Lothian and Borders Police and Police Board Best Value Audit and Inspection

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

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

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

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

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

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

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

Her Majesty’s Inspectorate of Constabulary for Scotland

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

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

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

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

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

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

Commission findings Partnership working and Page 2 community leadership Page 19 HM Inspector of Constabulary for Scotland findings Performance management and Page 3 improvement Page 20 Introduction Page 4 Use of resources Page 23 Summary Page 7 Equalities Page 25 Overall conclusions Page 8 Sustainability Page 26 Part 1. Context Page 9 Part 3. Lothian and Borders Police performance assessment The local context Page 27

Lothian and Borders Police Board Performance outcomes Page 10 Page 28

Lothian and Borders Police Part 4. Improvement Page 11 recommendations Page 32 Part 2. Corporate assessment Page 13 Appendix 1. Expectations of police authorities Vision and strategic direction Page 34 Page 14

Governance and accountability Page 16

Community engagement Page 18 2 Commission findings

1. This audit and inspection report, on are fit for purpose. To help them fulfil 8. The Commission welcomes the the performance by a police authority their scrutiny role, board members continued joint approach with Her and force of their statutory duties on need good quality training and Majesty’s Inspector of Constabulary Best Value And Community Planning, development. for Scotland on these police audit and has been produced jointly by the inspection reports, and the significant Controller of Audit and Her Majesty’s 4. The Commission notes that the contribution that this is having to Inspector of Constabulary for support in place for the board has stimulating more effective and Scotland. The Accounts Commission been instrumental in helping the streamlined scrutiny and to driving accepts the report from the Controller board secure improvement. The commitment to securing best value. of Audit on the Lothian and Borders board should assure itself that this Police Board. In accordance support has sufficient capacity and with the Commission’s statutory capability to help it take further responsibilities, these findings forward its improvement agenda and relate only to the Best Value audit in doing so demonstrate an effective of the board. use of its resources.

2. The Commission finds that the 5. The Commission acknowledges board performs generally well and the challenges which the board and works effectively with the force board members face, with possible and with partner organisations changes in the composition of the in providing policing services to board following the local government communities in the Lothian and elections in May 2012 and the Borders area. The board convener ongoing deliberations around police provides strong leadership and the reform in Scotland. It is crucial board demonstrates a commitment however, that the board maintains to improvement and good self- its commitment to improvement awareness of where it needs to and continues to work effectively improve further. This has helped the in partnership with the force in this board to put the essential elements period of transition. of best value in place and provides a sound basis for further development. 6. As part of this commitment, The board is clear on where it can the board should assess the risks make further improvements, and a associated with the demands placed new updated Improvement Plan will on board members in coming help articulate this. months, not only current members in the lead-up to the local government 3. The board needs to build on the elections, but also any newly elected steps it has taken to secure a more members following those elections. consistent and shared understanding across board members of their roles 7. The Commission gratefully and responsibilities. This is particularly acknowledges the co-operation and important for the board in developing assistance provided to the joint audit the vision and strategy of the force, and inspection team by the elected and in holding the chief constable to members of Lothian and Borders account for force performance. The Police Board, the chief constable and board can also improve the way it officers of Lothian and Borders Police, scrutinises the force by reviewing and other officials and community the performance information that it planning partners. considers and by assuring itself that the structures in place for scrutiny 3 HM Inspector of Constabulary for Scotland findings

1. As Her Majesty’s Inspector of • the force should support the 6. The joint audit and inspection Constabulary for Scotland, I hold a partnership effort in some approach adopted in the preparation of statutory responsibility to inspect areas through better sharing of this report continues to develop and is both Lothian and Borders Police and information and dissemination of contributing towards a more effective Lothian and Borders Police Authority. best practice from other parts of scrutiny regime that demonstrates our I concur with the Accounts the force commitment to achieving best value Commission findings on the Best in Scottish policing. Value and Community Planning • having taken steps to improve its performance of Lothian and Borders approach to managing equalities Police Authority and offer the following and diversity, the force now needs comment on the performance of to evaluate the impact of these Lothian and Borders Police. changes on the management of critical incidents and diversity 2. My overall assessment of Lothian training and Borders Police is that it is performing well and that the force • although overall performance is demonstrates many of the elements good and crime continues to fall, of best value. The force executive there is scope for the force to have developed a distinctive and reduce the occurrence of serious long-term strategy towards tackling crimes of violence and to improve the root causes of crime through crime detection and service user effective community policing and local satisfaction. partnerships. They have maintained police numbers while at the same 4. I look forward to receiving a plan time embarking on a significant from Lothian and Borders Police and change programme to manage a Lothian and Borders Police Authority reduction in the police budget. Overall which addresses the improvement crime rates continue to fall and the agenda set out in this joint audit and force has strengthened its approach to inspection report. public consultation and engagement through its Community Commitment. 5. I also wish to acknowledge my gratitude for the co-operation and 3. As with all organisations, there is assistance afforded to the joint audit scope for continuous improvement. In and inspection team by the chief particular, I would highlight that: constable, officers and staff of Lothian and Borders Police, the convener • there is room to improve the and elected members of Lothian and understanding of the strategy at all Borders Police Authority, The City of levels of the organisation Edinburgh Council chief executive and staff providing support to the • the board and force should work police authority and other officials and together to develop performance community planning partners. systems that might better reflect how well it is performing against the priorities 4 Introduction Introduction 5

This joint report is made by the methods and routes they use. The The key objectives of this joint audit Controller of Audit to the Accounts Scottish Government has issued and inspection were to: Commission under section 102(1) of further guidance for police authorities the Local Government (Scotland) Act and forces. This guidance includes • assess the extent to which 1973 and by Her Majesty’s Inspector Justice Department Circular 11/2003 Lothian and Borders Police Force of Constabulary for Scotland (HMICS) Best Value Guidance and Guidance and Board are meeting their duties under section 33 of the Police for Members of Police Authorities and under the Local Government in (Scotland) Act 1967. Joint Boards (June 2007). Scotland Act 2003 and complying with Scottish Government The Local Government in Scotland The scope of Best Value and guidance Act 2003 introduced new statutory Community Planning is broad and the duties relating to Best Value and guidance and statute indicate that a • agree planned improvements Community Planning. Its provisions successful police authority will: with the local authorities, force apply to local authorities, including and the board, to be reviewed by police authorities, and require • work in tandem with the chief external auditors and HMICS on an specifically that: constable to develop a clear set ongoing basis. of priorities that respond to the • councils and police authorities needs of the community in both As Best Value and Community secure best value (defined as the short and longer term Planning encompass a wide variety of achieving continuous improvement activities, it is not realistic to audit or in the performance of functions) • be organised to support the inspect everything in depth. For this delivery of these priorities reason we planned our detailed work • police authorities and chief in two ways: constables participate in the • meet, and clearly demonstrate community planning process. that it is meeting, the community’s • We considered all four of the needs force’s territorial divisions in more The Act also amended the audit detail to ensure the audit and arrangements set out in the Local • operate in a way that drives inspection took account of the Government (Scotland) Act 1973 to continuous improvement in all its different contexts and policing cover Best Value and gave powers to activities. demands across the force area. the Accounts Commission to examine Best Value in police authorities. HMICS Similarly, a successful police • We selected certain aspects of the has a statutory duty under section force will: force’s and board’s performance 33 of the Police (Scotland) Act 1967 for detailed investigation. We used to inspect police forces and common • work with its partners and the a wide range of sources, including police services, and to report to police authority/police authorities the force and board’s own ministers on their state and efficiency. to develop a clear set of priorities assessment of their performance, The 2003 Act extends this to include that respond to the needs of the reports issued following external provision for HMICS to inquire into community in both the short and audit and inspections and the and report to Scottish ministers on longer term Scottish Policing Performance whether a local authority is carrying out Framework (SPPF) to assess risks its functions both as a police authority • be organised to deliver these and scope our work to inform this and in relation to a number of matters priorities selection. including Best Value. • meet, and clearly demonstrate Our joint report reflects this The 2003 Act is supported by more that it is meeting, the community’s proportionate approach, with detailed detailed statutory guidance on Best needs commentary in some areas and Value and Community Planning, more limited coverage in others. Our and a series of advisory notes on • operate in a way that drives main audit and inspection work was specific topics such as elected continuous improvement in all its conducted in June 2011. The report member leadership. This guidance activities. includes a corporate assessment of is designed to be descriptive rather the board and the force, while the than prescriptive, defining the goals performance assessment covers only that organisations should aim for but the force. allowing them local discretion on the 6

We gratefully acknowledge the The existing guidance for policing cooperation and assistance provided (Circular 11/2003 and Guidance to to the team by Councillor Iain Whyte, Members, June 2007), sets out Convener of Lothian and Borders expectations of the board. More Police Board; David Strang, Chief details can be found at Appendix 1 Constable of Lothian and Borders of this report. Police; and all other elected members and staff involved. We are also grateful to the representatives of the five councils and the community planning partners who participated in the audit and inspection.

The tripartite arrangements and police authorities’ leadership role The force is governed through a tripartite arrangement between the chief constable, the police board and Scottish ministers. As the force covers more than one local authority area, the board comprises members from the five constituent councils. Scottish ministers have responsibility for national policy on law and order as well as the power to regulate on various policing matters including pay and conditions. The police board is responsible for setting the police budget, holding the chief constable to account and ensuring that best value is achieved. The chief constable is responsible for the operational aspects of policing within the force area.

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

Constituent councils are responsible for appointing the members of the police board and for allocating funding. The board is a separate legal entity and councils have no separate residual responsibilities beyond appointing members and funding. 7 Summary 8

Overall conclusions 4. The board demonstrates a strong programme has been successful commitment to improvement and in enabling the force to reduce 1. Lothian and Borders Police Board good self-awareness of where it its budget and has delivered and (the board) and Lothian and Borders needs to improve, which is reflected identified some important structural Police Force (the force) show a strong in its comprehensive Best Value changes to be made, the full impact commitment to working together to improvement plan. The board now of which is yet to be evaluated. The secure community well-being through needs to consider and agree how it force has clear plans in place to a clear focus on crime prevention will maintain focus and direction in its deliver a balanced budget for 2011/12 and public protection. They have improvement agenda, in the context and is developing a comprehensive established widespread stakeholder of likely changes in policing structures approach to the anticipated longer- support for this strategy through in Scotland. term financial challenges. effective partnership working at local level, engagement with community 5. There is strong ownership of the 8. The force continues to demonstrate groups and the public. Overall, force force’s partnership and outcome- improved outcomes for its performance is good, but there is based policing philosophy at senior communities with year-on-year scope for further improvement in level within the force and among reductions in crime and disorder. The some key areas. partners, but it is not universally force delivered a 7.2 per cent reduction understood by all staff. The force in overall crime in 2010/11. There are 2. The board is improving its is in the process of developing some areas for improvement, including approach to Best Value. The convener measures against which delivery of serious crimes of violence which have demonstrates a strong commitment this community well-being agenda risen, and crime detection and service to his role and has a clear knowledge can be assessed. The force is user satisfaction rates which have and understanding of strategic aware that it needs to strengthen remained relatively static in Lothian issues facing the force and the police the connection between the force’s and Borders. service more widely in Scotland. vision, performance management and Board members too have a good internal governance arrangements 9. The force’s senior management understanding of policing matters to better demonstrate that it is demonstrate clear leadership of and priorities in their local areas and effectively directing resources equality and diversity, gaining national their views and priorities fit well with towards its strategic priorities. recognition. The response to a recent the focus on community policing. high-profile case demonstrates the The board now needs to build on the 6. The force has a well-developed force’s willingness to challenge itself, work it has started, to develop a more approach to community policing to learn and to make improvements consistent and shared understanding which is highly regarded by key to the policing of diverse communities of board members’ roles and stakeholders and partners. Its during critical incidents. responsibilities, particularly in relation comprehensive community policing to developing policing priorities in model and effective local partnership partnership with the chief constable working has enabled the force to and in relation to scrutinising force deliver well-tailored policing solutions performance. across the five council areas served by the force. The force’s model of 3. The board receives good information devolved autonomy to divisional on force performance and the board’s command teams is being challenged arrangements for oversight of the by the reduction in the force budget, force’s finances are effective. However, which has necessarily required a in practice, scrutiny of the force is more corporate style of decision- inconsistent. The board’s approach to making relating to staffing and scrutinising other aspects of resource financial management. This has management, including property and created a period of flux that is to be human resources, is under-developed. managed by the Transforming the The board also needs to provide Service (TTS) programme until such stronger challenge in relation to the times as the future policing model for force’s performance and the force’s Scotland is delivered. improvement programme, and to improve scrutiny of the force’s progress 7. The force demonstrates a against its longer-term objective of commitment to continuous creating community well-being. improvement. The TTS change 9 Part 1. Context 10

The local context Exhibit 1 10. Lothian and Borders Police Board Lothian and Borders Police Board: constituent council budget and force oversee and deliver policing contributions across five council areas, ie City of Edinburgh, East Lothian, Midlothian, 8% The City of Edinburgh Council West Lothian and Scottish Borders. 8% The overall area extends to 6,456 West Lothian Council square kilometres and includes about 950,000 people, around 12% Scottish Borders Council 18 per cent of the Scottish population. Midlothian Council The Scottish Borders is the largest 55% area and it is also the most rural, East Lothian Council with around a quarter categorised as 17% remote rural. While the area overall has less than ten per cent of the most deprived areas in Scotland, where deprivation exists, around two-thirds Source: Lothian and Borders Police Board Annual Accounts 2009/10 of it is concentrated in the Edinburgh area. This contrasting geography and diversity brings with it competing priorities and demands on policing. and Scottish Borders. Membership 15. The board meets five times a of the board was determined by the year, on an approximately eight-week 11. There are unique challenges constituent councils following the cycle. Members also serve on the in policing Scotland’s capital. The local government elections in 2007; following committees, all of which Scottish Parliament, government the next local government elections report to the board: offices and consulates, a major will be in May 2012. international airport and headquarters • Audit and Scrutiny Committee: to buildings for financial institutions are 13. The board is responsible for ensure sound financial procedures; all located in and around the city. a revenue policing budget of review and scrutinise the force’s Edinburgh is also a focal point for approximately £170 million. It is strategic and service planning public demonstrations and is a major funded 51 per cent through specific process; monitor Best Value visitor attraction throughout the year, grant funding from the Scottish reviews; and review and scrutinise with particularly high visitor numbers Government and 49 per cent performance and resource use by during summer festivals and over through agreed contributions the force. the year-end festive period. Both The from constituent local authorities City of Edinburgh Council and the (Exhibit 1). Expenditure per resident • Complaints Sub-Committee: force attract additional funding on police services in Lothian and to consider reports and other from the Scottish Government to Borders in 2010/11 was £194.90, information relating generally to reflect these unique challenges the second highest in Scotland (the complaints against police officers; including, for example, security highest being £200.70 in Dumfries and consider complaints or considerations at royal events and and Galloway).1 allegations of misconduct against visits by other dignitaries. senior police officers. 14. The City of Edinburgh Council Lothian and Borders Police Board provides committee and other • Appointments and Remuneration administrative support to the board. Committee: to appoint and select 12. Lothian and Borders Police The chief executive of The City of chief police officers and agree Board’s main roles are to ensure Edinburgh Council is the clerk to levels of increments and bonuses the force is properly resourced the board and attends all relevant for senior officers. and to hold the chief constable to meetings. More recently, The City of account for policing of the force area. Edinburgh Council has provided a staff • Police Staff Appeals Committee: The board consists of 18 elected resource, equivalent to about one to consider staff grievances and members: nine from The City of full-time member of staff, to support appeals against disciplinary action. Edinburgh, three from West Lothian, the board’s scrutiny activity and the and two from each of the other three development of the board’s approach councils: East Lothian, Midlothian to Best Value.

1 Scottish Police Performance Framework. Part 1. Context 11

16. The board also operates three other groups which, while not Exhibit 2 formal committees, make important Lothian and Borders Police Area and Territorial Divisions contributions to board business: East Lothian City of Edinburgh • Policy and Best Value Working and Midlothian Group: to ensure that best value is achieved for the board; and to A discuss the development of policy F E and make recommendations to West Lothian the chief constable.

• Police Liaison Group: to provide a forum for informal consultation between the board and the police staff associations of the force. G

• Joint Consultative Group: to provide a means of consultation Scottish Borders between the board and the staff of the force.

Lothian and Borders Police

17. Lothian and Borders Police Force covers five local authority areas Source: Lothian and Borders Police and is staffed with around 3,000 police officers and around 1,200 police staff. The territorial policing 19. The City of Edinburgh Division for the division. Community police divisions and specialist headquarters has the highest levels of demand, numbers have been increased and divisions, including Crime Division including disorder, serious crime and their Safer Communities Team is now and Operational Support Division, are capital city responsibilities. Due to its located alongside local authority staff largely autonomous strategic business demography and in comparison with to impact on antisocial behaviour, units. The Force Executive sits over the other territorial divisions, the City road casualties, protecting vulnerable the divisions and follows a traditional of Edinburgh is separated into three persons and reducing harm caused by structure, with a chief constable, operational command areas; Central alcohol and drugs. deputy chief constable and two Edinburgh, Western Edinburgh and assistant chief constables. The most Eastern Edinburgh. Last year saw the 21. East Lothian and Midlothian form senior police staff member is the introduction of Safer Neighbourhood one territorial policing division meaning director of resources. The majority of Teams across Edinburgh contributing that the senior management team are divisions and departments also to significant reductions in vandalism working to deliver policing services follow traditional lines, each headed and theft by domestic housebreaking. within two separate community by a chief superintendent or police The Division’s Serious Organised planning frameworks. There is a strong staff equivalent. Crime Unit (SOCU) continued to partnership ethos across both East successfully tackle crime relating to Lothian and Midlothian which has been 18. The territorial divisions are drugs, money-laundering and firearms. used to good effect to reduce crime, arranged as in Exhibit 2: The SOCU has now been absorbed tackle under-aged drinking and to within the Crime Division to rationalise engage with schools on the issues of • A-Division – The City of crime and intelligence resources and antisocial behaviour, alcohol and drugs. Edinburgh provide the same level of service across the entire force. 22. West Lothian Division is also • E-Division – East Lothian and distinctive because of the unique Midlothian 20. By contrast, Scottish Borders co-location of the police within the is the largest area, greater than West Lothian Civic Centre. Closer • F-Division – West Lothian the other divisions put together, partnership working and joint presenting unique rural policing tasking has been a success, leading • G-Division – Scottish Borders. challenges. As well as reducing crime, to significant reduction in crime, public reassurance is a high priority vandalism and youth disorder. Also 12

of note is the way the division has engaged with partners to reduce domestic violence and hate crime.

23. The force aspires to deliver community well-being over the long term, by tackling the root causes of crime and disorder and protecting vulnerable communities through strong partnerships and locally focused community policing. In response to the police service in Scotland experiencing significant reductions in overall budget, Lothian and Borders Police set up a force- wide project Transforming the Service (TTS) to proactively manage reductions in staff, together with structural and procedural changes. 13 Part 2. Corporate assessment 14

Vision and strategic direction Lothian and Borders Police force and its overarching approach, which is to deliver national priorities Lothian and Borders Police Board The chief constable’s philosophy of locally and community priorities prevention underpins a distinctive through local partnership policing. The board endorses the force’s and long-term vision for policing in vision and strategic direction for Lothian and Borders. The strategic 30. The force has effective policing in the Lothian and Borders direction is based on consultation arrangements in place for delivering area. While it is improving the way with, and reflects the views of, national priorities in local communities. it works together with the force to local people and is well supported At the same time, an effective develop the vision and to identify by the police board, stakeholders, community engagement strategy and policing priorities, board members partners and senior managers public consultations mean that the need to develop a more consistent within the force. There remains strategy and vision are informed by and shared understanding about a risk in that the strategy is not the views of local people. In order to their role in this process. yet universally understood by ensure national priorities are delivered operational officers and staff. consistently throughout the force 24. Lothian and Borders Police each national priority has a nominated Board endorses the force’s strategic 27. The force aims to create senior police officer to ‘champion’ plan and its priorities. However, it community well-being through the force’s response to ensure a recognises the need to engage more preventing crime, responding to and strategic focus and leadership across actively in the process, as part of its investigating incidents and protecting the organisation in addition to their responsibility to work in tandem with communities, particularly the most divisional responsibilities. the force to achieve best value and vulnerable. The underlying philosophy to ensure the strategic plan reflects of the chief constable is expressed in 31. In the context of a force making the board’s understanding of the the 2011–14 strategic plan as follows: clear progress on an ambitious policing needs of local people and ‘By tackling the social issues at the strategic journey, there is a risk to communities. root of crime, we can break the cycle be managed, where some staff of offending and improve the quality have a poor understanding of the 25. The board is taking steps to of life for your community as a whole.’ force’s priorities and their role in address this and has, for example, This is a distinctive long-term vision that delivering them. The force would held strategy seminars and allocated ,together with partner agencies, seeks argue that policing is about ‘managing more time at board meetings to to deliver safety, security, protection ambiguity’ and that it is the role of discuss strategic policing matters. and confidence in communities. local managers to provide clarity This is a positive development Strong relationships with stakeholders about local priorities. While that may which reflects the board’s strong and partners underpin the long-term be appropriate, the inspection team commitment to improving how it vision and strategic direction. All local found clear examples of managers, works and how it works with the authority chief executives, police board officers and staff having failed to force to deliver policing for the Lothian members, senior police managers gain that clarity. The force needs to and Borders area. and partners we spoke to were continue to develop the understanding unanimous in their active support of the of the vision and strategy at all levels 26. However, to maximise the overarching vision and strategic intent. of the organisation, as well as the effectiveness of this approach in leadership role of supervisors and practice, there needs to be a more 28. There is strong ownership and managers in clarifying and delivering consistent and shared understanding a good understanding of the chief priorities at the front line. across board members about what constable’s policing philosophy among this aspect of their role requires. superintending ranks and senior 32. The vision, policing philosophy Board member experience and police staff managers, with less of an and overall strategic approach of the understanding varies and some understanding at middle management force is good. However, the force members reported that they are and the front line, particularly those recognises that there is still work unsure about the boundaries between not directly involved in community to do to develop performance and the role of the board and the force in policing and partnership working. resource management systems relation to policing strategy. that better reflect and support the 29. The ‘Blue Diamond’ corporate delivery of strategy, priorities planning framework (Exhibit 3) and objectives. encapsulates the philosophy of the Part 2. Corporate assessment 15

Exhibit 3 Lothian and Borders Police: vision, values, objectives and priorities CREATING COMMUNITY WELLBEING

Working together with our partners so that everyone can ...

Enjoy a good quality of life with ready access to public services

Live in safety and have confidence in their physical and legal security

Participate in decision-making and influence the services and policies that affect them

VISION Have the opportunities and support to achieve their potential and lead a fulfilling life

Look after each other and their environment through a shared sense of social responsibility

Have identity, self-respect and positive relationships

Making everyone we come into contact with feel like they matter

We act with honesty, fairness and respect in serving our communities and the individuals within them

We take pride in working within an organisation dedicated to protecting people and upholding the law VALUES We always do the right thing, take personal responsibility for our actions and strive to make a difference

PREVENTION Tackling the underlying causes of crime and harm to achieve long term sustainable solutions

RESPONSE INVESTIGATION Responding to individual and COMMUNITY Bringing perpetrators community needs by being to justice and learning accessible, engaging, delivering WELLBEING for the future and feeding back STRATEGIC OBJECTIVES

PROTECTION Providing protection and support for individuals and communities at risk of harm

Addressing community priorities National priorities - delivered locally Developing local partnership policing Specialist services and local action PRIORITIES

Source: Lothian and Borders Police 16

Governance and accountability the board has arranged seminars for that the level of support is of the members and has recently introduced right type, amount and quality. The Lothian and Borders Police Board a training directory which includes discussion should take place in the input from the force, it acknowledges context of the board’s improvement Governance is generally sound, the need for further improvements to plans, the need to strengthen scrutiny with the convener providing its arrangements for member training and against the backdrop of reducing strong and effective leadership. and development. budgets. The board needs to build on the work it has started to develop 36. The absence of induction training 39. The remit of the Audit Committee, members’ understanding of their in 2007 is significant in view of the which is chaired by a board member roles and responsibilities; more high number of new members from a political party different from focused training and development appointed to the current board at that that of the board convener, was is needed to help build members’ time; only five of the 18 members expanded in November 2010 to confidence and capacity. There before the 2007 election remained include a scrutiny function and to is scope for stronger scrutiny of on the board after the election. A take on some responsibilities of the force performance and the force’s formal induction process is now Policy and Best Value Working Group. improvement programme. in place and this has been applied While members support the ability recently in the case of two new of the Working Group to scrutinise 33. The convener demonstrates members. The board needs to more sensitive areas of police policy strong commitment to his role assess the effectiveness of these and activity, the respective roles and has a clear knowledge and new arrangements, prior to the of the Committee and Group are understanding of the strategic issues local government elections in 2012, unclear. There is also a risk that the facing the board and the force. He to ensure that members receive new expanded role of the Audit and is widely respected by other board sufficient training to allow them Scrutiny Committee may mean that it members and senior officers in properly to understand and carry out does not have sufficient time available the force and by key stakeholders, their duties at a time of significant to cover fully its two distinct functions including the constituent councils. change to Scotland’s policing. More of audit and scrutiny. He is also actively involved in policing generally, the board needs regularly to matters at a national level through his assess training needs and to ensure 40. Faced with reducing budgets chairmanship of the Scottish Police an ongoing training programme for and increasing demands and, more Authorities Conveners’ Forum, which members which is relevant, effective recently, the likelihood of restructuring reinforces his standing and credibility. and takes account of resource and of police services nationally, it is budget constraints. important that the board provides 34. The board recently sought effective oversight and challenge of to clarify its remit and debated 37. Clerking and administrative the force’s change and improvement members’ roles and responsibilities. support has been provided for a agenda. Exhibit 4 sets out the specific This has helped to develop members’ number of years by The City of scrutiny areas currently covered knowledge and understanding. The Edinburgh Council. The council also by board members. A ‘champion’ board now needs to continue this administers, on the board’s behalf, member approach was introduced work and build on it to strengthen its its Custody Visiting Scheme and its in 2007 in which board members approach in key areas including: Lay Diversity Adviser Scheme. These were given individual responsibility processes work well and contribute to for overseeing specific aspects of • contributing to and endorsing the good governance. the force’s activities, ranging from policing strategy for the area specific operational divisions through 38. In recent years, the level of officer to corporate areas such as finance. • scrutinising force performance and support from The City of Edinburgh force improvement activities Council has increased to include 41. This has worked well in some support for the board’s best value cases and has equipped members • participating in local partnership agenda. This involves professional with knowledge and understanding organisations, including members’ policy advice and analytical support of these aspects and has helped responsibilities to the constituent and, in total, equates to about one full- to develop constructive working councils that appoint them. time officer. Members recognise and relationships. However, the welcome the added value from this effectiveness of the approach 35. Many members reported that support but offered different views varies. Some areas, such as finance, they would have welcomed more on whether it was sufficient. This currently have no members allocated training and development following suggests a need for further discussion to them. Some members reported their appointment in 2007. While at the board so it can satisfy itself that they were unsure of what Part 2. Corporate assessment 17

was expected of them in these Exhibit 4 roles, including the arrangements Scrutiny areas covered by individual board members for drawing issues arising to the attention of the board. In some cases, ‘Champion’ areas: ‘Champion’ areas: Transforming members informed us that they did departments special interests the Service not consider the ‘champion’ areas as a priority compared with other Central services City centre policing Programme aspects of their work. ‘Z’ division management Best Bar None 42. A similar lead member approach Professional standards scheme Restructuring was taken in relation to the force’s TTS strategic change programme. Corporate Wildlife crime Responding to While this aspect of the lead member development demand role has improved members’ Event safety understanding of the force’s change Serious & organised Major crime plans, it has not translated into crime Child protection consistent and stronger scrutiny at Overtime board and committee meetings. As Criminal justice Domestic violence a member of the programme board, administration Prevention the convener has the opportunity Licensing to challenge the force’s plans and Support processes Custody visiting progress. Reports are also made Youth offending by the chief constable to board Lay diversity adviser People policy meetings. However, board scrutiny of TTS needs to be stronger. Finance Shared services 43. Overall, to ensure more HR & training Income generation consistent and stronger scrutiny, ICT Divisional savings members need to build greater confidence in this aspect of the role Corporate through better training and a clearer communications understanding of what is required of them. In particular, the board Operational policing needs to strengthen its approach to scrutiny of force performance and Operations ‘O’ division the force’s improvement activities. The next phase of TTS provides an Safer Communities ‘T’ opportunity for the board to build on division its arrangements and to ensure they are clear, effective and practicable CID ‘X’ division and take account of the time which members have available. Health & safety 44. The Complaints Sub-Committee Serious crime and provides good oversight of complaints drug enforcement or allegations about the conduct of agency police officers. It meets regularly, and every second meeting includes a ‘dip sampling’ process, in which Source: Lothian and Borders Police Board the committee reviews a number of randomly selected closed complaint files. This allows members to gain a good level of assurance about the rigour and effectiveness of the force’s complaint handling. 18

Lothian and Borders Police change and decision-making can chief constable leads on behalf of the be communicated in an open, chief constable in answering detailed The force maintains an effective transparent and inclusive way across questions from the police board in working relationship with the police a large geographic area and through relation to complaints and conduct board and responds positively to multiple media. matters. The Professional Standards scrutiny and challenge. The force Department has implemented new is developing its approach to 47. The force devolves a great deal practices that have cut bureaucracy, continuous improvement through of responsibility and decision-making reduced investigation times and its strategic change programme, to divisions which have traditionally improved the resolution of issues for TTS. The force communicates been managed as autonomous members of the public more speedily. decision-making in an open strategic business units. TTS has Within the management of complaints and transparent way across the involved a more centralised and cross- there is informal identification and organisation. The force has a cutting approach which, while it has dissemination of good practice and systematic approach to managing diluted the autonomy of individual learning. There is an opportunity here risk, but internal governance divisions, has enabled the force to to formalise the management of structures need to be implemented address the immediate financial organisational learning as a means to to support the force. challenges it faced in 2010/11. The furthering continuous improvement extent to which TTS will enable the across the force. 45. The force demonstrates a force to meet medium-term financial commitment to Best Value, including challenges and to maintain service Community engagement the use of self-assessment and levels through structural change is the production of a Best Value to be fully reviewed by the force. Lothian and Borders Police Board improvement plan. The Best Value However, in the short term, the framework has been adopted as force has proactively positioned itself Board members have a good the agenda structure at executive to deal with any future decision on understanding of policing matters and board level meetings which are policing structures in Scotland, by and priorities in their local areas. often attended and supported by the making necessary reductions to the There is scope for the board to share convener. The force also benefits workforce and changes to the way the learning from existing good from non-executive support and lay it operates. practice across the board area. advisers both of whom add value to the governance of the force by way 48. The force has a systematic 50. Board members demonstrate of external assurance, guidance and approach to managing risk, but a good understanding of policing- wider experience and perspectives. recognises there is room for related issues in their area and Relationships with the police board, improvement. Internal governance what local people most expect from lay advisers and non-executive structures are currently being revised the police. There is also evidence directors are appropriate, challenging and centralised into a new review of strong working relationships and valued by the force. and coordination function entitled between board members and their Business Assurance. The intended local commanders and other local 46. The principles of continuous function of Business Assurance is senior and frontline police officers. improvement, efficiency and to work with, and provide support There is scope for the board to make effectiveness are well embedded to, senior management teams and more effective use of feedback from in the TTS programme and are a to report on issues of compliance, community engagement to inform its central consideration in each of audit, inspection and efficiency and contribution to strategy development the programme workstreams. TTS effectiveness. In the context of and its scrutiny of force performance. includes the convener and vice- the prevailing leadership ethos of Currently this type of activity is conveners as members of the autonomy and devolved responsibility, limited to reporting the force’s formal Governance Board. In addition, a how the relationship between the customer survey at a force-wide level. member of the force Executive leads Business Assurance section and the on each strand of the programme, divisions will be managed is unclear at 51. The board recognises the need ensuring there is strong oversight this time. to develop its role in overseeing the of the work and responsibility at force’s community engagement executive and board level. In addition 49. The force shows some good activities. There is an outstanding to these clear lines of accountability, progress in developing the scrutiny, (and overdue) commitment in its the TTS communication strategy management and handling of Best Value improvement plan for stands out as an example of how complaints against police.2 The deputy the board to examine more closely

2 The inspection team did not examine individual cases, which fall within the remit of the Police Complaints Commissioner Scotland, but have made some general observations about performance in this area. In this regard, a report of an audit of all eight police authorities in Scotland was published by the Commissioner in March 2011: Holding to Account: an audit of police board and authority capabilities. Part 2. Corporate assessment 19

how community engagement and Similarly, the force has maintained Partnership working and partnership working is used by its commitment to community community leadership the force to improve its targeting policing despite budgetary constraint of resources and deliver better elsewhere and this remains a high Lothian and Borders Police Board outcomes. This is particularly priority area for this force. There important in view of the wide variation remains a risk to this commitment The board acknowledges the need in approaches employed by the force across the force, with potential to develop further its approach in its territorial divisions and the consequences to the success of to partnership working. It needs opportunity this offers to share the community policing in Lothian and to develop further its links with learning from innovative and effective Borders, should either local authority local partnerships, ensure greater community engagement. or police budgets be reduced consistency in its participation further and the force should plan in partnerships and improve its Lothian and Borders Police contingencies to help mitigate against oversight and scrutiny of force any such eventuality. partnership working. Community engagement is an area of strength for Lothian and 54. There is a strategic challenge 56. The board recognises the need to Borders Police. The force approach in managing community policing strengthen its approach to partnership to community policing is widely within a highly autonomous and working, and is taking steps to develop regarded and supported by key devolved police structure. The force its links with local community planning stakeholders and partners. The has made significant investment partnerships (CPPs) and constituent force operates a comprehensive in understanding the needs of councils. This includes considering community policing model and different communities through reports on community planning engagement strategy, tailored to engagement and analysis as evident activity in specific council areas and the particular needs of each local in the production of detailed ward meetings involving the convener, the authority area. and community profiles. How the chief constable, community planning local delivery of community policing partnerships and council leaders. The 52. The inspection team consistently is connected to the strategic board also produces newsletters for found evidence of excellent working management of performance is less use by board members to support relationships between local command clear. The force is actively reviewing members’ on-going dialogue with their teams, neighbourhood policing teams how it will manage the delivery of local CPPs. and local authority partners. The community policing priorities at force, force has a comprehensive divisional and neighbourhood levels. 57. However, there is scope to community policing model and In general, police involvement in develop these arrangements. In engagement strategy, tailored community planning arrangements, particular, the board does not consider to the particular needs of each including the design and delivery performance information on relevant local authority area. In 2010, the of SOAs, were found to be of a aspects of CPPs’ SOAs or local force launched its Community high standard, with strong local community safety strategies. There Commitment initiative to improve authority involvement at tactical is also limited evidence of the board public consultation and engagement and practitioner level. In some critically examining and learning from in setting local policing priorities. instances SOA targets could be more different approaches to partnership There is clear evidence of community challenging and locally focused. working across the five constituent planning structures and processes community planning partnership improving with a greater focus on 55. The force employs a range of areas. In view of the force’s drive for listening to local communities, for methods to inform the community flexibility in local partnership working example through citizen panels, when about its services and performance. to meet local needs, the board also shaping and delivering against single Accessibility to information has needs to ensure better oversight of outcome agreements (SOAs). recently been much improved by the the force’s activities and ensure that implementation of a new website. good practice is shared across its area. 53. Local authority chief executives The website allows members of and councillors unanimously support the public to identify their local 58. Links between the board and local the force’s approach and are keen community policing teams and to community planning and community to continue funding community obtain crime information relevant to safety structures are inconsistent. officers because of the tangible their communities through a postcode The board is taking steps to review, benefits to entire communities in search facility. strengthen and develop its approach terms of reduced crime and disorder. and arrangements. A coordinated and systematic approach offers 20

the potential for more effective community safety partnership Exhibit 5 working which would further enhance Midlothian Community Safety Team board members’ understanding of the policing needs and response in The Midlothian Community Safety Team includes seconded police officers, local communities. local authority liaison officers and funded Community Action Team officers who won a ‘highly commended’ award at last year’s Scottish Policing Lothian and Borders Police Awards. The Community Safety Team, supported by Midlothian Council, has had a significant impact on reducing incidents of antisocial behaviour in the Lothian and Borders Police works area. Since 2008, vandalism in the area has been reduced by approximately effectively with a range of strategic 40 per cent, accompanied by a decrease in calls to the council’s antisocial and tactical partners with a view to behaviour helpline. In addition, the partnership analyst compiled the enhancing community well-being. Midlothian Community Planning Strategic Assessment, the first of its The force actively collaborates kind in Scotland and one that links the five Scottish Government strategic with other partners to achieve objectives to the local Community Planning Partnership and identifies efficiencies and improved outcomes. opportunities and areas for action between partners. There are some examples of good practice in this area, with some Source: HMICS room to improve further the sharing of information and good practice among partners. 61. The Delphinus Group and 63. It is not clear how the force Operation Focus were both routinely reviews and evaluates 59. Within the force leadership highlighted in the Scottish Police the impact and effectiveness of ethos, partnership working is key to Awards 2010 for excellence in partnership working. Neither is delivering community well-being. At partnership working. Operation there clarity about how resources a strategic level Edinburgh Lothian Delphinus was commended for being are committed to partnerships to Borders Executive Group (ELBEG), the first partnership of its kind in ensure the right skills mix, including comprising the chief executives of Scotland to recognise that national access to appropriate analytical each of the local authorities, meets to security initiatives can be effectively skills. The force has the potential provide collective leadership across delivered through a multi-agency to enhance partnership working the policing area. approach involving key partners in the and build on existing excellence, by public, private and voluntary sectors. strategically managing the resources 60. The inspection team found Operation Focus was also highly and performance of partnerships, evidence of excellent and effective commended for taking a partnership collaborating further on the sharing partnership working across the force, approach to tackle the illegal supply and analysing of information and but also some weaknesses. The of drugs in West Lothian. A six- evaluating and disseminating best most successful partnerships were month intelligence exercise not only practice across the partnerships. characterised by strong relationships led to 63 people being arrested, but between police and partners, good was supported by a sophisticated Performance management and information-sharing arrangements, community reassurance response, improvement dedicated analytical support and a involving NHS Lothian, West Lothian clear impact on crime and disorder. Council, West Lothian Drug and Lothian and Borders Police Board Exhibit 5 shows a good example in Alcohol Service and a number of the Midlothian Community Safety voluntary groups. The board’s Best Value Team. Other partnerships were improvement plan demonstrates found to be less effective. There 62. Also of particular note in Lothian a good self-awareness about were a number of instances where and Borders is Operation Amethyst, what it needs to do to improve partnership working was hampered delivering a high-quality multi-agency and develop. The board receives because of a lack of analyst support public protection service. Public good-quality information on force or from access to partner information. protection arrangements in force are performance but gaps exist. The Senior police managers articulated very good, with a well-informed and board needs to be more consistent how some partnerships would benefit joined-up approach to effective multi- in scrutinising the force’s from better information sharing and agency operations. Amethyst was performance and its progress use of analytical assets. referred to by managers when citing towards longer-term objectives. how other areas of policing might benefit from a multi-agency case conference approach, for example in the management of violent offenders. Part 2. Corporate assessment 21

64. The board’s Best Value • customer opinion information Lothian and Borders Police improvement plan sets out what is considered on a formal basis it needs to do to improve and by the board only at force The force provides balanced develop. The plan was adopted level, without a breakdown of performance and improvement in August 2010, based on a self- information on a divisional basis reports to the board. The force assessment exercise carried out performance management earlier that year. It provides a focus for • there is limited cost-related framework is being developed improvement and development and information. The Best Value to demonstrate a clearer focus has helped to support an increase in improvement plan includes a on prevention outcomes and to the pace of change. commitment to explore the support the creation of community police objective analysis model well-being through partnership 65. The plan (summarised in Exhibit of information reporting, which working. Currently there are 6, overleaf) demonstrates good supports consistent recording and gaps in the way performance is self-awareness but there is scope analysis of expenditure. managed at force, division and for clearer objectives, targets and neighbourhood levels. The force timescales. The plan is nearing the 67. Board members question and recognises the need to develop end of its term. Most of its objectives challenge senior police officers on a comprehensive performance have been achieved and action is the information provided by the management system that better planned in other areas. The board force. They are supported in this by integrates service planning and now needs to consider what it briefings and analysis provided by delivery of its policing philosophy needs to do to maintain momentum, The City of Edinburgh Council support and intended strategic outcomes. in the context of likely changes in officers. However, in some cases, policing structures in Scotland. One the level of debate and detailed 69. The force performance comprehensive action plan covering questioning is inconsistent and can management framework, the all areas of development and including often focus on specific observations Performance Activity Monitoring improvement points from this audit from individual members about (PAM) process, was originally designed and inspection will help maintain performance in their divisional areas, to manage strategic and tactical focus and direction. rather than force performance overall. performance. The Strategic PAM Some members’ lack of clarity about meetings were held every three or 66. The quality of performance the respective roles of the full board, six months and were forward looking, information presented by the force its committees and working groups with the aim of identifying future to the board is good but there also contributes to inconsistency challenges and needs for each division. is scope to develop this further. in scrutiny. Some members can be The Tactical PAM dealt with individual Current information is based on unclear about what is appropriate divisional performance, how tactical indicators from the Scottish Policing to raise in each forum and can lack plans and initiatives were progressing Performance Framework (SPPF). confidence to contribute. Debate and how the Executive could better The board considers a ‘dashboard’ of and detailed questioning can also be support the division. selected key performance information limited by the amount of business to and an accompanying summary be covered at board meetings. 70. The PAM process was regarded report, while the Audit and Scrutiny by many managers as ‘passive’, not Committee considers a more detailed 68. The vision for policing adopted driving local activity and containing report. However, there are some gaps by the board and force centres gaps, for example the absence of which, if filled, would give the board on community well-being through effective performance metrics relating a fuller overall picture of performance prevention and protection and to specialist divisions. and better support performance involves outcomes which are by scrutiny. For example: their nature longer term. The board 71. During the inspection period the needs to ensure its scrutiny activity PAM process was subject to an internal • there may be scope for a focuses on both the force’s progress review by the force. Senior managers more systematic, comparative towards those long-term objectives commented that a new approach performance analysis to compare and the force’s current performance needs to reflect what the force is and contrast force performance in delivering police services, including seeking to deliver at neighbourhood, over time. There may be the force’s performance in improving partnership, divisional, force and opportunities further to extend this user satisfaction and crime detection national levels. Although responsibility approach to compare and contrast rates and reducing crimes of violence. for community priorities clearly sits with other police forces with divisional commanders, there is room to improve the link between performance management and intelligence at all levels of the force. 22

Exhibit 6 Lothian and Borders Police Board: Best Value improvement plan

Vision and strategic direction Community engagement • Report on Community Planning and Community Safety strategies to be • More active involvement of board • Report high-level results from presented to the board. members in debate on priority consultation and community setting, and for the board to take engagement. • Scope to give customer satisfaction a more active role in agreeing and and customer response information • The board should also examine owning a vision for local policing. a higher profile in the board’s more closely the extent and impact performance monitoring activities. • The board should participate of community engagement on more intensively in the ongoing policing outcomes. • Present unit cost information to process to develop a vision and board alongside performance • The board should satisfy itself that strategic priorities for policing, in information. relevant information is provided in conjunction with the force (more appropriate languages and formats. • Improved performance information proactive involvement in the force’s at the local level. Organisational Strategic Assessment • The board website should be process). updated to reflect an enhanced • Scope to increase the extent of emphasis on accessibility. scrutiny of performance information. • Include specific items/opportunities on board agendas to enable (and Governance and accountability Use of resources evidence) debate on the balance between national and local risks • Improve publicity for board meetings • Enhanced involvement in the budget and issues. and papers through the website and development process through related communications activities. involvement of members in informal • Stronger links with other police seminar event on setting priorities. boards through Conveners’ Forum. • Scope to promote more active debate on performance against • Board to develop its own risk register • Prepare and present a suite of service standards. through the Audit Committee. reports on the main aspects of policing strategy. • Prepare and agree formal protocol • Completion and presentation of to define member/officer roles and financial management strategy to • Improve level of contact between responsibilities. board. board members (other than convener) and senior force officers, • Make systematic provision of training • Presentation of workforce plan/ and scope to extend the board’s available to members who require this. strategy to board. ability to challenge and scrutinise • Recording of business should within a context of productive • Reports on strategic overview of ICT consider the need to take account of working relationships issues, developments and priorities scrutiny and debate. to board. Partnership working and community • Targeted use of media to promote • Post investment appraisal of West leadership board activities. Lothian Civic Centre to be provided. • Regular reporting to board as to • Brief chief constable’s report to each Equalities and sustainability what is being achieved through board meeting. partnership working, eg community • Systematic reports on all aspects of • Programme of member visits to key safety partnership activity force activity on equalities, including police personnel. • Scope to develop the role of the performance and compliance, should • Restructure Policy and Best Value board in this area through individual be made to the board. Working Group along Scrutiny members’ own local partnership • There should be an annual strategic Committee lines. activities and through enhanced report on equalities issues and relationships with partnerships and performance across the force. community planning structures. Performance management and improvement • The board’s action plans for 2008/09 • Meetings/interface with Community should be reviewed and updated. Planning Partnerships • Regular report on risk management and human resources, IT, information • Meetings with council leaders. and property management performance.

Source: Lothian and Borders Police Board Part 2. Corporate assessment 23

72. There is a general desire across proposals under the next phase of that a number of actions to improve the force to become more focused TTS or its successor. systems are being implemented on outcomes in any new performance by managers in the force. For management framework. The force 75. The board approved the force’s example, consideration is being has developed a strong sense of corporate asset management plan given to providing more information outcomes and what success looks in June 2010, and considered an to members on project phasing like in terms of prevention, safety, update report in June 2011. This is and potential slippage in the capital security and reassurance. It now an important area of activity for the investment programme. Steps needs to develop internal systems force as it considers further service are also being taken to develop a that better reflect, support and drive improvements and savings. The comprehensive fixed asset register. activity to deliver the strategic intent board needs to be more aware of the and thus to better demonstrate force’s estate strategy and provide Lothian and Borders Police improved outcomes. stronger scrutiny and challenge of the potential impact on its communities Through TTS the force continues 73. In the meantime, the force and on policing services. to identify opportunities to reduce continues to provide balanced cost and improve effectiveness. performance and improvement 76. The board has an Appointment The force has maintained police reports to the board. Moreover, senior and Remuneration Committee officer numbers and reduced management teams engage positively which appoints and selects chief police staff and needs to continue with local authority partners in the police officers and agrees levels of to manage these competing performance management of SOAs at increments and bonuses for senior challenges to achieve a balanced the local level. officers. However, its oversight of workforce and a clearer link wider force people management between priorities and resources. Use of resources issues is limited. In June 2011, the board noted its interest in the 78. Under the Scottish Government’s Lothian and Borders Police Board force’s human resource strategy Efficient Government Programme, 2011–14. This sits alongside the TTS Lothian and Borders Police was The board has good arrangements programme, but in common with required between 2008/09 and for overseeing force finances other aspects of that programme, 2010/11, to achieve cash-releasing but scrutiny of other aspects of the role of the board in shaping the efficiency savings of six per cent of strategic resource management strategy is unclear. In view of the the 2007/08 budget. Savings were such as property assets and human impact of TTS on the shape of the retained by the force and reinvested. resources, is underdeveloped. workforce, and the implications of Exhibit 7 highlights the force’s this on operations, it is important that performance over the last three 74. The board’s arrangements for the board provides stronger scrutiny financial years. The target in 2010/11 oversight of force financial planning and challenge. was met, partly through the efficiency are effective. It approved a three-year savings programme and latterly by budget in January 2011, through a 77. The board’s external auditors the TTS programme which delivered process involving council leaders, review the governance arrangements a further £1.75 million savings in the council heads of finance and board and main financial systems. Their financial period. members. Further improvement and overall conclusion was that the development of the board’s role in board has adequate systems of 79. The reduction in the force’s overseeing the force’s finances will internal control in its oversight of budget for 2011/12 incorporated a need to take account of the force’s force resources. The auditors state 2.6 per cent reduction in Government

Exhibit 7 Lothian and Borders efficiency savings (2008/09 – 2010/11)

Year 2008/09 2009/10 2010/11 Total Actual 4,077,914 8,094,104 7,508,726 19,680,744 Target 3,088,000 6,176,000 9,264,000 18,528,000

Source: Lothian and Borders Police 24

Grant and a 3.1 per cent reduction following damage only accidents; and priority, in accordance with the in council requisitions. The overall improved use of airwave technology; specific requirements in terms of net reduction of 2.8 per cent will be and low-level crimes being recorded achieving the force strategic objectives met from 107 members of staff who and finalised at the time of reporting. and priorities.’ successfully applied for voluntary redundancy, reduced overtime, 82. TTS has proved to be a robust 85. The force is investing in a Quad reduced running costs, savings and effective change methodology, Force Project involving Central delivered in staff terms and conditions including managing the personal Scotland Police, Fife Constabulary, and the release of £1.8 million from impact on staff and morale. Tayside Police and Lothian and reserves. As the voluntary redundancy People plans and a highly effective Borders Police, which is exploring programme take effect, together communication strategy went some ways of collaborating and sharing with the range of efficiencies and way to including and preparing the operational and support services. The improvements identified, the 2011/12 workforce for some very difficult working party is chaired by the deputy financial position will need to be decisions around reducing posts and chief constable of Lothian and Borders closely monitored to ensure delivery staff numbers. Overall, the voluntary Police and the force is taking the lead with a minimal impact on service. redundancy process was managed in developing cross-force collaboration well with union and staff association on firearms and roads policing. The 80. TTS was set up to identify and involvement at all stages of the aim is to secure efficiencies through deliver value in terms of efficiencies process. As the impact of the TTS better deployment of police and and effectiveness and to that extent change programme takes effect in police staff across the four forces, as can demonstrate some success. The 2011/12 the force will need to continue well as cashable savings. The force introduction of the Major Incident to manage the competing challenges believes this work is complementary Team is a good example of the force’s of a reducing budget, reduced police to moving towards any new structure planning to make significant savings staff numbers and maintaining police for policing in Scotland. and producing the potential for officer numbers, towards achieving a greater capacity and capability in the balanced workforce. 86. Lothian and Borders Police management of serious crime. The currently has the lowest ratio force is planning to cope with current 83. Prior to TTS, the force conducted of special constables to regular levels of demand with 65 fewer a programme of evaluations under a constables in Scotland. This is staff. This includes the absorption Resource Allocation and Deployment equivalent to one special for 17 of the Serious and Organised Crime Review. During the TTS process, a constables (ie,177 special constables), Unit (SOCU), introduced to deal more centralised Resource Oversight compared to the national average of with serious and organised crime in Group has been set up to manage one special to 11 officers (equivalent Edinburgh, and now centralised within staff reductions and redeployments. to 272 special constables for Lothian the Crime Division to cover Edinburgh However, the link between priorities and Borders). Within Lothian and and across the rest of the force. The and resource allocation in the force Borders Police the generic default extent to which that aspiration is remains unclear. This is a complex role of a special constable is to align achieved should be fully evaluated area and there is a need to ensure a to a response team for an area. in due course, as should the impact link between the TTS work and the From research it was found that in terms of cost and effectiveness in historic basis for resource allocation other Scottish forces utilise special coping with crime in the Edinburgh in Lothian and Borders Police. constables in a different manner, Division with fewer CID resources. The force should seek to ensure utilising their local knowledge and a comprehensive oversight and life skills as an effective and efficient 81. The TTS ‘Responding to Demand’ collective understanding as to how alternative deployment of their special stream is a good example of the resources and demand are matched constables. A working group has force looking for more effective across the organisation and to been set up to look at the role of ways of working. Focusing on strategic priorities. special constables. The role profile the management of the force of special constables has been Communications Centre, the force 84. Senior managers commented that changed and standard operating identified a number of critical areas current division resource levels are procedures introduced to improve the for improvement. These include based on historic convention rather deployment of officers to response developing an appointment system to than need. The inspection team noted and community incidents. An deal with the majority of non-urgent that one of the principal priorities in the evaluation of this is work-in-progress calls; a proportionate enquiry policy to force HR strategy for 2011/12 is ‘To will be provided to the police board in reduce unnecessary work, including support the reallocation of resources January 2012. the removal of the need for enquiries across the force based on demand Part 2. Corporate assessment 25

87. Since 2004, the force has had increasing workload associated and the force Diversity and Equality sight of five reviews and two scrutiny with, for example more demanding Reference Group. Each division has a reports addressing consistent professional standards and testing diversity champion at superintendent issues relating to its analysts. The equality impact assessments. and police staff equivalent. The force latest report under TTS presents has been recognised as the top the force with the opportunity to 91. The lay adviser scheme is a performing public sector diversity rationalise supervisory structures for useful asset but there are risks that champion in Scotland by Stonewall. analysts, benefit from interoperability this resource could be overstretched and to improve further the overall and lose its effectiveness, particularly 95. The force recently recognised intelligence effort. as it is seen as a resource for both and publicly apologised for a series board and force. Work is needed of failings during a high-profile case. Equalities to establish a clear and shared These included a lack of relevant understanding of its role, and how training of the senior investigation Lothian and Borders Police Board demand for its services will be team and a failure to take account of managed and planned for the future. individual perceptions that the incident The board is taking action to was racially motivated. The force improve its engagement in Lothian and Borders Police response to the issues arising from equalities issues, but has not yet the case demonstrates the force’s done enough. The Lay Diversity The force demonstrates strong willingness to challenge itself, to Adviser Scheme is effective, but its leadership and good practice in learn and to make improvements to effectiveness may be at risk due to the management of equality and the policing of diverse communities demand pressures. diversity. An outcome approach to during critical incidents. the measurement of equality and 88. The board recognises that there diversity has recently been adopted, 96. The force is moving towards an is scope for better strategic oversight but it is early days in this regard. outcome focused approach to the of equalities issues. The Best Value measurement of equality and diversity improvement plan has a limited 92. Diversity was found to be well together with an updated diversity and number of high-level actions in place embedded in operational policing, equality action plan that reflects the to this end, including the requirement with police managers citing the use provisions of The Equality Act 2010. on the force to report on its equality of equality-impact assessments and The force is currently undertaking activity. The board is also committed engagement with lay advisers as internal and external consultation to producing an annual strategic business as usual. The lay adviser role with a view to determining equality report on equalities. However, the has been extended to include input priorities and each division has board needs to clarify what strategic on policy, practice, critical incidents, identified diversity outcomes and oversight means in practice. scrutiny of hate crime and advice on measures in conjunction with local diversity issues. Lay advisers remain communities and partners. While it is 89. Currently, both the equalities independent and report to the board. too early to determine the success of information considered by the board They continue to be a valued asset to this approach, the force will ensure and member awareness of the the force. a corporate overview of equality and board’s equalities responsibilities is diversity is maintained through its limited. Overall, there is scope for 93. The force’s senior management strategy and reference groups. increased ownership of the equalities demonstrate clear leadership of and diversity agenda. This is an equality and diversity, gaining national 97. Diversity training in the past has example of an area where training and recognition. been highly regarded within the development is needed. force, but now that some officers 94. The Force Diversity Seminar in last received their training six years 90. The board has a Lay Diversity 2010 included a cross-section of the ago, there is perhaps a need to revisit Adviser Scheme, which is used force, lay advisers and the board in and refresh diversity training in the by both the board and force. Lay helping to shape the force’s diversity force, incorporating recent changes advisers report annually to the priorities. The executive are visibly in legislation, good practice and board on engagement with diverse engaged with equalities with the organisational learning. The force has communities, and on how the chief constable personally chairing recognised the gap and the deputy force manages hate crime and the force Diversity and Equality chief constable is leading a national critical incidents. In 2010, the board Strategy Group and the deputy chief project team to address the issue. agreed to increase the number of constable assuming national lead for advisers from 12 to 16 to meet Diversity and Equality in Scotland 26

98. The force has had limited success Lothian and Borders Police in recruiting officers from black and minority ethnic groups, although There has been good recent it has better success in recent progress made in the force years in increasing the proportion developing its approach to of female officers. The financial sustainability, particularly in relation cutbacks, voluntary redundancy to carbon management and programme under TTS and police sustainable procurement. officer recruitment freeze in 2010 collectively had the potential to have 101. The force has taken steps to a disproportionate impact on female promote sustainability policies and staff members, but the force staff practices that demonstrate some profile has not suffered significantly. evidence of good practice. The force However, police staff absence rates is committed to the UK Climate have increased slightly and the force Change Programme by acting to should consider closely monitoring reduce the emission of greenhouse and managing the issue as the gases as evidenced by the full impact of change and reform introduction of energy efficient boilers continues to be felt. across the force; the setting up of a contract to purchase renewable Sustainability energy through the Scottish Government; and the introduction Lothian and Borders Police Board of bio-diesel fuel cars to replace petrol-driven vehicles. The board does not have a systematic approach to sustainability, 102. A sustainable travel policy is also but it has recognised that it needs in place to reduce unnecessary travel, to do so. including the introduction of and use of video-conferencing facilities 99. The board’s consideration of available at force headquarters. sustainability has been very limited, but the convener has recognised this 103. The force is attempting to by requesting information from the rationalise the management of waste force on how to establish sustainable by reducing the amount disposed of practices across force activities. The and, where possible, recycling. This chief constable has subsequently set includes a waste segregation scheme out how the force would develop introduced at force headquarters and a more strategic approach to where non-food waste across the force sustainability. This is largely based on is sent for recycling and food waste is environmental sustainability rather sent for recycling as compost. than a wider definition encompassing, for example, financial or social sustainability. Nevertheless, increased board involvement in sustainability issues is evident from it considering reports on carbon management and sustainable procurement.

100. There is scope for the board and force working together to think about longer-term aspects of policing in Lothian and Borders. This can be taken forward as the board and force develop a more collaborative approach to strategic planning and priority-setting. 27 Part 3. Lothian and Borders Police performance assessment 28

Performance outcomes Exhibit 8 The force continues to Recorded crimes per 10,000 population 2007/08 – 2010/11 demonstrate improved outcomes for its communities with year- 700 2007/08 on-year reductions in crime and 600 2008/09 disorder. The force delivered a 7.2 per cent reduction in overall 500 2009/10 crime in 2010/11. There are some 400 areas for improvement, including 2010/11 an increase in serious crimes of 300 violence and crime detection and service user satisfaction rates 200 which have remained static in 100

Lothian and Borders. ecorded crime per 10,000 populatio n R 0 Recorded and detected crime Fife Central Tayside Northern Scotland 104. The force performed well Grampian Strathclyde against force and national priorities Lothian and Borders for 2010/11 including Drug and Dumfries and Galloway Alcohol Misuse, Terrorism, Antisocial Behaviour, Serious Organised Crime, Public Protection, and Citizen Focus Source: Lothian and Borders Police/HMICS and Reassurance.

105. Specifically, the force achieved an eight per cent reduction in groups Exhibit 9 1 to 4 crime, which is 4,572 fewer Detection rates 2007/08 -– 2010/11 crimes. The previous four years has Detection rates for crime groups 1–4. seen the ratio of crimes per 10,000 70 population fall from 644 in 2007/08 to 2007/08 531 in 2010/11 (Exhibit 8). 60 2008/09

106. In 2010/11, the force detected 50 2009/10 33 per cent of all crimes recorded in 40 2010/11 the groups 1 to 4 crime categories which was no change from the 30 Percentage

previous year. Force performance 20 in detection of crimes has been generally consistent over recent 10 years. When compared to other 0 Scottish forces, the force has the Fife second lowest detection rate of the Central Tayside Northern Scotland eight Scottish forces. In general, Grampian Strathclyde forces like Lothian and Borders that Lothian and Borders include larger city areas face greater Dumfries and Galloway challenges in detecting crime. Overall, an eight per cent reduction in group 1-4 crime while maintaining the Source: Lothian and Borders Police/HMICS detection rate is good performance. However, there is still room to improve detections to effect a positive direction of travel within force performance. Part 3. Lothian and Borders Police performance assessment 29

107. Crimes of violence (group 1) in 111. There were 1,283 fewer crimes for the decrease in the number of 2010/11 increased by 267 crimes from of dishonesty (group 3) in 2010/11 crimes recorded. At 109.7 crimes the the previous year. This represents than in the previous year. This three force’s rate per 10,000 population is a seven per cent increase on the per cent year-on-year reduction is lower than the 130.1 for Scotland as average of the previous three years. matched by a seven per cent fall a whole. As a consequence, the force’s level on the previous three-year average. of violent crime per 10,000 population The main drivers behind the fall was 115. The force experienced a fairly was the second highest in Scotland, a drop in thefts by housebreaking sizeable reduction in miscellaneous at 21.6 per 10,000 population. The (dwelling), which saw 101 fewer offences (group 6), with numbers increase in violent crime is not crimes recorded in 2010/11, and in 2010/11 down 15.2 per cent on dissimilar to the trend seen in most in thefts and attempted thefts by the force’s previous three-year other Scottish forces. However, opening lock-fast place with intent, average and equivalent to 2,489 within group 1 and 2 crimes there which was down by 15 per cent over fewer offences. is a concern about the increase in the same period. Fraud, in contrast, the most serious crimes of violence rose by 11 per cent, but a change in 116. This year also saw a reduction including a doubling in the number of the national counting rules for fraud in group 7 road traffic offences murders recorded, increases in serious may well have had an impact in the of almost 10,000, from 62,350 in assaults and robberies of 15 per cent number of crimes recorded. 2009/10 to 52,083. and five per cent respectively and an increase in the number of rapes by 32 112. The force has been successful Violence from the previous year. in reducing levels of vandalism, fire- 117. The force saw violent crime raising (group 4), with numbers down rise by 15 per cent between 108. The detection rate for crimes by 3,398 crimes. This is a reduction of 2009/10 and 2010/11. The rise of violence went up during 2010/11, 26 per cent on the three-year average was driven by increases in murder, from 62 per cent to 67 per cent. and brings its rate per population attempted murder, serious While this represents an eight down to 153 per 10,000 population, assault, robbery and threats and percentage point rise on the previous lower than the 158.7 for Scotland as extortion. While we acknowledge a three-year average recorded by the a whole. Contributing to this overall corresponding improvement in the force, it remains below the Scotland- reduction is a 19 per cent year-on-year detection rate – from 62 per cent wide detection rate of 72 per cent. fall in vandalism, which is equivalent to 67 per cent – such an increase The force’s detection rate for murder to 3,066 fewer vandalisms. in violent crime nevertheless poses alone was 95 per cent. a challenge to the force and is in 113. The overall detection rate for contrast to the reductions or minor 109. For crimes of indecency group 4 crimes fell in 2010/11 increases exhibited by the other (group 2) the force recorded a by 2.6 percentage points, from forces in Scotland. The aggregate reduction of 157 crimes on the 25 per cent in 2009/10 to 22 per figure for Scotland as a whole previous year and a six per cent cent. This is lower than both the shows an increase of 217 violent reduction when compared with the force’s previous three-year average crimes, whereas Lothian and Borders previous three-year average. Its rate detection rate of 25 per cent and the Police alone shows an increase of of crime per 10,000 population for Scotland-wide detection rate of 267 crimes. this category is lower than that for 25 per cent. The force’s detection Scotland as a whole, at 11.1 and rate for vandalism alone fell from 118. This increase in violent crime 12.6 respectively. 24 per cent in 2009/10 to 21 per cent was found in almost all of the in 2010/11. force’s divisions, each of which was 110. The detection rate for crimes of taking action to tackle the problem indecency was slightly down on the 114. Group 5 crimes include drugs through divisional tactical tasking and previous year, from 68 per cent to 66 and other crimes, a large proportion of coordinating meetings. We also found per cent. This is virtually identical to which come to the attention of forces some good examples of partnership the Scotland-wide detection rate of through proactive policing methods. initiatives, such as the Edinburgh just under 66 per cent. The 2010/11 This year the force saw a reduction in Violence Reduction Project, although detection rate for rape was below that these crimes, from 10,422 in 2009/10 we were concerned that the recent achieved in the previous year, down to 10,298. However, the method for loss of an analyst post for this project from 61 per cent to 55 per cent. recording these crimes was changed may have a negative impact on its nationally in September 2010 and ability in the long term to identify this may provide some explanation trends and solutions. While there is 30

a violence reduction strategy in place and evidence of action by divisions to Exhibit 10 address the increase in violent crime, User satisfaction 2007/08 – 2010/11 there is some concern around the ‘Satisfied’ or ‘fairly satisfied’ about how dealt with. absence of a coordinated, force-wide approach to tackling violent crime. 100 2007/08 For example, the force might benefit 90 2008/09 from corporate level management of 80 violent offenders. 70 2009/10 60 Antisocial behaviour 2010/11 50 119. The force identified antisocial

Percentage 40 behaviour as one of its priorities in 2010/11, supported by its overarching 30 strategic commitment of ‘Creating 20 Community Well-being’. In 2010/11, 10 it recorded 9,237 antisocial behaviour 0 community crimes and offences, Fife Central Tayside which represented a reduction of Grampian Strathclyde 24 per cent on the previous year compared to a Scotland-wide Lothian and Borders decrease of 19 per cent over the Dumfries and Galloway same time period. The force attained a detection rate for this category of Source: Lothian and Borders Police/HMICS 91 per cent, which was slightly down on the previous year but remained slightly higher than the Scotland-wide detection rate of 89.9 per cent. the force should continue to make 124. During 2010/11, the force efforts to continuously improve in this received 656,731 non-emergency 120. The force recorded 58 fewer important area of performance. calls and 115,602 999 emergency racist incidents and 41 fewer racially calls. The force’s ratio of 999 calls motivated crimes and offences in 122. Exhibit 10 shows the levels per 10,000 population was 1,231, 2010/11. This was a greater reduction of user satisfaction with the overall higher than the Scotland-wide figure than found across Scotland. The way Lothian and Borders Police dealt of 1,185 per 10,000 population and force detected 62.3 per cent of with matters between 2007/08 and the second highest of the eight racist crimes which was down from 2010/11. The figures indicate that the Scottish police forces. 68 per cent in the previous year. This force’s performance has declined or was lower than the Scotland-wide remained static over this time. The 125. The proportion of 999 calls detection rate of 66 per cent. 2010/11 overall satisfaction figure answered within ten seconds was for Lothian and Borders Police is 96.1 per cent in 2010/11, which was Service user satisfaction 75 per cent. higher than the Scotland-wide statistic 121. The force has placed community of 94.7 per cent (Exhibit 11). Similarly well-being at the heart of its policing Call handling the percentage of calls responded philosophy and has promoted 123. Performance on call handling has within the force’s target time was a commitment to working with been consistently high for the force 95.6 per cent which was the highest local communities and delivering when compared to other forces in performance of those forces who a citizen-focused policing service. Scotland. The force’s Communications provided returns. The satisfaction with this is found Centre near Edinburgh has robust in public satisfaction surveys carried processes that have ensured calls 126. In relation to non-emergency out by all forces and reported via from members of the public are calls, the proportion of these calls the Scottish Policing Performance answered promptly and dealt with answered within 40 seconds was Framework. Due to differences in to a high standard. It has in place a 98 per cent which was significantly survey methodology, comparisons detailed performance culture that higher than the Scotland-wide between forces have to be treated ensure performance is monitored and performance of 90.2 per cent. Again, with caution. However, while differing measured for the centre as a whole, the force was, by some distance, the survey standards preclude the as well as examining the performance highest performing force in Scotland opportunity for any valid comparison, of individual members of staff. in this category. Part 3. Lothian and Borders Police performance assessment 31

Exhibit 11 Call handling Percentage of 999 calls answered within ten seconds.

100 2007/08 98 96 2008/09 94 2009/10 92 90 2010/11 88

Percentage 86 84 82 80 78 Fife Central Tayside Northern Scotland Grampian Strathclyde

Lothian and Borders Dumfries and Galloway

Source: Lothian and Borders Police/HMICS

127. While the force performed Conclusion well in relation to call handling, force 130. Overall, the force is delivering performance in actually attending the a good level of service to the most urgent category of calls was communities within Lothian and 87 per cent, falling short of the Borders, most notably in a year- national target of 90 per cent of calls by-year reduction in crime and call attended with ten minutes in urban handling. However, there are areas areas and 20 minutes for rural areas. where performance improvement has not been achieved in recent Complaints about the police years, particularly when compared to 128. In 2010/11, the force recorded other Scottish forces where there is nine complaints per 10,000 population evidence of consistent improvement. which is slightly higher than the These include the detection of crime Scotland-wide figure of 8.2 per 10,000 and user-satisfaction levels. population. The actual number of complaints received during 2010/11 was down 6.2 per cent compared to the previous year.

129. The number of complaints about quality of service recorded by the force decreased by 32.4 per cent during this year which was 46 fewer complaints than the previous year. This reduction was in line with performance in other forces in Scotland and with the Scotland-wide performance which was 11.9 per cent down on the previous year. 32 Part 4. Improvement recommendations Part 4. Improvement recommendations 33

131. Continuous improvement in 132. Lothian and Borders Police Board 133. In common with other police public services and local governance and Force are aware of the key areas authorities and forces, Lothian and are central to the Best Value where improvements are needed Borders Police Board and Force and Community Planning policy and are addressing them. The board will need to review the recent framework. In striving to achieve and force should work together and announcements about planned the highest possible standards of take shared responsibility in order changes in policing in Scotland and service, members of the board to deliver Best Value to their local develop plans to ensure a smooth must focus on key policy objectives communities. The table below sets transition to the new arrangements, and the needs of service users and out the key areas where the board while maintaining service quality and communities. This requires a culture and the force need to improve. delivering service improvements. where areas in need of improvement are identified and openly discussed and in which service performance is constructively challenged.

Improvement agenda

Joint improvements • improve scrutiny of the force’s and satisfy itself that it is of the progress against its longer-term right type, amount and quality 1. In view of the long-term objective objective of community well-being. in the context of the board’s of community well-being through requirements and at a time of crime prevention and protection, 2. The board should strengthen decreasing budgets. the board and the force should its arrangements for member work together to develop clear training and development. This Lothian and Borders Police measures against which progress should focus on building a clearer can be assessed and assurance and consistent understanding 1. The force should continue to provided to the public and other across all members of their roles develop clarity and understanding stakeholders that the strategy is and responsibilities generally, of the vision, strategy and priorities working. and with the specific aim of at all levels of the organisation. improving member confidence in 2. The board and force need to contributing to the development 2. The force should develop review the scope and their use of of policing priorities and scrutiny performance systems that better the Lay Diversity Adviser Scheme of force performance. Recent reflect the delivery of intended to establish a clear and shared improvements to induction strategic outcomes and clearly understanding of its role. arrangements should be tested demonstrate the link between prior to the local government priorities and resources. Lothian and Borders Police Board elections in May 2012. 3. The force should build on existing 1. The board should review its 3. The board should review its excellence in partnership working, by approach to scrutiny and, in approach to equalities and collaborating further on the sharing particular, should: sustainability to ensure further of information and the evaluation and progress in meeting its Best Value dissemination of best practice across • develop a more consistent responsibilities. the partnerships. approach to scrutiny of the force’s management of 4. The board should consider and 4. The force should continue to resources agree how it will maintain focus improve its approach to managing and direction in its Best Value equalities and diversity, in • provide stronger challenge improvement agenda, in the particular, to evaluate recent in relation to the force’s context of likely changes in policing improvements made to the performance and explore structures in Scotland. This should management of critical incidents how fuller information of include identifying the scope for and diversity training. performance might better sharing the learning from existing support performance scrutiny good practice across the board area. 5. The force should take further steps to reduce the occurrence • provide stronger challenge 5. The board should review the of serious crimes of violence in relation to the force’s level of support it receives from and improve crime detection and improvement programme The City of Edinburgh Council service user satisfaction. 34 Appendix 1. Expectations of police authorities

The Scottish Government has issued • It is a matter for each authority two main sources of guidance on the to determine how it fulfils these role of elected members and police roles. However, one option might authorities: be for the police authorities to contribute to and endorse the • Circular 11/2003, Implementing chief constable’s annual plan. Best Value in the Scottish Police Service, issued in December 2003. • Members of the police authorities should be able to demonstrate that • Guidance 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. Lothian and Borders Police and Police Board Best Value Audit and Inspection

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