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Commission on the Future of Policing in Ireland 102 THE FUTURE OF POLICING IN IRELAND www.policereform.ie September 2018 THE FUTURE OF POLICING IN IRELAND TABLE OF CONTENTS FOREWORD VI A NEW FRAMEWORK FOR POLICING, SECURITY AND COMMUNITY SAFETY - SUMMARY VIII PART ONE – THE TASK OF THE COMMISSION ON THE FUTURE OF POLICING 1 Chapter One – The Commission and its Work 1 Chapter Two – Context, Change and Challenge 5 PART TWO – POLICING AND THE ROLE OF THE POLICE 10 Chapter Three – Human Rights as the Foundation of Policing 10 Chapter Four – A New Definition of Policing 13 Chapter Five – A New District Policing Model 17 Chapter Six – Crime 20 Crime and Fear of Crime 20 Victims of crime 21 Crime Data 21 Crime Reduction Strategies 23 Crime Investigation 25 Cybercrime 26 Chapter Seven – The Criminal Justice System 28 Courts and Prosecutions 29 Inquests 30 Chapter Eight – Traffic and Road Safety 31 Chapter Nine – Non-Core Police Duties 33 PART THREE – NATIONAL SECURITY 35 Chapter Ten – A Multi-Agency Approach for a National Security Strategy 35 Chapter Eleven – Oversight of National Security 38 PART FOUR – OVERSIGHT AND ACCOUNTABILITY 39 Introduction – A Coherent National Framework 39 PAGE III FUTURE OF POLICING IN IRELAND | PART 7 - A NEW POLICING CULTURE THE FUTURE OF POLICING IN IRELAND Chapter Twelve – Political Accountability, the Oireachtas and the Department of Justice and Equality 40 The Oireachtas 40 The Department of Justice and Equality 41 Chapter Thirteen – A Policing and Community Safety Oversight Commission 43 A new Policing and Community Safety Oversight Commission (PCSOC) 43 Role of PCSOC 43 Local Policing Accountability – a new approach 45 Membership of PCSOC 45 Exercise of Functions and Accountability 46 Chapter Fourteen – Complaints and Discipline 48 Garda Síochána Ombudsman Commission 48 A New Organisation 49 A New Remit 49 Performance Management and Disciplinary Regulations 51 Regulations on access to documentation 52 PART FIVE – A POLICE SERVICE FOR THE FUTURE 54 Chapter Fifteen – The Garda Commissioner and the Leadership Team 54 Chapter Sixteen – A Garda Síochána Board 57 Chapter Seventeen – Structure and Management Processes of the Garda Organisation 60 Chapter Eighteen – Size and Composition of the Police Service 64 Numbers 64 Volunteer programmes 66 Chapter Nineteen – Recruitment 67 Chapter Twenty – Education, Training and Continuing Professional Development 69 Recruit Education 70 In-Service Training 74 Continuing Professional Development (CPD) 76 PAGE IV THE FUTURE OF POLICING IN IRELAND Chapter Twenty-One – Digital Innovation and Information Management 77 A Comprehensive Strategy for Digital Innovation 77 Enabling Front Line Mobility 78 Empowering Public Engagement 78 Improving Organisational Capacity 79 Facilitating Inter-Agency Cooperation 80 A Digital Policing Innovation Centre 81 PART SIX – A NEW POLICING CULTURE 82 Chapter Twenty-Two – Policing Culture 82 A Community Responsibility 82 Occupational and Organisational Culture 83 Policing as a Profession 85 Chapter Twenty-Three – Valuing the People of An Garda Síochána 87 PART SEVEN – THE LONG-TERM FUTURE OF POLICING IN IRELAND 90 Chapter Twenty-Four – An Adaptive Police Organisation for the Future 90 PART EIGHT – VALUE FOR MONEY 93 Chapter Twenty-Five – Value for Money and Efficiencies in Policing 93 Greater clarity in the cost of policing 93 Streamlining decision making processes 94 Realising savings and efficiencies 95 PART NINE – IMPLEMENTING CHANGE 97 Chapter Twenty-Six – Implementing change 97 Next Steps 99 ANNEXES 101 Annex I – Commission on the Future of Policing in Ireland 102 Terms of Reference 102 Annex II - Engagement and Consultation 105 PAGE V RETURN TO THE FUTURE OF POLICING IN IRELAND CONTENTS THE FUTURE OF POLICING IN IRELAND Kathleen O’Toole, Chair Commission on the Future of Policing in Ireland FOREWORD The work of the Commission on the Future of Policing in Ireland has been intense and expansive. We reviewed hundreds of documents concerning all aspects of Garda operations and administration. We benchmarked policing in Ireland against practices in other jurisdictions. We conducted surveys and engaged with thousands of individuals. We met with senior Government leaders, politicians representing all parties, officials from numerous government bodies, academics in Ireland and abroad, officials from other jurisdictions, Gardaí of all ranks and non-sworn Garda personnel. All of these encounters were of great value, but none more enlightening than our meetings with members of the public who shared their observations, concerns, and vision for a reformed and reinvigorated police service. It is clear that public confidence has been shaken in the wake of tribunals and news stories, yet the majority of people in Ireland continue to support their police and are eager to work in partnership with them to improve safety and enhance the quality of life in their communities. This was most heartening to hear, as the community’s trust, respect, engagement and support are, without question, essential to modern, effective, and professional policing. This report reflects the constructive input and feedback from the Commission’s robust consultation process. The Commission extends sincere thanks to all for your contributions. This is your report – a clear vision and roadmap for strengthening An Garda Síochána and the broader national framework for policing, security, and community safety. This report not only focuses on the current arrangements for policing, but also anticipates future challenges, given changes in society, criminality and technology. The central finding of our review is that the systems currently in place – the police service itself and the wider national framework for policing, security and community safety – must be strengthened significantly to meet existing challenges, and also to address future demands. The shortcomings are not merely, or even mainly, a question of resources. They are critical systemic problems related to structures, accountability mechanisms, management processes and culture. Policing outcomes in Ireland will not improve simply by adding more police or appointing new police leaders. There is an urgent need for comprehensive, fundamental change. This should be a first-order national priority. Previous reports containing sensible and often excellent recommendations have gathered dust on shelves. Several people have asked why we think this report will fare any better. Our answer has been consistent – because too much is at stake. Reform is needed urgently. The Irish people will not get the service they need and deserve unless the policing system is comprehensively transformed, nor will Gardaí have the rewarding and respected careers they sign up for. Moreover, policing problems will continue to escalate to the highest reaches of government with depressing frequency. PAGE VI RETURN TO THE FUTURE OF POLICING IN IRELAND CONTENTS When established sixteen months ago, this Commission pledged it would return to Government with a clear vision for Irish policing and recommendations for sweeping reforms in the delivery of services to meet the unique complexities and demands of Ireland’s communities. Our process has been transparent, our engagement authentic, and our review rigorous. While other bodies have been charged with examining past concerns, this Commission was tasked to design a fresh start. We did not approach our work through a prism of scandal or accusation, but instead in an objective, strategic manner. We had no agenda but to get this right. It was indeed a privilege to work with such an extraordinary team and I sincerely thank my colleagues. Our work is now done, and it is in the hands of Government, the Oireachtas and An Garda Síochána to make it a reality. Ireland is a modern, dynamic country and its police service should reflect that reality. If all of these recommendations are implemented, we believe that Irish policing will not only regain the ground it has lost compared to other policing jurisdictions, but will be at the forefront in the evolution of policing internationally. Kathleen O’Toole, Chair Commission on the Future of Policing in Ireland September 2018 PAGE VII RETURN TO FUTURE OF POLICING IN IRELAND | PART 7 - A NEW POLICING CULTURE THE FUTURE OF POLICING IN IRELAND CONTENTS A NEW FRAMEWORK FOR POLICING, SECURITY AND COMMUNITY SAFETY 01 02 Human rights are the Policing and national security foundation and purpose are not the responsibility of of policing the police alone 03 04 Accountability and Internal governance oversight structures must be strong should be and efficient clear and effective 06 05Police duties should be An Garda Síochána should be clearly defined and structured and managed to resources deployed support front line accordingly policing 07 08 The people of Policing must An Garda Síochána be information-led are its greatest resource 09 10 Policing should Policing must be adaptive, be seen as a innovative and cost effective profession GARDA PAGE VIII RETURN TO THE FUTURE OF POLICING IN IRELAND CONTENTS A NEW FRAMEWORK FOR POLICING, SECURITY AND COMMUNITY SAFETY This section of the report describes our vision for the future of policing, and the changes that need to be made, both across the whole of Government and within the police service. They are arranged according to ten key principles which, taken together, represent a summary of the more detailed recommendations set out in the body of the report. FIRST PRINCIPLE. HUMAN RIGHTS ARE THE FOUNDATION AND PURPOSE OF POLICING. 1. The purpose of policing is to protect the human rights of all members of society to live free from violence, abuse, crime and fear. The justification for police powers to arrest, search or detain, and thereby to curtail the rights of some individuals in certain circumstances, is rooted in the duty of the police to serve and protect society as a whole. Police have to exercise these powers appropriately, effectively and with fairness to everyone. As a public service the police are required by Irish law to protect human rights and promote equality. An Garda Síochána should have a human rights strategy, and a human rights unit within the organisation to develop, implement and monitor the strategy.
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