this inspection we took the oversee partnership activity involving opportunity to attend a shift briefing, PFSC members have a good the force and its contribution to observe the layout of muster rooms, understanding of partnership community safety. speak to officers and observe the shift working in Fife through their briefing system. It was evident that involvement in area committees 55. The Fife Partnership Board and community priorities are not routinely and other council-related activities. its subgroups, including the CSP, are communicated or tasks allocated to However, as a committee, the officer led. The PFSC acknowledges address issues. The force’s briefing PFSC needs to develop its approach that it needs to ensure increasing system is a good means of informing and better define its role in police- emphasis on the force’s wider officers of current intelligence and related partnership working. community planning activity. The contains a means of tasking that could PFSC also needs to clarify its role be used to direct more resources to 53. Fife Partnership Board is the CPP in partnership working. Elected priority areas. for Fife and one of its main objectives members who are also members of is to make Fife’s communities safer. the PFSC attend CSP meetings, but 52. The force has highlighted the This work is driven by the Fife CSP there is some uncertainty over the need to focus resources to address and progress is monitored through capacity in which they attend and community priorities not only from the Fife SOA. The SOA provides whether they have a responsibility to an internal perspective, but also baseline performance information and report back to the PFSC. among partners. An enhanced a commitment to improvement under community engagement model is the headings: less crime and fear of 56. Clarity is also required as regards to be trialled in the Levenmouth crime; less antisocial and nuisance the role of NHS Fife’s director of public area. This aims to better align behaviour; less abuse of women and health, who sits on the PFSC as a resources with community priorities children; and fewer injuries and losses non-voting member. His involvement and build capacity to help deliver of life in homes and on the roads. supports and demonstrates close Single Outcome Agreement (SOA) partnership working with the health objectives. The trial will be subject 54. Elected members on the PFSC board and adds value to discussions to an independent review by have a good understanding of in the PFSC. However, there is no the Scottish Institute for Policing partnership working arrangements clear explanation as to what the PFSC Research (SIPR). from their involvement in the council’s expects from this arrangement, or wider work, in area committees what is expected from the individual in and in community engagement this role in terms of policing matters. work in support of the policing 18

Fife Constabulary together to achieve improved assessment in 2011. This identified outcomes for the community. priority areas and informed the The force maintains effective revised community safety strategy working relationships with partners 58. At a strategic level the force’s 2011–15 and the recent review of and is achieving positive local partnership activity is led by the the CSP structure, which saw the outcomes through partnership chief constable, who chairs the Fife number of main substituent groups working at both a strategic Partnership Executive Group (FPEG) reduced to two: Prevention and Early and local level. The ACC leads on a rotational basis and sits also Intervention, and Service Delivery partnership activities as chair of the on the Fife Partnership Board. The and Engagement. CSP; the partnership has a clear FPEG is a multi-agency group, which vision, objectives and measures to oversees the work of outcome theme 60. Production of the joint strategic ensure effective collaboration. lead officers and partnership groups assessment and subsequent strategy responsible for coordinating the has involved wide consultation with 57. The Fife CSP is well established partnership’s work. Fife’s community community and partners and has with a commitment to continuous plan and SOA are the focus of the involved elected members. The improvement that has been group’s work (Exhibit 5). Matters strategy sets out how partnership successful in a number of key are brought to the attention of the resources aim to work together to outcome areas, including reductions PFSC through the Partnership Board, achieve community safety outcomes. in crime and antisocial behaviour, eg community safety strategy and Partnership arrangements in Fife are meeting challenging road casualty community planning developments. working well at the strategic level. targets and reductions in persistent youth offending. The partnership 59. The ACC leads community safety 61. There are strong connections comprises a number of agencies activities as chair of the CSP which between partnership working at a bound by a local information sharing reports to the FPEG. The partnership strategic level and in local areas. At protocol committed to working completed its first joint strategic a local level partnership activity is

Exhibit 5 Fife Constabulary Partnership Working Structure

Chief Officers’ Fife Partnership Public Safety Executive Group Group

• Adult Protection Community Safety • Child Protection Partnership Group • Offender Management

Fife Domestic Fife Alcohol Prevention Service and Sexual and Drug and Early Delivery and Abuse Intervention Engagement Partnership Partnership

Area Community Direct reporting Safety Connections with other Coordinating key business areas Groups

Source: Fife Constabulary Part 2. Corporate assessment 19

delivered by local area community local committee. A Local Community services in Fife is limited. Elected safety coordinating groups. These Safety Fund provides grant funding members need robust cost and are currently chaired by the area towards local projects to reduce crime performance information to help them chief inspector, although it is and antisocial behaviour, and provides assess value for money.2 intended that this will be shared reassurance to the community, with among other partner members in over 50 projects having benefited 65. Members of the PFSC the future. The coordinating groups during 2010/11. acknowledge that they need to provide report to the Service Delivery and more direction to the force in terms Engagement Task Group. In practice, Performance management and of the performance information the this means that high-level outcomes improvement committee needs and the areas it are communicated and local groups wishes to review to fulfil its scrutiny have discretion as to how these are Fife Police Authority role more effectively. Overall, the PFSC delivered. We found many positive recognises that it needs to be more examples of partnership activity The PFSC receives force proactive and intends to identify areas involving both the CSP and the performance reports, but needs to for scrutiny based on its consideration community, including: be more proactive in directing the of improved Police Objective Analysis information and analysis it requires information on force priorities, • The ‘Equally Well’ project in to support stronger scrutiny of performance and efficiency. Kirkcaldy that tackles antisocial force performance and value for behaviour and underage drinking. money. The PFSC also needs to 66. The PFSC does not provide do more to monitor the force’s sufficient direction or oversight of • The safe transport scheme, continuous improvement activity the force’s improvement activities. providing safe transportation and to demonstrate how the police The accountability framework states across Fife. authority is meeting its best value that the PFSC has an obligation to responsibilities. ensure continuous improvement in • The multi-agency risk assessment the performance of the force, but conference (MARAC) approach 63. The force provides quarterly there is limited evidence of activity, to domestic violence, providing performance reports to the PFSC. other than the PFSC’s oversight of support and preventive measures The reports are structured around the force’s efficiencies programme. to victims and holding perpetrators the priorities in the policing plan The force has recently established to account. and include a wide range of SPPF the Continuous Improvement Unit and other performance measures. which is working to develop the • Community Speed Watch However, performance reports tend to comparative data available to PFSC involving local residents in speed be data heavy and would benefit from members to improve scrutiny of reduction activity. more contextual and comparative force performance. The unit will information, such as: also provide a focus for the PFSC to • The Youth Offender Management request reports which would allow it Group that has reduced significantly • the reasons for changes in systematically to scrutinise the force’s the number of young people performance and progress towards improvement work. entering the criminal justice system. targets, particularly in priority areas such as domestic abuse 67. There is also limited evidence 62. Local area committees, on to show how the PFSC prioritises which all members of the PFSC sit, • comparisons across the policing improvements in its own provide an element of scrutiny and areas in Fife, including in relation performance. The PFSC identified accountability for partnership activity. to customer satisfaction, and with areas that it wishes to develop in Each of the seven policing area other police forces. its joint submission to the audit and chief inspectors report on activity inspection team and acknowledged and performance, although the style 64. As with other police services and the need to focus its activities in the and frequency of reporting varies local authority services generally, transition to the PSoS. according to the requirements of the information on the cost of the police

2 Guidance on this topic is available in How councils work: an improvement series for councillors and officers – Using cost information to improve performance: are you getting it right?, Accounts Commission, May 2012. 20

Fife Constabulary and CID supervisors. The previous Use of resources day’s incidents and crimes are The force’s performance reporting reviewed to identify trends or gaps in Fife Police Authority arrangements are well structured. service delivery. Any remedial action There is effective performance or tasking is monitored via the force The council, the PFSC and the management at all levels briefing system, which provides an force work together in setting the throughout the organisation that easy means of ensuring tasks are force’s budget and in monitoring links clearly to force priorities and completed satisfactorily. The daily area police finances. The PFSC has has achieved results in terms meetings feed into a daily divisional good arrangements for overseeing of reduced crime, improved meeting that assists in identifying force finances, but its scrutiny detection rates and efficient force trends and resource issues. of other aspects of the force’s services. Individual leaders have This then feeds into the formal force strategic resource management is clear responsibility for driving performance framework. underdeveloped. performance and performance information is being used to 70. To support the force’s approach, 72. At the start of the budget process drive continuous improvement. comprehensive monthly performance the council’s executive director (finance Performance reports focus on reports are produced. These are and resources) identifies the anticipated policing priorities but tend to be structured around the four ‘pillars’ of resources against which budgets are data heavy. They would support the force’s policing plan with clear to be developed. The force prepares a scrutiny and public performance links to national indicators identified needs-based budget and engages with reporting more effectively if within the SPPF. The force’s annual the PFSC convener to outline its plans. they included more contextual report 2011/123 sets out the force’s Discussions then take place between information explaining the activity achievements against the four pillars the force and council’s finance staff, behind the performance data. of the policing plan in terms of before a joint report by the chief performance data and summaries of constable and executive director 68. The force has a robust approach key activity that contributed toward (finance and resources) is submitted to performance management, which the performance outcomes. to the PFSC who recommend it to the is well embedded within a defined council for approval. governance structure. Performance 71. Performance reports contain a is a standing agenda item at force comprehensive range of indicators, 73. While the convener is involved level six-weekly Force Policy and but tend to be data orientated. The from an early stage and PFSC Performance Group, monthly force recognises that reports could members attend a private briefing Tactical Tasking and Coordinating be improved to assist in meaningful session arranged by the force, Group (TTCG) and divisional weekly scrutiny and the continuous there is limited evidence of scrutiny meetings. Each meeting considers improvement process. The force’s and challenge prior to the PFSC performance against force targets and continuous improvement plan recommending the budget to the priorities and ongoing initiatives. has activity aimed at achieving a full council. The PFSC needs better transparent, accurate and relevant knowledge and understanding of the 69. At a local level, each of the performance reporting framework. budget to enable stronger scrutiny and seven chief inspectors is responsible This should include more contextual challenge, both at the budget setting for delivering performance in information on exceptions; process and when it considers budget their respective areas. During the comparative data with other forces monitoring reports during the year. inspection we noted a strong sense of or organisations, where current data ‘supportive competitiveness’ between permits; and information on the cost 74. To ensure tight control over the respective areas with each eager of activity. the budget and to avoid any to outperform the other while also misunderstandings between the keen to share good practice and be force and the council about the mutually supportive. This arrangement force’s financial position, budgets and has undoubtedly contributed to the spending are monitored closely. success of the community policing model in Fife. Each chief inspector holds a daily management meeting attended by community, response

3 Chief Constable’s Annual Report Fife Constabulary 2011–2012, Fife Constabulary, 2012. Part 2. Corporate assessment 21

75. Provisional outturn figures for any strategic oversight of force human Group (BRMG), which is chaired 2011/12 reported to the council’s resource matters. The PFSC does not by the deputy chief constable and Executive Committee in June 2012, call for reports on workforce-related comprises senior leaders, and the show an underspend of £2.5 million matters and the force supplies only Force Finance Focus Group, which which the council approved for limited data and information. is made up of finance practitioners. carry-forward to 2012/13. The Reports are also provided on a regular council’s annual accounts, however, Fife Constabulary basis to the PFSC and to Fife Council do not show a separately identifiable for information purposes. reserve or ring-fenced amount relating The force has sound financial to police. With the move to a single controls in place and has achieved 82. The force has taken a forthright Scottish police authority from April significant savings through its approach to achieving savings through 2013, current indications are that any efficiencies programme. The force its efficiencies programme, which revenue balances attributable to police actively manages its workforce commenced in 2010 in anticipation authorities will be split between the through a comprehensive human of future financial constraints. A new national police authority and the resources (HR) strategy that has number of potential cuts to funding local authority. The council and force clear links to the force policing were modelled, taking account of should work closely to ensure that plan. The force works closely with the requirement to maintain the arrangements are in place to identify Fife Council, which as the police Scottish Government’s national police and allocate revenue balances which authority holds the title deeds for officer numbers target of 1,104 may be available at 31 March 2013 in land and buildings, in maintaining a officers within Fife Constabulary. accordance with the guidance. register of assets. The force has remodelled a number of processes resulting in the loss of 76. The convener is a member of Managing finances a number of police staff posts all of the force’s Efficiencies Programme 79. The force budget reports show which were secured through voluntary Oversight Group, and through this an approved revenue funding position early retirements and voluntary he is well informed about the action agreed by the police authority in redundancies. At the same time the taken by the force to work within February 2012 for 2012/13 of force has freed up officer posts in tighter budgets and the savings which £59.7 million. The force outturn for support functions and returned them the force has achieved. The PFSC 2011/12 was £61.4 million with an to frontline duties. The programme recognises that it needs to take steps underspend of £2.5 million, which identified a number of efficiency to strengthen its involvement and is equivalent to 3.9 per cent on savings with a mandate to save the new and extended Efficiencies controllable budgeted expenditure of £2.2 million, but actually achieved and Reform Programme provides an £63.9 million. The force intends to overall savings of £2.8 million. The opportunity for the PFSC to engage carry forward this underspend into force intends to conduct a review of more in monitoring the force’s the 2012/13 financial year to offset an the programme to ensure that the improvement activity. anticipated budget gap. efficiencies have been realised.

77. The PFSC was involved in recent 80. The capital funding approved 83. The programme has not been developments of the police estate by the police authority for 2011/12, without some pain, particularly for including consultation exercises including the underspend brought those members of staff whose posts about the relocation of facilities in forward from 2010/11, was were deleted. However, we found that Cowdenbeath and St Andrews. This £1.8 million. In addition, capital the force had invested significant time helped allay community concerns on receipts of £0.4 million brought the and effort in ensuring the process was these changes. However, the PFSC approved total capital budget to managed effectively, keeping affected has not been involved in the oversight £2.2 million. The actual outturn was staff informed of developments and of the police estate more widely. £2.1 million showing an underspend ensuring the PFSC was represented This is an area for improvement, of £0.1 million. It is anticipated throughout by the convener as a particularly at a time when the that base police capital funding will member of the Force Efficiencies transfer of estate will be critical in the remain at £1.3 million for 2012/13, Programme Oversight Group. This move to the PSoS. augmented by the carry forward of approach is to continue during 2012/13 £0.1 million. in the transition to the PSoS. 78. The PFSC receives routine performance information on officer and 81. The force has strong financial 84. The force has strong budgetary staff numbers, sickness absence and controls in place and sound processes control but, in common with forces time invested in training activity. It also for setting and monitoring budgets. across Scotland, has a less developed scrutinised and challenged the force’s Four-weekly monitoring reports are understanding of the costs of specific proposals for reducing staff numbers. produced and considered by the Force policing activities. The force uses However, there is limited evidence of Budget and Resource Management Police Objective Analysis to cost 22

annual budgets, but does not use the elsewhere in a small number of larger audit and inspection, the force information as a management tool. buildings. Many of these buildings efficiencies programme, led by This makes it difficult to evaluate have poor performance in terms of the chief constable, had ensured the relationship between the energy consumption and their design the force was in a strong position resources invested and the outcomes has rendered them inflexible for to deal with these challenges. We achieved by that investment. For future change. The force has taken found that an effective governance example, a fuller analysis of the a critical look at its estate and made and implementation structure had costs of introducing the community improvements wherever possible. been put in place to deliver force engagement model could have been Most significant have been the efficiencies and that the structure used to identify the total cost for the development of shared facilities with has been retained and developed to outcomes achieved. Such information partners such as at Cowdenbeath and include the police reform programme. would also be of benefit to the PFSC St Andrews to reduce total cost and This is of particular relevance given as a means of demonstrating value maximise accessibility. the chief constable’s decision to for money. retire in August 2012. These sound 88. We noted that members had been governance arrangements will provide Managing people actively involved in the developments the force with a proven foundation to 85. The force actively manages its at Cowdenbeath and St Andrews and manage change during the transition workforce through a comprehensive are assured that as future opportunities to the PSoS. HR strategy that has clear links to the to develop the estate arise the force force policing plan and recognises will submit recommendations to the Equalities people as its most valuable asset. PFSC for scrutiny. Delivery of the priorities arising from Fife Police Authority the HR strategy is managed through 89. The force ICT system has the HR action plan and through suffered from a lack of investment The PFSC does not provide initiatives such as Operation LASER and upgrade in recent years. This sufficient oversight of the force’s (Exhibit 6). Staff are encouraged has restricted progress in some progress with equality issues. to contribute at all levels through areas, such as the use of video and a range of consultation bodies. audio streaming to promulgate key 91. The PFSC does not provide The force intends to conduct staff messages and online training to sufficient leadership or oversight of surveys during 2012 to ascertain staff. The force has engaged with equalities. The PFSC is responsible staff satisfaction levels in light of the Scottish Police Services Authority for ensuring the policing needs of the the ongoing Force Efficiencies (SPSA) to address this issue and work different communities within Fife are Programme and police reform. is in progress to upgrade the system. being met and it also needs to ensure that the force complies with equal Managing assets and other Planning for the future opportunity legislation as an employer. resources 90. Like all public sector organisations, However, while quarterly performance 86. In Fife, the council holds the the force faces significant financial reports include two performance title to police buildings and land. The challenges and at the time of our indicators associated with racist force and council maintain registers of physical assets, buildings and vehicles. Regular cross-checking takes Exhibit 6 place to ensure there is agreement Operation LASER on those assets. The force and the council are aware of the need to The force has developed an innovative approach to providing additional ensure all assets are identified for resources to tackle local priorities. Operation LASER was introduced by the future transfer to the Scottish Police Force in 2009; it makes good use of resources which normally work in non- Authority, when it comes into being. operational posts by deploying teams of officers at periods of peak demand throughout the year. Individuals are deployed about six times per year as 87. The force has committed to part of a team of 8–12 individuals to provide high-profile, intelligence-led developing its estate to support its targeting of the main community concerns in Fife. Those deployed are also vision by providing a mix of facilities required to make direct contact with previous callers to advise them that that are accessible, fit for purpose, police operations are taking place to address their complaints. In addition to efficient and flexible to meet future generic deployments, Operation LASER has been used to support a number need. A high proportion of its of target/crime specific days of action. accommodation is located at the force headquarters with concentrations Source: HMICS Part 2. Corporate assessment 23

incidents and crimes, the PFSC neither Group, responsible for the delivery 1.2 per cent and that of the population receives nor requests information of equalities outcomes. Supporting of Fife, where the percentage of about the force’s overall approach to the activity of these groups is the people that are minority ethnic is equalities. As a result the PFSC is not Community Planning and Equalities 1.3 per cent.5 We note, however, that aware of progress against the force’s Unit, which assists in the coordination in 12.2 per cent of cases the force has equality and diversity strategy, other of the equalities strategy and no information on the ethnicity of its equality-related policies or equality monitoring of performance. staff. The force uses the national HR outcome information and is therefore system (scope); however, it does not unable to effectively scrutinise the 94. The Lay Advisers’ Group acts as currently have the capability to use force’s approach to equalities. critical friends assisting in improving the Equal Opportunities module for the service provided by the force. staff to input and store information, 92. The PFSC would benefit from The remit of the group is developing. which would assist in determining the having a better strategic oversight Most recently the group has been equality profile of the workforce. This of how the force engages with, for given the opportunity to review issues matter is currently being worked on example, hard-to-reach groups in arising from the investigation of hate and it is anticipated the system will be communities. Members would also crime. Lay advisers are sent a list of available later this year. benefit from a fuller understanding of hate crimes to identify the ones they how the Lay Advisers’ Group, which want to consider. The investigating 97. Workforce data is reported involves members of Fife’s diverse officers are then invited to present nationally on a quarterly basis communities acting as advisers to to the group the issues that they through the SPPF. However, force the force on equality issues, faced in carrying out the investigation. performance reports do not contain contributes to the force’s approach Although in its infancy and not unique4 this information and as a consequence to equalities in Fife. to Fife, involving lay advisers in this the PFSC does not receive regular way is considered to be good practice. performance information relating to Fife Constabulary the diversity of the workforce. Given 95. The force has a range of systems the progress the force has made in The force has a clear commitment and process in place to support delivering its equalities strategy, its to improving equality outcomes the mainstreaming of equalities. In work with communities and through for its staff and the people of common with other forces, ‘respect the Lay Advisers’ Group, it would be Fife, which is reflected in the for diversity’ is a core competency an opportunity to inform the PFSC Building on Success element of within the performance and of this activity to enable it to provide the force’s strategic plan 2011–15. development review system for staff. scrutiny and challenge. The deputy chief constable leads Equality Impact Assessments (EQIA) on diversity and equality with are conducted for new and revised Sustainability senior leaders playing a key role polices and procedures. A select in delivering improvements. group of people are trained on how to Fife Police Authority The force considers the impact conduct EQIA to ensure a consistency on equalities when developing of approach and better outcomes. The PFSC provides limited strategy and policy. The force has oversight of the force’s overall a good understanding of its diverse 96. The force supports the approach to sustainability and communities and has developed development of a workforce recognises the need to do more. services to meet their needs and that reflects the make-up of the ensure positive outcomes. communities of Fife. There are five 98. The PFSC considers limited equality group networks which are information in relation to sustainability. 93. The Fife Constabulary Equality and promoted within the force to support It is aware of sustainability issues on Diversity Strategy sets out the force diversity within the workplace. The individual projects such as the energy equality and diversity ambitions for composition of the workforce is efficiency of new police stations 2011–14. To support the delivery of changing and is in line with the other and endorses the force’s carbon the strategy the force has developed forces in Scotland. The proportion management plan. However, the robust governance arrangements that of female officers now stands at PFSC has not yet received an update are now well established. Progress 28 per cent, which is slightly above on progress against the plan and more is monitored primarily through the the Scottish average. The number of generally has no strategic oversight Strategic Equality Board led by the officers with declared ethnicity stands of the force’s overall approach to deputy chief constable. Reporting at 0.6 per cent. This is below the sustainability. to this board is the Equality Delivery Scottish Police national average of

4 Lothian and Borders Police and Police Board: Best Value Audit and Inspection, Audit Scotland and HMICS, 2011. 5 Analysis of Ethnicity in the 2001 Census – Summary Report, Office of the Chief Statistician, 2004. 24

99. Members recognise the need to 102. The force aims to embed a make improvements in the wider areas culture of carbon management over of sustainability. The PFSC needs to the next five years and beyond. identify and direct the information it The project is being managed at a requires to assess the force’s approach senior level and a Carbon Trust data and to scrutinise the force’s progress in gathering tool will be used to provide meeting its objectives. monitoring and trend information. Summary performance data will be Fife Constabulary made available to the force via the business support microsite, and The force has ambitious plans to in due course a dedicated carbon deliver increased sustainability, reduction microsite; although this is particularly in relation to carbon still some way off because of the management through sharing limitations of the force’s ICT systems. services and rationalising assets The force will need to ensure that with partners. The sustainability progress is monitored and reported to agenda is led at the executive the PFSC. level and there is evidence of early successes.

100. Sustainability is one of the ‘cross- cutting’ responsibilities under Best Value and the force is committed to contributing to the climate change agenda in Scotland. The Association of Chief Police Officers (Scotland) approved a Climate Change Action Plan 2010–20 and Fife Constabulary, like other forces, has developed a Carbon Management Plan (CMP) with support from the Carbon Trust and additional support from Fife Council energy management staff. The final plan was approved by the PFSC at its September 2011 meeting. The force has set a target of a 21 per cent

reduction in CO2 emissions by 2015 to meet the statutory target for 2020.

101. The force has gained some early success including the shared facility at Cowdenbeath that has improved efficiency from an F energy rating to C, achieving the 2050 carbon reduction target for that specific building. The force has also reduced its fleet emissions by ten per cent from the baseline by utilising more energy-efficient vehicles. 25 Part 3. Fife Police performance assessment 26

Performance outcomes are down by 20.7 per cent to 50.9 per cent, up from 45.5 per over the same time period but by cent the previous year (Exhibit 8). The The force and its partners can only 0.9 per cent in 2011/12. force’s detection rates in all crime demonstrate that performance areas are consistently higher than is good, is moving in the right 105. The detection rate for group 1 their respective national averages. It direction in most areas and is to 4 offences in Fife in 2011/12 rose is performing particularly well in terms achieving favourable outcomes for the communities of Fife while being one of the least expensive Exhibit 7 forces to maintain. The force set Total crime (groups 1 to 4) per 10,000 population a number of targets for 2011/12 700 in support of its policing plan 2007/08 objectives, which in turn link 600 2008/09 clearly to national and partnership 2009/10 objectives. Its performance 500 framework enables a clear and 400 2010/11 accurate understanding of how the 2011/12 force is performing in relation to 300 these objectives. There are some 200 areas where performance can still 100 be improved upon, particularly in otal crime per 10,000 population T relation to domestic abuse and hate 0 crime where recent enhancements Fife

in reporting and recording provide a Central Tayside Scotand Grampian Northern solid platform for future progress. Strathclyde

Lothian and Borders Tackling crime Dumfries and Galloway 103. Across Scotland recorded

crime has been falling annually for Source: Scottish Government, SPPF 2011/12 a number of years and has fallen by over 26 per cent since 2004/05. Fife is no exception to this trend; during the same period the force has seen a Exhibit 8 49 per cent reduction in group 1 to 5 Detection rates (groups 1 to 4) crimes.6 This continued into 2011/12 with a further fall of 4.3 per cent in 70 2007/08 reported crime. 60 2008/09

104. While it does not have the 50 2009/10 lowest rate per population of 40 2010/11 groups 1 to 4 recorded crime, it has 2011/12 experienced one of the greatest 30 declines in number over the last four years. As a result, at the end of Detection rates (% ) 20 2011/12 its rate of 396.7 crimes per 10 10,000 residents was well below the Scottish average of 471.7 0 (Exhibit 7). The biggest contributors Fife Central Tayside Scotand Grampian Northern to this downward trend have been Strathclyde group 4 crimes of fire-raising and vandalism, which are down by Lothian and Borders 42.4 per cent since 2007/08 and fell Dumfries and Galloway a further 15.3 per cent in 2011/12, and group 3 crimes of dishonesty, which Source: Scottish Government, SPPF 2011/12

6 Group 1 – Crimes of violence, including: murder, attempted murder, serious assault, and firearms offences. Group 2 – Crimes of indecency, including: rape and sexual assault. Group 3 – Crimes of dishonesty, including: vehicle crime, theft, shoplifting, housebreaking, and fraud. Group 4 – Fireraising, malicious mischief etc, including: vandalism, and fire-raising. Group 5 – Other crimes, including: offensive weapons and knives, bail offences, and drug offences. Part 3. Fife Police performance assessment 27

of detection rates for group 1, which 109. The force has the lowest rates its activity in these areas to the extent at 97 per cent is the best in Scotland per 10,000 of population for crime in that there was a 27 per cent increase and group 2 at 80.8 per cent is the proactive policing groups. In 2011/12, in seizures of class A drugs. Group 5 second best in Scotland and well the rate for group 5 (drugs and offences rose by 6 per cent or above the national averages of 75.5 other crime) was 92.2 per 10,000 191 crimes and a detection rate of and 67.3 per cent respectively. of population compared with the 99.4 per cent was recorded. During Scottish average of 129.7 (Exhibit 10). the year it also achieved some notable 106. The force attributes its success During 2011/12, the force increased success in targeting the supply of in detecting crime to its internal performance management processes and community engagement model. Exhibit 9 Internal performance management, Group 1 crimes per 10,000 population especially at the local area level, has 40 ensured that all avenues are explored 2007/08 when investigating crime before 2008/09 officers close a case. The Scottish 30 Institute for Policing Research 2009/10 (SIPR) reviews of the community 2010/11 engagement model identify that it 20 2011/12 ‘is contributing at a wider level to an improving relationship between police and communities’. We found that 10 operational police officers believe that roup 1 crimes per 10,000 population

this has contributed to greater trust G 0 and confidence in the police to the Fife extent that communities are more Central Tayside Scotand Grampian Northern willing to help the police to identify Strathclyde those responsible for local crime. Lothian and Borders Dumfries and Galloway 107. The force has adopted a robust approach to tackling violent crime, with a strong emphasis on conducting Source: Scottish Government, SPPF 2011/12 thorough investigations. In addition, initiatives such as Operation LASER targeting priorities including public Exhibit 10 space disorder, the proxy supply of Group 5 crimes per 10,000 population alcohol to youths and low-level drug dealing, as well as partnership work, 200 n 2007/08 such as MARAC tackling domestic abuse, have all contributed to 2008/09 150 reductions in these group 1 offences. 2009/10 (Exhibit 9). 2010/11 100 108. For group 2 (crimes of 2011/12 indecency) the force has the second highest rate in Scotland, at 50 16 crimes per 10,000 of population

compared with the national average roup 5 crimes per 10,000 populatio G of 13.9. During 2011/12, it set a target 0 to encourage victims to report crimes Fife Central Tayside Scotand of a sexual nature and achieve a year- Grampian Northern end detection rate of 75 per cent. Strathclyde

Between April 2011 and March 2012, Lothian and Borders the number of reported offences fell Dumfries and Galloway by 3.2 per cent with a detection rate of 80.8 per cent. Source: Scottish Government, SPPF 2011/12 28

drugs and organised crime, seizing up this approach with telephone population (Exhibit 11). In 2011/12, £34,646 of cash assets and identifying contact in an attempt to improve this, however, rose from the previous a further £1,300,572 in assets under response rates further. year’s total of 8 to 9, but is still the the Proceeds of Crime Act 2002. second lowest in Scotland. 113. The force has a good approach Being there for the community to handling of complaints. This is 114. The force’s ability to meet 110. The difficulty of achieving good discussed in more detail in the the national target of answering response rates through postal surveys corporate assessment section 90 per cent of 999 calls within is widely acknowledged. Certainly (paragraphs 41–42). In recent years ten seconds at 92.8 per cent has those forces that have changed to it had recorded reductions in the improved from 91.8 per cent the a telephone format have enjoyed rate of complaint cases per 10,000 previous year (Exhibit 12). considerably greater success. In 2011/12, the return rate for Fife was 21.3 per cent, which was the lowest Exhibit 11 return rate of all Scottish forces. Complaint cases received per 10,000 population

111. In terms of the feedback 14 2008/09 it receives from those that do 12 2009/10 respond, the force had enjoyed long- term gradual increases on all the 10 2010/11

satisfaction questions and declines 2011/12 in the percentage of respondents 8 dissatisfied. However, data for year 6 ending 2011/12 show a reversal in this 4 trend with overall satisfaction with the per 10,000 populatio n Complaint cases received way police dealt with the respondents 2 incident falling from 76.5 per cent to 72.7 per cent, and on keeping users 0 adequately informed of the progress Fife Central Tayside Scotand Grampian Northern of their matter the rate fell from Strathclyde 74.2 per cent to 67.9 per cent. Lothian and Borders 112. The force is aware of the decline Dumfries and Galloway in satisfaction rates and has planned a number of consultation exercises Source: Scottish Government, SPPF 2011/12 for 2012 in order to address these matters. These are a quality of service survey to ascertain levels of satisfaction of its service users; a Exhibit 12 public perception survey, which is Percentage of calls answered in target times a broader biennial survey that aims to establish local people’s views 98 2008/09 999 calls in 10 seconds Non-emergency calls on crime, antisocial behaviour and 96 in 40 seconds 2009/10 policing priorities; and its staff survey, 94 designed to ascertain staff satisfaction 2010/11 92 levels. In an attempt to resolve the 2011/12 problem of poor return rates it will 90 National use online questionnaires and seek 88 target

to promote their wider uptake by, in target time s 86 for example, establishing a link to 84

the Fife Direct website and making Percentage of calls answered direct contact with students at various 82 80 colleges in the area. That said, we Fife Scotland Fife Scotland note that the quality of service survey will continue to be primarily postal with respondents being given the Source: Scottish Government, SPPF 2011/12 opportunity to complete it online. The force may wish to consider following Part 3. Fife Police performance assessment 29

115. With regard to handling non- (equivalent to a fall of 24.2 per cent to the Reporter, the outcome being emergency calls the target is to on 2010/11) and 793 fewer crimes that the needs of these children are answer 90 per cent of calls within of vandalism (down 15.3 per cent being addressed more quickly. This is 40 seconds. Performance in 2011/12 on 2010/11). These percentage a view supported by an independent has improved from 86.2 per cent reductions are among the highest evaluation of this process by Blake to 89.8 per cent but remains below in Scotland. Stevenson.7 The group was also the national target (Exhibit 12). The ‘highly commended’ at the Scottish percentage of non-emergency calls 118. The force has seen reductions Policing Awards 2011. abandoned by the force in 2011/12 in reports submitted to the Children’s is above the national average, Reporter, with a decrease of 120. A target of 80 per cent of at 4.6 per cent compared with 73.9 per cent over the last three cases within 28 days is in place for 3.7 per cent, although this is an years, compared with a 44 per cent crime reports to be submitted to the improvement on the 5.8 per cent it reduction nationally. The force attributes procurator fiscal. Over the last four recorded in the previous year. this success to the Youth Offender years the force has typically recorded Management Group (YOMG), a multi- some of the lowest proportions 116. Although Fife Constabulary agency approach that diverts children achieved, while always managing to no longer sets an internal target from the criminal justice system into remain above the 80 per cent target for attending emergency response more appropriate initiatives to address (Exhibit 13). However, its percentage incidents, at 357 seconds per incident behaviour and reduce re-offending. for 2011/12 fell to 77.2 per cent. compared to the national average It has also, however, had an adverse of 623 seconds, it has one of the impact on the length of time taken to 121. In light of these trends the fastest average response times in submit reports. force has put in place a number of Scotland. In terms of the number of measures to improve the quality of its such incidents it is required to deal 119. The national target is to submit crime reports to the procurator fiscal. with, this has declined dramatically in 80 per cent of cases to the Children’s However, subsequent delays in the the last two years, down from 19,352 Reporter within 14 calendar days. submission process have resulted in in 2010/11 to 1,646. The force puts Fife’s performance has fallen from the fall in submission rates observed this down to a change in its grading 84.3 per cent in 2010/11 to for 2011/12. The force’s efficiencies procedures which saw it adopt the 70.9 per cent in 2011/12 (Exhibit 13). programme brought significant national standard of ‘emergency’ This fall in performance is believed to change to its Criminal Justice (thereby reducing the number of other be as a result of the YOMG review Department, with many functions, incidents recorded as emergencies) process, which results in only the including those associated with over a year ago. most serious cases being submitted case management, now transferred

Creating safer communities 117. The force’s community engagement model (paragraphs Exhibit 13 48–51), which targets priorities Submission of police reports within 14 days – 80 per cent target identified via local community 100 engagement meetings, along with Reports to procurator fiscal Reports to Children's Reporter 2008/09

90 initiatives such as Operation LASER 2009/10 80 (paragraph 85) and other partnership National 2010/11 activity have all contributed to the 70 target force’s success in reducing antisocial 60 2011/12 behaviour and associated crimes such 50 as vandalism. This proactive approach 40 has seen a rise in enforcement 30 activity such as the use of antisocial

ubmission of police reports 20 behaviour fixed penalty tickets. During S 10 2011/12, Fife Constabulary issued 0 1,698 fixed penalty notices, Fife Scotland Fife Scotland an increase of 14 per cent on the previous 12 months. Over the same period it recorded 2,289 Source: Scottish Government, SPPF 2011/12 fewer antisocial behaviour incidents

7 Youth Offender Management Group and Youth Diversionary Programme Evaluation, Blake Stevenson, 2012. 30

to its Continuous Improvement trends suggest that there is still work to racist incidents during 2010/11 and a Unit. The force anticipates that the be done to tackle this type of crime. further but smaller increase of 6.7 per establishment of this unit will help to cent in 2011/12. Detection rates have resolve outstanding problems with 125. Although the force remains well risen from 80.8 per cent in 2010/11 to submissions to both the procurator below the national average for racist 86.5 per cent in 2011/12 and remain fiscal and Children’s Reporter. incidents per 10,000 of population, well above the Scottish average of it has experienced some recording 69.2 per cent. This should provide the 122. We note both the changes problems in this area in recent years. force with a platform from which to implemented by the force to improve Specifically, a review of its systems, make further progress. performance in this area and its processes and procedures identified improved submission rates since a tendency for under-recording, due 127. Over the last four years Fife then of 81 per cent of reports to the largely to a lack of understanding of Constabulary has consistently had procurator fiscal submitted within how hate incidents and crimes should one of the highest rates per 10,000 of time, in March 2012. However, be recorded correctly. population of registered sex offenders performance is at odds with that of in Scotland (Exhibit 15). The force other forces and we suggest that Fife 126. As a result the force has has not been able to establish any Constabulary continues to monitor the provided awareness training to all particular reason for this statistic. It situation to ensure that improvements staff, while its community officers does, however, continue to manage are sustained. have received additional training in registered sex offenders and to diversity and are expected to engage monitor non-registered sex offenders. 123. For group 7 (motor vehicle with all communities as part of their The monitoring of non-registered offences) the force typically records daily activity. It has also introduced offenders is unique to Fife. It involves the lowest rate in Scotland of a more robust system of monitoring an intelligence-led and risk-based offences per 10,000 of population: hate incidents that requires individual approach whereby the activity of those in 2011/12 this stood at 408.3 officers to flag incidents for review who may pose a risk to communities compared with a national average by a duty inspector. All incidents are is subject to intelligence monitoring by of 638.9. It has, however, recorded discussed on a daily basis at the local community teams. slight decreases in most categories of and divisional Tactical Tasking and road casualties in the last 12 months. Coordinating Group (TTCG) and weekly Building on success The number of adults killed on roads and monthly reviews of investigations 128. At the end of March 2011, Fife dropped slightly from 13 to 12, are conducted and supported by Constabulary employed a total of serious injuries fell from 109 to 72 and regular dip-sampling. These changes 1,532 full-time equivalent officers and slight injuries declined from 510 to saw a 52.6 per cent rise in recorded staff, 27.6 per cent of whom were 408. There were no children killed on Fife’s roads during this period, but the number receiving serious injuries rose Exhibit 14 from 13 to 15 while those with slight Domestic abuse incidents per 10,000 population injuries fell from 67 to 55.

140 2007/08 124. Nationally Fife has one of the highest rates of domestic abuse – its 120 2008/09 rate of 125 per 10,000 of population 100 2009/10 is the third highest in Scotland and 2010/11 sits above the national average of 114 80 2011/12 per 10,000 of population (Exhibit 14). 60 Furthermore, the force has shown 40

one of the highest increases in the per 10,000 populatio n Domestic abuse incidents number of these offences over the last 20 12 months, from 3,844 in 2010/11 to 4,549. At 18.3 per cent this is much 0 greater than the nine per cent rise Fife Central Tayside Scotand Grampian Northern across Scotland and is in contrast to Strathclyde a reported 5.2 per cent reduction in domestic abuse incidents the previous Lothian and Borders year. While it could be argued that Dumfries and Galloway the rise is due to better recording and reporting processes following the Source: Scottish Government, SPPF 2011/12 introduction of the MARAC process, the Part 3. Fife Police performance assessment 31

civilian members of staff. Per 10,000 Exhibit 15 population, the force’s rate of police Registered sex offenders per 10,000 population officers sits below the average for

Scotland (30.9 compared with 33.6 9 for Scotland), while that for police 2007/08 8 staff (14.4 compared with 12.9 for 2008/09 Scotland) sits above. 7 2009/10 6 2010/11 129. Over the last four years 5 expenditure per resident by Fife 4 2011/12 Constabulary has consistently remained below the Scottish average. 3 per 10,000 populatio n 2 At £164.10 per head it is the third Registered sex offenders least expensive force in Scotland, 1 and slightly below the national 0 average of £169.50. Fife

Central Tayside Scotand Grampian Northern 130. In terms of sickness absence Strathclyde rates, at 4.2 per cent that of police Lothian and Borders officers is the same as the Scottish Dumfries and Galloway average. Conversely, at 3.5 per cent, that of police staff is below Source: Scottish Government, SPPF 2011/12 the Scottish average of 4.8 per cent (Exhibit 16).

131. Over the last 12 months the Exhibit 16 force has conducted a comprehensive Proportion of working time lost to sickness review of its special constabulary. Its findings revealed a number of officers 6 2008/09 who no longer turn out for duty and Police officers Police staff whose inactivity was contributing 5 2009/10 to the force’s special constabulary 2010/11 having the lowest average hours 4 worked in Scotland – 66 per officer 2011/12 compared with 107 nationally. The 3 review recommended the removal of ‘inactive’ special constables and lost to sickness 2 the recruitment of new staff to meet Proportion of working time 1 the force’s requirements. In addition a number of special constables were 0 recruited as full-time constables. Fife Scotland Fife Scotland

This resulted in an overall reduction Note: There is no Scottish police staff average for 2010/11 due to gaps in national data. in the number of special constables Source: Scottish Government, SPPF 2011/12 from 128 in March 2011 to 109 in 2012, with a corresponding decline in the number of hours worked from 16,434 to 11,436. The force has held a number of recruitment initiatives to increase numbers. By the end of February 2012, 59 applications had been processed with 14 new special constables beginning training in March and a further 18 identified to start in September. We note the action taken by the force and anticipate that it will continue to expand the support it derives from its special constabulary. 32 Part 4. Improvement recommendations Part 4. Improvement recommendations 33

132. Scottish police services are 133. The improvement areas, set going through a period of major out below, focus on areas that are change with the Government’s important to the operation of the announcement of the creation of police authority in the transition to a the PSoS. We recognise that this is single force. a prominent issue for all forces and have taken this into account in setting the improvement agenda. Police authorities and forces must continue to observe their duties under the Best Value legislation to ensure that police services remain effective, make the best use of resources allocated to them and are accountable to local communities.

Improvement agenda

Joint improvements 4. The authority should ensure making greater use of its force its involvement in setting the briefing system and developing 1. The council, in its capacity as policing strategy and in scrutinising local priority notice boards in police police authority and through its performance is more public and buildings to flag priorities to other revised committee structure, transparent. It should also develop officers and staff. and the force should ensure that its approach to improvement and, good working relationships are in particular, identify its priorities in 8. The force should address its maintained and that they continue the period leading to the PSoS. commitment to openness and to work effectively to deliver an accountability by publishing force effective policing service during the 5. The authority should review the performance and policy group transition to the PSoS. structures in place at the time of minutes in a timely manner. the audit and inspection, including 2. The authority needs to form a clear the scrutiny group and its activities, 9. The force could assist the view of how it can provide direction and determine arrangements committee in its role of and scrutiny in the critical period of which secure best value both providing meaningful scrutiny transition to a single force. While from ongoing policing services and and consideration of value for recognising the need to sustain during the transition to the single money through the provision of performance in the year ahead, it Scottish force. more contextual information in must also make difficult decisions performance reports on exceptions relating to the process of reform 6. The authority should continue to and comparative data with other and a single national service. develop the skills and capacity of forces or organisations. In addition elected members and ensure a the force could provide regular Fife Police Authority more systematic and structured reports on cross-cutting issues approach to training, particularly for such as diversity and sustainability; 3. The authority should be more new members following the May updates on risk management and proactive in determining the 2012 council elections. continuous improvement activity, aspects of force performance it as well as developing information wants to explore and in scrutinising Fife Police on costs through improved use of the overall effectiveness of the Police Objective Analysis. community policing strategy; the 7. The force should build on force’s estates and workforce its successful community 10. The force should take further strategies; the force’s continuous engagement model by improving steps to reduce the occurrence of improvement activities; and the way local community priorities domestic abuse and hate crime, the force’s progress with equal are communicated internally to where improvements in reporting opportunities and sustainability. flag priorities to a wider range and recording should provide a of resources. To achieve this platform from which to begin to the force may wish to consider make progress. 34 AppAppeennddiix 1..1x Expectations of police authorities

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

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

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

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