A National Evaluation of Community Support Officers
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Home Office Research Study 297 A national evaluation of Community Support Officers Christine Cooper, Jane Anscombe, Julie Avenell, Fiona McLean, and Julia Morris The views expressed in this report are those of the authors, not necessarily those of the Home Office (nor do they reflect Government policy). Home Office Research, Development and Statistics Directorate January 2006 Home Office Research Studies The Home Office Research Studies are reports on research undertaken by or on behalf of the Home Office. They cover the range of subjects for which the Home Secretary has responsibility. Other publications produced by the Research, Development and Statistics Directorate include Findings, Statistical Bulletins and Statistical Papers. The Research, Development and Statistics Directorate RDS is part of the Home Office. RDS staff are embedded within delivery groups working closely with front-line staff. The HO Chief Scientific Advisor, who is also Director of RDS, oversees professional development for RDS teams, quality assurance and strategic R & D issues. The Home Office’s purpose is to build a safe, just and tolerant society in which the rights and responsibilities of individuals, families and communities are properly balanced and the protection and security of the public are maintained. RDS includes staff within the Government Statistical Service (GSS). One of the GSS aims is to inform Parliament and the members of the public about the state of the nation and provide a window on the work and performance of government, allowing the impact of government policies and actions to be assessed. Therefore - Research Development and Statistics in the Home Office improves policy making, decision taking and practice in support of the Home Office purpose and aims, to provide the public and Parliament with information necessary for informed debate and to publish information for future use. First published 2006 © Crown copyright 2006 ISBN 1 84473 799 3 ISSN 0072 6435 Foreword Community Support Officers are a recent addition to the policing family. They have taken on a new role within police forces as members of police staff undertaking a variety of uniformed patrolling tasks. The evidence from local evaluations showed promising results in terms of their impact on reassurance, with many residents saying that they felt safer and had less fear of crime since the introduction of CSOs in their local neighbourhoods. But there were calls for a national evaluation of CSOs. With the commitment to invest further in CSOs and increase their numbers to 24,000 by 2008, the opportunity was taken to evaluate in more detail the different uses of CSOs. This evaluation looks at what CSOs can achieve in terms of public benefits and how their impact can be maximised, particularly in the context of neighbourhood policing. The study reports on the role and deployment of CSOs in different parts of the country as well as highlighting the importance of training and communication to the successful implementation of the role. The report and its findings will provide a solid foundation for making more effective use of the increasing numbers of CSOs. Carole F Willis Assistant Director, RDS(CRCSG) i A national evaluation of Community Support Officers Acknowledgements This report would not have been possible without the help and co-operation of the implementation teams in the case study forces and we are very grateful for all their time and effort. The authors would also like to thank other members of staff in the forces, in particular the data managers and those from the forces and the local areas who took part in the interviews and focus groups. We would like to thank the staff of the Home Office Police Human Resources Unit, in particular Diana Greene and Caroline Hart. We would also like to thank Davina Makanjuola for her help with the fieldwork and data analysis. Finally we thank the external reviewers for their helpful and insightful comments. Authors The authors of this report are all members of the Policing Effectiveness Research Programme in the Research, Development and Statistics Directorate at the Home Office. ii Contents Summary and issues vii Introduction 1 Background 1 Neighbourhood policing 1 The legislation 2 The research 2 Data sources 3 Force survey 3 CSO survey 4 Local level 4 Structure of the report 5 Part 1: Role, deployment and impact of CSOs 7 Introduction 7 Role and activities 7 Patrol and community involvement 8 Time on patrol 8 What CSOs do on patrol 9 What CSOs deal with on patrol 10 Where they patrol 11 Community activities 12 Other activities 13 Attending incidents 13 What else they do 15 Time in the station 16 Impact on the role of police officers 17 Summary 18 Powers 18 The designation and use of powers 19 Views on the use of powers 20 Summary 23 iii A national evaluation of Community Support Officers Deployment 24 Shifts 24 Crewing 25 Health and safety 25 Summary 27 Impact 28 Impact on crime and disorder 28 Impact on public perceptions 32 Views of the areas 32 Visibility and accessibility of CSOs 33 Attitudes towards CSOs 34 Attitudes towards crime and ASB 36 Impact of CSOs on reassurance 38 Summary 39 Part 2: Implementation and human resource issues 41 Introduction 41 Recruitment and retention 41 Pay and conditions of service 41 Diversity of the workforce 43 Past experience of CSOs 45 Part-time working 46 Why CSOs joined the service 46 Satisfaction with role 47 Future career plans 49 Summary 51 Training 52 Force training packages 52 Induction training 55 Mentoring 56 Additional training 56 The future of training 57 Summary 57 Supervision and organisational structure 58 Who supervises CSOs? 58 Organisational structures and neighbourhood policing 60 Training of supervisors 61 Summary 61 iv Integration 62 Employment status 62 Complaints and discipline 62 Representation 63 Acceptance of CSO role 63 Factors affecting integration 65 Communication 65 Level of contact 66 Working with specials and volunteers 66 Working with local authorities 67 Summary 67 Part 3: Conclusions and good practice 69 The successes 0f CSOs 69 Role and impact 69 Profile of CSOs 69 Barriers to effective working 70 Turnover and morale of staff 70 CSOs’ activities and powers 71 Deployment and health and safety 71 Supervision and training 71 Ways to facilitate more effective working 72 Organisational structures and neighbourhood policing 72 Understanding of the role 73 Good practice – the effective use of CSOs 73 Recommendations 75 Training 75 Communication 75 Recruitment 75 Health and safety 75 Appendix 1: Methods 77 Appendix 2: Descriptions of the case study areas 91 Appendix 3: Community Support Officer powers 109 References 119 v A national evaluation of Community Support Officers List of Tables and Figures Tables 1.1 Percentage of total time spent on attending incidents and on patrol and community engagement by CSOs and neighbourhood police constables (PCs) in three forces 9 1.2 The number of incidents attended by CSOs in two areas in Northumbria (two-week period in October 2004) 14 2.1 Salaries of CSOs and police constables 42 2.2 Ethnicity and gender of CSOs and police officers (full-time equivalent) 44 2.3 Supervisors of CSOs 58 Figures Figure 1.1: The percentage of CSOs using the following powers at least once a week 21 Figure 1.2: Comparison of the number of recorded crimes of criminal damage for an experimental and control area in Merseyside, April 2002 to January 2005 29 Figure 1.3: Comparison of the number of reported incidents relating to misuse of public space for an experimental and control area in Northumbria, April 02 to July 04 30 Figure 2.1: CSO and police officer age profiles 45 Figure 2.2: What attracted CSOs to the role 47 Figure 2.3: Training provision in forces 53 vi Summary and issues The evaluation has shown that Community Suport Officers (CSOs) were providing a service that was highly valued by the public, businesses and police officers. They have a key role to play in neighbourhood policing and their provision of reassurance and visibility has been welcomed by local communities. Their contribution to tackling anti-social behaviour (ASB) has been highlighted by the evaluation. The report highlights areas which raised concerns, although many of those identified, for example, training, designation of powers and recruitment standards, are being addressed. Introduction CSOs were introduced as part of the Police Reform Act 2002. There are now over 6,000 CSOs in all 43 Home Office forces and the Government has given a commitment that there will be 24,000 CSOs by 2008. It was expected that CSOs would have a key role to play in the implementation of neighbourhood policing. The Association of Chief Police Officers (ACPO) described the role of the CSOs as contributing to the policing of neighbourhoods, primarily through highly visible patrol with the purpose of reassuring the public, increasing orderliness in public places and being accessible to communities and partner agencies working at local level. The emphasis of this role, and the powers required to fulfil it, will vary from neighbourhood to neighbourhood and force to force. (ACPO, 2005) This study was carried out by the Home Office between July 2004 and June 2005. Its key aims were to: G provide a national profile of CSOs in terms of their activities, deployment, designated powers and demographics; G provide indications of the impact of CSOs on the public in terms of their levels of reassurance, their perceptions and an understanding of their role; G provide indications of the impact of CSOs on low-level crime, disorder and ASB. The study used a wide range of data. Survey data were collected at national and local levels and case studies were carried out in three force areas.