Tayside Police and Tayside Joint Police Board Best Value Audit and Inspection

Prepared for the Accounts Commission and Scottish ministers December 2009 The Accounts Commission

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

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

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

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

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

The Commission secures the audit of 32 councils and 44 joint boards and committees (including police and fire and rescue services).

Her Majesty’s Inspectorate of Constabulary for Scotland

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

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

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

• providing advice to Scottish ministers, 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. Tayside Police and Tayside Joint Police Board 1 Contents

Commission findings Part 2. Tayside Police Force Page 2 performance assessment Page 21 Introduction Page 4 Delivering policing plan outcomes Page 22 Summary Page 7 Part 3. Improvement recommendations Part 1. Corporate assessment Page 25 Page 10 Improvement agenda Vision and strategic direction Page 26 Page 11 Appendix 1. Expectations of police Governance and accountability authorities Page 12 Page 27

Partnership working and Appendix 2. The National community engagement Intelligence Model Page 15 Page 28

Performance management and improvement Page 16

Use of resources Page 17

Equalities Page 19

Sustainability Page 20 2 Commission findings Commission findings 3

1. The Commission notes that this the primary responsibility for obtaining is the first joint Best Value audit and the necessary support rests with inspection report to be produced the joint board. Accordingly, as a by the Controller of Audit and Her matter of urgency, the joint board Majesty’s Inspector of Constabulary. needs to discuss this position with We welcome this joint approach the constituent councils and secure and its significant contribution to resources which are independent of more effective and streamlined the councils and the police force to scrutiny. We accept this report and support it in its role. acknowledge the co-operation and assistance provided to the joint audit 6. We look forward to receiving and inspection team by the Convener an improvement plan from the and other elected members of Tayside joint board which addresses the Joint Police Board, the clerk to the improvement agenda set out in the board, and the chief constable and joint audit and inspection report and officers of Tayside Police. the weaknesses identified. The plan should focus on the board’s role in 2. The report is wide ranging and working with the chief constable to assesses the extent to which drive continuous improvement in Tayside Police Joint Board and police services. It should set out how the Police Force are meeting their the board will improve members’ best value duties. In accordance understanding and engagement in with the Commission’s statutory best value and community planning, responsibilities, these findings relate support its members through training only to the best value audit of the and development and strengthen links joint board. with the constituent councils.

3. We find that while the joint 7. It is clear to the Commission that board is strongly committed to part of the reason for the board not supporting the chief constable and fully exercising its role arises from a that working relationships between lack of clarity about the respective the board and the police force are responsibilities and expectations good, the board is not meeting the of the joint board and the chief objective of best value, namely constable. The Commission believes continuous improvement in its duties this issue may not be unique to and responsibilities which include Tayside Police Joint Board and if this effectively contributing to setting is the case will recommend that the priorities for the police service Scottish Government, in consultation and holding the chief constable with COSLA (Convention of Scottish to account. Local Authorities) and ACPOS (Association of Chief Police Officers in 4. Board members have an important Scotland), should consider the existing and distinct role in the governance guidance and its interpretation of police services and until there is to ensure the specific duties and clearer understanding and application responsibilities of boards and board of that role the board will not achieve members are expressed clearly. We the necessary shift in focus required believe further clarification of the to attain best value. guidance, as may be required, would assist police authorities to self-assess 5. Elected members appointed by the their progress in achieving their constituent councils to the joint board statutory responsibilities for best value need more support to improve their and community planning. knowledge and understanding of their role as board members and to support them in core activities, including setting direction and priorities and scrutinising performance. However, 4 Introduction Introduction 5

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

1 The Local Government in Scotland Act 2003 Best Value: Statutory Guidance 2004 and The Local Government in Scotland Act 2003 Community Planning: Statutory Guidance 2004. 6

We gratefully acknowledge the (beyond appointing members and co-operation and assistance provided funding), the effectiveness of the to the team by the Convenor of board is supported in practice by Tayside Joint Police Board Councillor the constituent councils through the Iain Mackintosh; at the time of the provision of clerking services and audit and inspection Chief Constable training and support for members. Kevin Mathieson, Tayside Police; Tayside Police Force Executive; The existing guidance for policing Change Coordinator Donna Adam, (Circular 11/2003 and Guidance Tayside Police; Clerk to the Board for Members of Police Authorities Sheona Hunter; Committee Officer and Joint Police Boards, Scottish Elaine Whittet; and all other elected Government, June 2007), sets out members and staff involved. We are expectations of the board. These also grateful to the representatives are summarised at Appendix 1 of of the three councils and the this report. The Local Government force’s community partners who in Scotland Act 2003 Best Value: agreed to participate in the audit and Statutory Guidance also applies to inspection process. joint police boards.

The tripartite arrangements and police authorities’ leadership role The force is governed through a tripartite arrangement between the chief constable, the joint police board (‘the board’) and Scottish ministers. As the force covers more than one police authority area, a joint police board comprising members from the three constituent authorities has been formed as the police authority. Scottish ministers retain overall responsibility for policing policy at national level. Tayside Joint Police Board is responsible for setting the police budget, ensuring that best value is attained and holding the chief constable to account. The chief constable is responsible for the operational aspects of policing within the force area.

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 authorities are responsible for appointing the members of a joint board and for allocating funding. The board is a separate legal entity and, although councils have no separate residual responsibilities 7 Summary 8

Summary Tayside Joint Police Board 3. There is inconsistent understanding among board members of their Tayside Joint Police Board (‘the National guidance for board responsibilities and duties as set board’) is supportive of the police members does not clearly set out out in the Guidance for Members force and there is a constructive the expectations of the constituent of Police Authorities and Joint relationship with senior officers. councils. The links between the Police Boards issued by the Scottish However, scrutiny of force activity board and the three local councils Government in June 2007. There is is inadequate and does not are ambiguous and may lead to the little evidence of the board fulfilling effectively hold the chief constable board becoming isolated and the its duty to ensure the effectiveness to account or work in tandem with constituent councils not assured of of the force’s community planning the chief constable to secure best its effectiveness. and community engagement activity, value. At formal meetings of the working in tandem with the chief board, the force provides limited There is limited awareness and constable to secure best value or opportunities for the board to fulfil inconsistent understanding holding the chief constable to account. its role through active involvement among board members of their in decision-making, particularly in wider responsibilities and duties. 4. The board is not involved in respect of improvement activity The board is not involved in scrutinising the force’s partnership and community planning. The determining improvement priorities, work. The board has no direct links to board is not yet fulfilling its duties developing the force’s vision or the community safety partnerships, of best value and, without a shift driving best value through strong despite the responsibility to promote in emphasis, its capacity for future and open challenge and scrutiny. joint responsibility for crime and improvement is limited. It is not involved in ensuring disorder being specified in the the effectiveness of the force’s guidance. The role of the councils (comprising community planning work and it the police authorities) in supporting is not fulfilling its duties in relation 5. The board is strongly committed the performance and effectiveness to equalities and sustainability. The to supporting the chief constable. of the board is not clear. Among board is, however, fully engaged Working relationships between board members there is limited in the monitoring of financial and the force and the board are good. understanding and engagement staffing issues. However, the board’s scrutiny and about best value and community challenge of the force’s performance planning. 1. The links between the board is weak and not transparent. and the three local councils are The board receives the force’s The force is making good ambiguous. The three councils improvement plans for approval progress with some important hold differing opinions about where and notes progress on the resulting aspects of best value. It can responsibility lies for ensuring the monitoring reports, but members demonstrate examples of good effectiveness of, and providing support are not involved in ensuring best practice in many areas, but it to, the board. Advice is provided to the value and driving improvement lacks corporate consolidation board by the clerking council, in this by determining and prioritising and management of force-wide case Angus Council, but there is no improvement areas and challenging issues such as community dedicated support for board members existing ways of doing things. engagement, community planning or specific police board training. and improvement activity. The force Links from the board to individual 6. Board members are kept well has a strong record of engaging councils are inconsistent and could informed of finance matters and with partners and has made be stronger. There are also no explicit are active in monitoring financial progress in delivering outcomes links between board members and and staffing issues, but have limited for communities that reflect local the community safety partnerships in opportunities to scrutinise how well need. It has been successful in the three council areas. the force makes strategic use of its reducing crime although public resources. The board has equalities perceptions of the level of certain 2. The board endorses the vision schemes in place for race, gender types of crime continue to rise. The and direction of Tayside Police, but and disabilities, although the level force is improving well with positive it is not involved in setting that of review and scrutiny of these pace and direction of travel and it is direction or determining the priorities plans is limited. The board receives well placed in terms of capacity for for the force. comprehensive updates from the future improvement. force on its equalities activities but little in relation to sustainability. Summary 9

Members show little awareness 8. The force provides limited 14. The force has robust processes of their role in equalities and opportunities through the reports in place for setting and monitoring sustainability. There is no evidence it submits to the board for board budgets. The force’s financial that members consider the equality members to be proactive in considering management and control is strong and sustainability implications of options and making decisions. and it has a good record of exceeding reports submitted to the board. efficiency savings targets. However, 9. The force executive shows clear the force would benefit from a Tayside Police Force tactical leadership and awareness of strategic approach to the use of where the force needs to improve, resources, particularly in relation Tayside Police has good working but recognises it has more to do to to managing its assets and people relationships with the board but further develop corporate leadership. resources, so that it can plan its provides limited opportunities at There is a lack of emphasis on central requirements in light of strategic formal board meetings for the oversight and challenge, which limits priorities and future needs. board to fulfil its duties, particularly opportunities for sharing learning, in relation to working in tandem and inhibits the force’s ability to 15. Tayside Police has a well-developed with the chief constable around demonstrate what it has achieved. approach to equalities. Conversely, community planning, performance its approach to sustainability is scrutiny and leading improvement. 10. The force works well with underdeveloped. Although some its partners, displaying strong work has begun, the force needs to The force is making good progress commitment to community planning consider an approach that covers all with some important aspects of and community engagement, and is aspects of sustainability. Best Value, including improving delivering outcomes locally. However, services, equalities and working there is no corporate overview 16. Tayside Police objectives have with partners to deliver joint of divisional community planning changed annually and relevant solutions to local issues. However, activity or progress against the Single measures to identify achievements it lacks corporate approaches Outcome Agreements (SOA). The and impact are not fully developed. to some force-wide issues and force has no corporate approach to The force has been successful recognises it needs to strengthen coordinate, plan and maximise the in reducing recorded crime and its corporate leadership and impact of community engagement. increasing detection rates in several overview. The force’s performance key groups. There is a gap between management approach is not 11. Tayside Police is undertaking a this improving performance and the based on a range of performance great deal of improvement activity public perception of the levels of information, trends and across the force. However, this certain types of crime.2 comparisons linked to key force activity is not consolidated and priorities and objectives. Hence, managed at a corporate level. performance reports to the board This reduces the potential impact are not comprehensive. However, of the work through opportunities performance is generally good and for force-wide approaches and improving, particularly in respect efficiencies. of local crime priorities, but there is an increasing gap between this 12. The force’s approach to and the public perception of certain performance management is not types of crime. sufficiently focused on performance information linked to key force 7. Tayside Police has developed a priorities and objectives. Performance clear strategic direction, informed by reports to the board are not consultation with key stakeholders. comprehensive. Its strategic priorities, though defined, are not clearly linked to divisional 13. The force does not provide plans. Better integration of the force’s performance reports to the board operational planning processes would that are balanced, cover all service help to improve prioritisation and areas and divisions, contain trend overview. information, comparisons with other forces and Scottish averages, and the impact of community planning activity.

2 Based on Scottish Policing Performance Framework data for 2007/08 and 2008/09. 10 Part 1. Corporate assessment Part 1. Corporate assessment 11

Vision and strategic direction Exhibit 1 Strategic priorities and objectives 2009/11 Tayside Joint Police Board Working with partners towards safer communities: The board endorses the force’s vision and direction but has not • To reduce crime and the fear of crime, with an emphasis on violent crime been involved in its development. and alcohol-related crime and disorder. • To target drug dealing and the abuse of drugs and, by focusing on 17. The board approves the Strategic prevention, detection and harm reduction, to reduce associated crime and Annual Performance Plan but including serious and organised crime. is not involved in its development. It does not work with the force • To improve road safety by educating road users, especially young drivers, to identify an appropriate vision, and enforcing the law with an emphasis on dangerous driving. objectives or priorities for action. Board members represent the Increased trust and confidence: Tayside area and bring a wealth of • To meet and exceed public expectation in the quality of service provided. understanding of community needs • To increase the number of uniformed officers patrolling in public places. and aspirations; there is potential for them to be more involved in • To reach out to diverse communities, listen to their needs and respond determining the strategic direction accordingly. and directing improvement priorities for the force based on that local Effective performance: knowledge. • To improve the management, use and sharing of information and intelligence to better protect the public. Tayside Police Force • To improve efficiency and productivity, ensuring best use of resources, Tayside Police has developed a increasing capacity. clear strategic direction informed • To improve the way the force communicates with the public, partners by an understanding of the needs and staff. of local communities. This is in line with the community plans Source: Tayside Police of the three council areas, and is endorsed by the board. The force has defined strategic priorities 19. There are no clear links between 21. The force communicates its vision but they are not clearly linked to these strategic priorities and the and priorities well through the rank divisional and departmental plans development of the divisional control structure to police sergeant/supervisor and performance reports. The strategies or departmental plans. By level. However, for police constables force’s planning processes are not making such links the force would be and police staff there are no formal well integrated, which does not better able to demonstrate progress in discussion forums. The main method allow for prioritisation and overview. delivering these priorities. for communicating is through one-way notification and briefing; as a result, 18. The force has identified three clear 20. Operational planning processes officers and staff at this level do not strategic priorities and supporting throughout the force operate as have a firm grasp of the force’s vision objectives for the period 2009–11. parallel but separate processes. and priorities. These are set out in the force’s Outputs and action plans from best Strategic and Annual Performance value reviews, national thematic Plan 2009–11 (Exhibit 1). These reviews, self-assessment, community priorities were identified through an planning, National Intelligence Model understanding of the needs of local (NIM) processes (Appendix 2), communities and in accordance with performance analysis and divisional the three SOAs. (or partnership) strategic assessments are not integrated into single, comprehensive divisional or force plans. This fragmentation makes it difficult to identify a coherent and linked set of priorities and to establish an overview of divisional or force progress. 12

Governance and accountability 24. The board is supported by the of dedicated support makes it difficult clerk, assistant clerk and the treasurer for members to understand, fulfil and Tayside Joint Police Board to the board, provided by Angus develop their role. Council. The clerk’s role is incorporated There is some ambiguity about within the duties of the head of legal 27. National guidance in this area does responsibility for ensuring the and administrative services at the not clearly set out the expectations effectiveness of, and providing council. Approximately five per cent of the individual councils, nor the support to, the board. Links of the clerk’s time, 25 per cent of the specific role of the council providing from the board back to the assistant clerk’s time and six per cent the clerking function to the board. three individual councils are not of the treasurer’s time is devoted Ambiguity about the status of the consistent and could be stronger. to supporting the board. board and the accountability of the Specific training or support constituent authorities may lead to the for the board is limited. There 25. There is a lack of clarity among board becoming isolated and unable is inconsistent understanding the three councils comprising the to assure others of its effectiveness. among board members of their Tayside area regarding their role and responsibilities and duties. The responsibilities in ensuring that the 28. Board members have a good board tends to take a passive role, board carries out its duties effectively. relationship with Tayside Police reacting to the reports the force Generally, the councils view the and there is a strong sense among submits rather than influencing the board as effective but feel that they them that their role is to support agenda. Board members are not themselves have a very limited role the chief constable. This affects the involved in developing the force’s once the board is constituted. The degree to which they feel they can public performance report. governance arrangements between publicly challenge the chief constable. the board and the three constituent Some members are unaware of 22. Guidance for Members of Police councils are inconsistent, and views the specific duties of the board, as Authorities and Joint Police Boards on how strong these links should be detailed in national guidance, while issued by the Scottish Government in differ. Some councils receive board others misunderstand them. This is June 2007 (hereon in referred to as minutes at full council meetings; particularly apparent in relation to the ‘national guidance’ or ‘the guidance’) others receive briefings from board duties to pursue best value in tandem sets out the role of the board. Its members only on an exceptions with the chief constable and to main functions are: setting the annual basis, where that member considers ensure the force’s participation in budget, appointing officers of the a particular matter has sufficient community planning. rank of assistant chief constable local implications. The board’s status and above, making arrangements as a ‘separate legal entity’ leads to 29. The force reports regularly to to secure best value, participating some ambiguity around the extent the board, with operational policing in community planning, keeping constituent councils engage with updates, accounts and other financial informed as to how the force deals the board. and staffing issues (Exhibit 2). with complaints and holding the chief The board also receives reports constable to account. 26. There is no systematic process on performance, such as the chief for the induction of new members to constable’s annual report, which is 23. The board has 18 members, made the joint board, and no job description the force’s public performance report, up of seven councillors from Dundee to help them understand or carry out and on developments within specific City Council, six from Perth & Kinross their duties. The three constituent projects such as their ‘Advance Council, and five from Angus Council. councils provide in-house training Programme’, part of the force’s action The board generally meets four to board members through their plan to improve services. times a year, with meetings rotating own general member training and annually between Dundee, Forfar support function. Sometimes board 30. The board is not active in shaping and Perth. The board is supported members receive briefings prior its own agendas. The board makes by five subcommittees. Personnel, to a board meeting. Tayside Police few requests for specific agenda audit and complaints subcommittees provides training and awareness items or reports, and the majority of meet on a quarterly basis. The finance sessions on operational aspects reports submitted to the board (85 per subcommittee meets twice per year. of policing, although attendance cent in the period September 2008 The subcommittee for appointments at these events is variable. There to September 2009) are for noting meets when requested by the board. is no dedicated support for board or agreement rather than presenting members, or specific police board options or recommendations for the training beyond advice to members board to decide. Debate at board serving on external bodies provided meetings is cordial, but questioning by the constituent councils. This lack and challenge are limited. In order Part 1. Corporate assessment 13

Exhibit 2 Reports submitted to the board

2007/08 No. 2008/09 No. 2009/10 to date No. Financial/contract reports 8 Financial/contract reports 9 Assets 2 Staffing issues 6 National issues 8 Performance reports 2 Operational policing updates 4 Staffing issues 6 Financial/contract reports 2 External audit/inspection 3 Operational policing updates 4 National issues 1 National issues 2 Other 4 SOA/community planning 1 Training, events 2 Reviews and improvement plans 3 Operational policing updates 1 Assets 1 Performance reports 3 Equalities 1 Equalities 1 External audit/inspection 1 Staffing issues 0 Reviews and improvement plans 1 Training, events 1 External audit/inspection 0 Performance reports 1 Equalities 1 Training, events 0 Policy 1 Policy 1 Reviews and improvement plans 0 Other 1 Assets 0 Policy 0 SOA/community planning 0 SOA/community planning 0 Other 0

Source: Audit Scotland

to fulfil its duties, the board needs Tayside Police Force Operational Support Division; to be more active in determining Force Information and Intelligence its agendas, influencing strategic The force provides limited Division; and the Business Support priorities, challenging performance opportunities within their reports Department. more proactively and prioritising areas for the board to consider options for improvement. and make decisions. The force 33. At a strategic level, the force is executive shows clear tactical led by the force executive, which 31. The board’s own meeting agendas leadership and awareness of meets on a weekly basis to discuss and minutes are easily accessible where the force needs to improve, force business. The executive is on the website. Full board meetings but recognises it has more to made up of the chief constable, are advertised and open but public do to further develop corporate deputy chief constable, assistant attendance is minimal. The force’s strategic leadership. The level chief constable, director of corporate public performance report is not of empowerment that the force services and director of personnel and a joint report with the board. The affords its three divisions is positive development. The leadership team is board endorses but is not involved and allows each to reflect and an extension of the force executive in developing the force’s public focus on local need in their council including divisional commanders and performance report. The national area. However, there is a lack of departmental heads. A number of key guidance requires the board to have a central oversight and challenge, and groups support the leadership team in public performance report. corporate approaches to force-wide strategic and operational delivery. issues which limits effectiveness and efficiency. 34. Tayside Police provides limited opportunities for the board to fulfil 32. The force is divided into three its role through active involvement geographical policing divisions which in decision-making, particularly in are co-terminous with the local council respect of improvement activity and areas; Central (Dundee City Council), community planning. The force is Eastern (Angus Council) and Western responsive to requests for further (Perth & Kinross Council) as set out in detailed performance information Exhibit 3 (overleaf). There are a further from the board and proactive in three non-geographical divisions providing information evenings for that provide force-wide services: members to learn more about specific 14

Exhibit 3 The force area

Eastern Division Glenshee Northern Western Division (Snowgates) Edzell Grampian Brechin Kinloch Rannoch Montrose Pitlochry Kirriemuir Forfar Alyth Friockheim Aberfeldy Glamis Blairgowrie Letham Arbroath Tayside Dunkeld Newtyle Muirhead Carnoustie Stanley Fife Longforgan Dundee Monifieth Scone Methven Central Errol Central Division Perth Lothian and Comrie Crieff Bridge of Earn Borders Auchterarder Abernethy

Strathclyde Kinross

Dumfries and Galloway

Source: HMICS and the Scottish Government

operational policing themes. However, monitoring of divisional activity and 38. A significant amount of as previously noted, 85 per cent of performance. Although the divisions improvement activity takes place reports submitted to the board in monitor their own performance and across the three divisions but this the last 12 months were for noting improvement action plans, the force is fragmented. This risks the loss of or approval. Reports offered to the has no overview of community opportunities to make economies board do not provide the basis for the planning or community engagement of scale or seek corporate solutions board to consider options and make activity across the three of them. to force-wide issues such as decisions and therefore do not help There is also limited coordination of measuring impact and improving the board to fulfil its best value duties. approach to managing operational risk public perceptions of crime. With areas. This has resulted in a focus of no central overview there is also a 35. Tayside Police’s force executive response to local issues rather than risk that not all improvement activity is a new team but has made prioritisation based on an identified will be recorded, limiting the force’s good progress in developing its local or national risk. This adversely ability to identify all its continuous responsibilities and defining its impacts on some of the force high- improvement achievements and operational and strategic roles. It priority risk areas, and the extent that demonstrate best value. has shown clear tactical leadership the force executive can hold these and awareness of where it needs divisions to account and challenge 39. The force website is easily to improve. their progress is limited. accessible by the public and allows access to the Strategic and Annual 36. The force has insufficient oversight 37. The force executive recognises Performance Plan. Performance of divisional activity and lacks the need for more corporate working information is available and easy corporate approaches to some and is rationalising its force-wide to read and understand. However, force-wide issues. The three governance structures in order to the force could do more to improve geographical police divisions have strengthen its corporate functions. its accountability to the public by strong autonomy in the way they The executive is working with including trend information, provide local services. While this divisional commanders through the targets, comparisons with Scottish is essential to effective operational leadership team, to define and build average figures and other forces, policing, it must be balanced with their corporate role and develop a and by explaining the reasons for corporate approaches to force-wide longer-term approach. underperformance and how it issues and clear central oversight and plans to improve. Part 1. Corporate assessment 15

Partnership working and Exhibit 4 community engagement Information-sharing in Western Division

Tayside Joint Police Board An antisocial behaviour partners’ group meets in Western Division on a fortnightly basis. Chaired by a police inspector, it has representation from The board does not fulfil its duty a large number of partners including Youth Justice, Youth Services, Action to ensure the effectiveness of for Children, Antisocial Investigation team, Education and Children services, the force’s community planning Antisocial Noise teams, Environmental Health, the Housing Manager, and community engagement Drugs and Alcohol workers and Community Mediation. Despite the main activity. The board is not involved in purpose of the group being to tackle and resolve problems of antisocial scrutinising the force’s partnership behaviour, there is also a clear focus on child protection. Any child or child of work. The board recently approved a household coming to the attention of any of the partners in the group can the SOAs but had no involvement be discussed in this forum. This allows partners to share information in their development. The board has and quickly identify children and families where there is cause for concern. no explicit links to the community The group pulls together a considerable range of child protection bodies safety partnerships despite the and provides a forum where very early identification of a developing specific national guidance to problem is possible. promote joint responsibility for crime and disorder. Source: HMICS and Audit Scotland

40. The board does not fulfil its duty to maintain an overview of community process also provides evidence of the ensure the effectiveness of the force’s planning work and community effectiveness of partnership working community planning and community engagement activity, so that it can at divisional level. engagement activity. Its involvement add value to that work through in, and oversight of, community scrutiny, challenge and directing 44. Tayside Police has engaged planning is not evident. The board did activity. well with each of its three CPPs not consider any community planning in developing SOAs but does not reports (eg, annual performance Tayside Police Force yet maintain an overview of SOA reports or specific reports in relation to processes or report on their overall the community safety partnership) in The force works well with its progress to the board. The three SOAs 2007/08 and 2008/09 (Exhibit 2, page partners, displaying strong have been developed separately, 13). The board agreed the SOAs for the commitment to community reflecting the differing priorities of three constituent councils in 2009/10 planning, integrating local each of the areas. but had no involvement in their community planning activity development. The national guidance within the three divisions and 45. The force’s community planning clearly defines the role of boards in delivering local outcomes. There partners across all three partnerships community planning and in ensuring is insufficient capture of divisional are confident that Tayside Police that partnership working is effective work into a force-wide overview is fully committed to community and coordinated. The board does not of community planning and SOA planning. There are strong governance have the opportunity to scrutinise activity, and their impact. The force and accountability links between the force’s partnership activity demonstrates local commitment the divisional commanders and because it does not request or receive to community engagement, but their local CPPs, and strong police regular reports. there is no corporate framework representation not just on the for coordinating and planning community safety groups but 41. The guidance also states that community engagement activity. throughout the community planning boards should play an active role in themed partnerships. Partners report promoting their joint responsibility 43. SOAs are the current vehicle for that the force is also innovative in with community safety partnerships aligning local activity with the Scottish developing joint solutions to resolve to reduce crime and disorder, and Government’s national priorities, and identified community problems. should encourage the constituent for Community Planning Partnerships Divisional commanders are described councils to play their part. There (CPPs) to agree joint priorities at the as providing effective leadership, and are no explicit links between board local level. As such, SOAs represent other police representatives as having members and the community safety a key strategic statement of what a sufficient authority to make decisions partnerships in the three constituent CPP will be doing over the coming and commit staff resources. The force councils of the board. years, with their delivery being a and its partners can point to many major feature of the priorities and risks examples of joint working and the 42. The board does not receive councils and their community planning outcome of these activities (Exhibit 4). sufficient information to develop and partners face. The SOA development 16

46. The force does not have an overall Performance management and 51. Scrutiny of the force is not strategic approach to partnership improvement transparent. Members report that the working. There is potential for the scrutiny and challenge function is more force to be more systematic about Tayside Joint Police Board fully discharged at the private pre- capturing information in order agenda meetings between the chief to develop a force-wide picture Scrutiny and challenge by the constable, deputy chief constable, of achievement. Without a clear board of force performance is convenor and vice convenors; no overview of community planning inadequate and not transparent. record of pre-agenda meetings is and SOA activity the force risks The board receives the force’s made. Scrutiny of the force therefore missing opportunities to minimise improvement plans for approval but takes place mainly in private. The the duplication of activity, provide it is not involved in ensuring best guidance, though, is quite clear that force-wide responses to common value and continuous improvement although decision-making can be problems, introduce economies by determining and prioritising delegated to subcommittees which of scale, share good practice, improvement areas and challenging meet in public, decisions must be allocate resources more effectively, existing ways of doing things. owned by the board in its entirety. The and demonstrate fully what it has current approach does not reflect this. achieved. 49. The board’s scrutiny of the force is weak. The board has a high degree 52. The board recognises it must 47. A significant amount of good of trust in Tayside Police and is improve its scrutiny role and has plans community engagement takes place confident in the force’s performance. to re-designate the existing audit locally. The Scottish Parliament’s Working relationships are cordial and subcommittee as an audit and scrutiny Justice Committee visited several supportive but there is little challenge subcommittee, with a wider remit and towns and cities in 2008 while of performance levels. In 2008/09, the membership in order to strengthen researching community policing. Their board considered three performance and open out its scrutiny function. The visit to Dundee resulted in positive reports and three improvement or board has yet to discuss and agree feedback. Members of the committee review reports (Exhibit 2, page 13). how its scrutiny role must change viewed the policing practices they Only one performance report and in order to ensure ownership of the saw as very good examples of local one review report were considered in approach by all board members. policing in touch with the community 2007/08. There was minimal challenge providing solutions for local problems. of the content of these reports. The 53. Board members are engaged national guidance sets out the role in monitoring the progress made in 48. Local community engagement of the board in holding the chief the force’s improvement plans but work is not informed by any corporate constable to account. The board they are not involved in determining coordination, planning or guidance. exercises its formal role in holding the where improvements are needed, Nor is it clear how public views feed chief constable to account through prioritising the resulting improvement into force-wide service planning. its appraisal of the chief constable’s activity, identifying areas for best There is also no systematic method performance. However, there is value review or appraising the options for feeding back to the public what some ambiguity and inconsistency and making decisions. In order to fulfil the force is doing to respond to their in understanding among board their duty to work ‘in tandem’ with views, or more importantly, to explain members about how far they can the chief constable to secure best where and why it cannot fully take take their wider challenge role, how value, members should be engaged in on board the public’s aspirations. proactive they can be about defining driving improvement and in identifying Although the force is developing the agenda for board meetings, and and prioritising activity. a communications and marketing whether they can ask for further work strategy, this is focused on branding or reports. and information provision, rather than defining a corporate approach to 50. There is evidence of more detailed consultation and engagement with scrutiny of financial and staffing the public. The recently published matters at the subcommittee level. HMICS thematic report,3 which The board’s power to request reports focuses on a strategic approach from the force is the key method by to public consultation, provides which it can assert its independence recommendations on making and it is important that the board uses more efficient and effective use of this power to strengthen its role. community engagement activity.

3 HM Inspectorate of Constabulary for Scotland – Thematic Inspection: Strategic priority setting in Scottish forces: consulting the public, March 2009. Part 1. Corporate assessment 17

Tayside Police Force Opportunities to share good practice improvement priorities and foster an and learning may also be missed. improvement culture. Tayside Police has demonstrated Furthermore, it makes the process commitment to improving services of capturing performance information 59. The force does not provide and is undertaking a great deal of to assess the impact of activity performance reports to the board improvement activity across the burdensome, and makes it difficult to that are balanced, cover all service force. However, that improvement establish an overall view of the force’s areas and divisions, contain trend activity is not consolidated, progress in continuous improvement. information, comparisons with other prioritised or managed within forces and Scottish averages, and an overarching corporate 56. The process used by the force the impact of community planning improvement plan, reducing the executive and leadership team in activity. Reports on the force’s best potential impact of the work. determining what best value reviews value improvement activity should Performance management is not to conduct and how they manage allow the board to determine areas currently focused on a range of the review activity/process is not for improvement and prioritise performance information linked to clear. Although there is guidance improvement work. key force priorities and objectives. for review teams, there is no Performance reports to the board transparent or systematic process Use of resources are not comprehensive. for identifying review topics and no process of project board/project Tayside Joint Police Board 54. Tayside Police has a clear focus sponsor to ensure that the findings on improvement and has developed a reflect the original intentions of the Board members are kept well number of force-wide plans alongside review. Historically, this has resulted informed of finance matters and more specific thematic and service in a number of reviews that have are active in financial monitoring. review improvement plans. They have not delivered the expected level The personnel subcommittee is completed key strategic best value of recommendations, focusing on effective in monitoring staffing reviews, developed improvement many minor issues rather than a few issues. The board has limited plans arising from national thematic strategic changes. opportunities to scrutinise how study recommendations and self- well the force makes strategic use assessment work, and made good 57. The monthly divisional performance of its resources. progress in implementing subsequent profiles produced by the force contain recommendations. These have limited information and it is not clear 60. The board is actively involved in resulted in significant efficiency savings how they are used to hold divisional financial management. The board and enabled critical organisational commanders to account or facilitate and its subcommittees approve development to take place. improvement. They do not provide all significant financial decisions, comparisons with other forces or including budgets, use of reserves 55. The divisions have been proactive national averages, narrative to explain and contracts over £200,000. It in implementing a significant number underperformance, or improvement also approves the force’s financial of improvement plans in response to actions. The particular indicators plans, major contracts, the annual best value reviews, thematic studies, contained in the profiles are historical capital expenditure programme etc, but there is potential for the and the force needs to review and monitoring reports, and annual wider management team, including them. The links between the force’s savings reports. divisional commanders, to take a performance indicators and national more proactive role in integrating and force priorities are unclear. 61. The personnel subcommittee and managing improvement work. is active in monitoring absence There is currently no consolidation or 58. The force does not use the management, best value reviews integration of divisional improvement performance profiles to capture other on people and job evaluation. A work into a single, prioritised, existing performance information, report on attendance management corporate improvement plan. The such as that relating to the SOA, and employee wellbeing initiatives effect of this is that all actions in divisional strategic assessment is considered at every meeting. all plans have equal status. By not or comparative information to Other matters considered by the focusing activity where it is most indicate relative performance, and committee relate to human resource needed, can have most impact, or organisational measures such management activities, grievance and supports organisational priorities, as financial management and dismissal matters and equality and the force risks being swamped by organisational development. As such, diversity updates. improvement activity. Running the the profiles do not provide a improvement plans in parallel also rounded assessment of performance 62. The board has limited opportunity increases the likelihood that activity and the force does not use them to scrutinise how well the force is duplicated across the divisions. to help identify divisional-level makes strategic use of its resources. 18

The board receives reports about Exhibit 5 staffing and financial issues on a Revenue and capital budgets 2009/10 and 2008/09 regular basis and less frequently on assets, but it does not receive reports 2009/10 2008/09 budget that make the links between overall £ million £ million financial and workforce planning, and Revenue budget 86.80 85.04 asset management. Funded by: Tayside Police Force Police grant 42.94 43.37

There are robust processes in Government pensions funding 1.90 0.00 place for setting and monitoring Angus 10.10 10.10 budgets. The force’s financial Dundee 18.71 18.72 control is sound and it has a good record of exceeding efficiency Perth & Kinross 12.45 12.45 savings targets. The force has Other 0.70 0.40 limited focus on establishing and analysing the costs of its specific Capital budget 2.17 2.42 activities. It would benefit from a Funded by: strategic approach to managing its resources, linked to performance Capital grant 2.00 2.00 and outcomes, in light of force Capital receipts 0.15 0.15 priorities and future needs. Other 0.02 0.27

63. The police board agreed a net Source: HMICS and Audit Scotland revenue budget for 2008/094 of £85 million. The contributions from constituent councils were £41.27 the reserve in 2009/10 to fund job audit subcommittee. Efficiency million, The police grant was £43.37 evaluation costs, pension pressures savings reported for 2008/09 include million and £0.4 million came from and the advance programme. £1.484 million cashable savings5 and other sources, including reserves £415,000 non-cashable savings,6 (Exhibit 5). 66. Tayside Police spend slightly less exceeding the two per cent budget than the Scottish average per capita. target. Improvements in procurement 64. The budget for 2008/09 was A comparison of gross expenditure account for cashable efficiency under-spent by £1.797 million. The figures as reflected in the 2008/09 savings of £396,000 to date. main reasons for this were lower than accounts shows that gross spend per expected staff costs, mainly savings capita across Scotland on policing is 68. The force has no medium or long- on overtime of £377,000, additional £259 and has been around this level term financial plan. Current capital interest on revenue balances of for the last three years (Exhibit 6). plans are for three years (2008/09 to £120,000 and additional specific grant 2010/11) with current revenue plans for pensions costs, £1.372 million of 67. Tayside Police has strong financial only covering a single year, 2009/10. which has been earmarked to fund control. It has in place good processes The force has tended to accept that pension lump sum payments due for budget setting and monitoring, the amount of funding it receives but unpaid at 31 March for those and provides comprehensive reports from the constituent authorities will officers eligible to retire but continuing to the board. The force has a good match the share of funding for police in service. record of achieving efficiency savings. that it gets from the government. All departments and divisions are The force realises that this may not 65. This under-spend was added to tasked with finding efficiencies, be sustainable in the current financial the reserve. Within this, pension and efficiency targets are included climate and has been examining how lump sums amounting to £5.577 in budgets. The force monitors the it can generate time-releasing and million were earmarked within the business benefits accrued from best cash efficiencies, modelling its budget general reserve balance of £9.427 value reviews and other improvement on different levels of efficiency savings million at 31 March 2009. The board activity on a quarterly basis and to mitigate the impact. has approved the use of some of reports these annually to the board’s

4 Based on draft accounts 2008/09. 5 Cash savings are where the overall cost of an activity is reduced without reducing service quality. 6 Non-cash savings are where there is no change in the level of resources used but service quality is improved or there is a greater volume of service. Part 1. Corporate assessment 19

Exhibit 6 in Scotland (ACPOS) people strategy Gross expenditure per capita on Scottish policing 2006/07 to 2008/09 and has adopted it in the force. The force has some workforce planning Gross expenditure per capita 2006/07 2007/08 2008/09 processes in place. However, there £ £ £ is no specific workforce planning strategy to ensure that its future Scotland 259 258 259 workforce requirements are Tayside 249 234 242 planned around strategic priorities, skills and training needs and service Lothian and Borders 289 287 294 demand trends. Strathclyde 266 267 265 74. The force has made progress Northern 228 230 229 with job evaluation. New terms and conditions were issued to all support Grampian 215 222 235 staff in June 2009. The new terms Central 232 229 223 will be in place from 1 October 2009 and to date there have been no equal Fife 248 239 235 pay claims. Dumfries and Galloway 287 272 277 Equalities Notes: 1. All expenditure figures used for the above are taken from published annual accounts. For Fife, Tayside Joint Police Board and Dumfries and Galloway this is the council’s accounts and figures may include an allocation of the council’s ‘corporate overheads’. 2. On 1 April 2008, police ICT functions transferred to the SPSA (Scottish Police Services The board receives comprehensive Authority). This will affect comparative expenditure information between 2007/08 and 2008/09. Source: Audit Scotland updates from the force on its equalities activities but members show little awareness of their role 69. The force has good awareness savings of £700,000. These savings in this area. of its total costs in relation to its have been used to supplement divisions and functions, but finds it resources in a number of operational 75. The board has equalities schemes difficult to identify the cost of specific areas as well as setting up of the new in place for race, gender and activities, eg the cost of targeting functions of Force Information and disabilities. These indicate a clear drug dealing. This means the force Intelligence Division, and Operational understanding of the responsibilities has little awareness and hence lacks Support Division. placed upon the board under the transparency in the relationship relevant equalities legislation. These between resources invested, 72. There is good communication schemes are supplemented by action performance levels and overall through the rank structure to police plans which are reviewed annually. outcomes. sergeant/supervisor level, but internal However, the level of scrutiny of these staff communication systems remain plans is limited. There is no evidence 70. Tayside Police has asset weak at police constable/staff level. that members consider the equality management plans for both its There are no formal discussion and sustainability implications of fleet and property but these are not forums for police constables or reports submitted to the board. linked to or aligned with the force’s police staff and the main method for strategic priorities and objectives. communicating at police constable/ 76. The board is not proactive in There is no overarching asset staff level is through one-way ensuring that it and the force fulfil management strategy, although notification and briefing. The force is their duties in relation to equality there are some good examples of in the process of undertaking a staff and diversity. The board receives shared accommodation with the three survey so that it can fill the gap in an update on equality and diversity councils, eg public protection units its awareness of staff views, issues as a standing item at each ordinary and the shared access offices. that are important for staff and board meeting. These reports provide their morale. a comprehensive summary of the 71. Tayside Police has focused on how force’s activity with respect to its to make the best use of its people 73. The force’s human resource equalities duties. However, specific over the last few years through policies, covering issues such as skills items relating to equalities are review of structures and civilianisation development and training, are out generally only noted by the board, of posts. This work has led to the of date on the force’s intranet. The eliciting few questions and little transfer of some policing tasks and force was involved in developing the discussion. roles to support staff, with efficiency Association of Chief Police Officers 20

Tayside Police Force Exhibit 7 Central Division Community Advisory Group Tayside Police has a well-developed approach to equalities supported by Central Division has the most developed community advisory group effective consultation forums. (CAG) in Tayside Police. The CAG brings together a broad spectrum of the community, including the elderly and students, representatives of faith, 77. Tayside Police has a well- and lesbian, gay, bisexual and transgender groups, the disabled and the developed approach to equality Bulgarian and Polish communities. The force provides interpreters at the matters. The force has equality meeting where necessary. The group, which has taken on the functions schemes and supporting action of previous lay advisers, meets quarterly and provides a significant level of plans for gender, race and disability. scrutiny and support to the division. During its first 12 months of operation, It has a comprehensive and well- the group has given a voice to sections of the population who may find it presented equal opportunities hard to speak to the police, and has provided advice to the police on their policy. The force undertakes and communities. It has also produced a tangible product in the form of a Scots publishes comprehensive equality Law information booklet translated into Polish and Bulgarian for the large impact assessments of its policies. migrant communities in the area. It has also assigned responsibility for equality and diversity matters to Source: HMICS and Audit Scotland key personnel, and provides equality and diversity training to all staff in compliance with ACPOS agreed 80. Local disability organisations have Tayside Police Force standards. a generally positive view of the force’s work to promote disability equality. The force’s approach to 78. The force collects equalities This places Tayside Police in a strong sustainability is underdeveloped. information relating to staff, officers position to be alive to the concerns of, Although some work has begun, and job applicants in order to monitor and assess their operational impact the force does not have an its progress in this area. It uses within, communities. approach that covers all aspects available statistical information to of sustainability. tailor its equal opportunities actions Sustainability and initiatives to the needs of staff 82. The force acknowledges that and service users. It has established Tayside Joint Police Board its approach to sustainability is confidential arrangements for underdeveloped, and has set up collecting and monitoring equal The board receives little information an environmental working group opportunities data and in 2008 in relation to sustainability and to develop a force environmental expanded this data collection to shows limited awareness of its role strategy. The force is not currently include all diversity strands. This in this area. considering the implications of the online survey saw an excellent return other aspects of sustainability, ie rate and provided the force with a 81. Sustainability is not considered economic and social sustainability, comprehensive workforce profile. at board meetings. There is a lack of and not capturing the activities it Following analysis of information reporting to the board on sustainability undertakes in this regard with relevant collected it took positive action to reflecting the force’s underdeveloped community planning groups. address the age imbalance within approach to this matter. Individual its police officer recruits. This councillors show little awareness information enables the force to of their role in relation to pursuing review existing practices thus sustainable development, which ensuring it is alive to potential inhibits the board in fulfilling its duties discriminatory processes, and and responsibilities. promoting a positive working environment.

79. The force uses Community Advisory Groups (CAGs) to engage with a wide spectrum of the community. These are particularly effective and are positively received in Central Division (Exhibit 7) with participants reporting increased levels of community confidence in the police. 21 Part 2. Tayside Police Force performance assessment 22

Delivering policing plan outcomes review of SPPF counting conventions Objective 1 – Make our has therefore been instigated by communities safer by working The force’s policing plan is outcome ACPOS to identify these recording more closely with our partners focused and acknowledges and process issues and it is important 87. The force aims to make the importance of working in that Tayside Police continue to engage communities safer with an emphasis partnership. Its objectives have with this. The SPPF assists scrutiny on reducing alcohol and drug-related changed annually and relevant bodies to hold forces to account and crime and disorder, and protecting measures to identify achievements therefore compliance with counting children and other vulnerable and impact are not fully developed. conventions is essential to ensure people. Much of this work has The force has been successful accurate comparisons are made. been undertaken at a local level in reducing recorded crime and with partners. Measures that relate increasing detection rates in several 85. When making SPPF force to these activities are a focus for key groups. There is a gap between comparisons, this acknowledged all officers and include crimes of this improving performance and lack of maturity in data recording has violence, indecency, dishonesty, public perceptions of crime. to be considered along with local fire-raising, malicious and reckless context. This includes differences conduct (known as groups 1 to 4 83. Tayside Police has a strong record between forces in demography, crime types). The force has achieved a of engaging with partners in order geography and areas of deprivation. consistent reduction in recorded crime to achieve outcomes that reflect Tayside Police is the fourth largest within these groups over ten years local needs. The most fundamental police force in Scotland in terms of and in 2008/09, the force performance measure of success for any police officer/staff resources, population and was generally positive compared to force is the delivery of tangible geography. The force as a whole has other forces. outcomes for the communities it a higher than average percentage of serves. It is anticipated that SOAs population of pensionable age and is 88. The detection rates that the force will become one of the key sources just below the Scottish average for records for crime groups 1 to 4 are of evidence of force performance but the percentage of population who are consistently higher than the average these are still at a relatively early stage income deprived. Dundee City local rates for Scotland as a whole (Exhibit of implementation and our ability to authority area has a large share of the 8). As can be seen, detection rates assess the extent to which outcomes most deprived areas in Scotland.7 vary widely across Scotland and there have been achieved is limited. We is still a lack of ability within forces to have therefore considered how 86. The force strategic objectives have explain and understand why. They are Tayside Police is making a difference been subject to change over the past impacted by factors such as recorded by examining service performance three years. In 2006/07, Tayside Police crime levels, adherence to the in relation to its strategic objectives outlined three objectives and a set Scottish Crime Recording Standard,8 for 2008/09. of service standards. It reported on geography and demography. This these objectives in 2006/07 and inability is being addressed at a 84. The SPPF was launched in April 2007/08. A new set of strategic national level by ACPOS. 2007. The framework monitors and priorities were reported on in 2008/09 reports on the policing performance and these have since been further 89. One of the force’s highest of all eight forces in Scotland and is refined in the 2009–11 Strategic priorities is to target drug dealing designed to fully reflect the breadth Plan. Force service standards were and the abuse of drugs. A measure and variety of policing activity. In removed from this plan and are of police activity in this area is the order to ensure that forces measure currently being reviewed. While it is number of drug supply offences performance in the same way, there acknowledged that there has been recorded. The force has seen an are agreed counting conventions for understandable reasons for change, overall increase in the level of drug each of the performance indicators consistency in stating what the force supply crimes recorded in 2008/09. and context measures contained is striving to achieve is essential for its To put this in context, force activity within the framework. However, staff, partners and communities. Such in relation to detecting class A drugs due to local recording practices consistency would make measuring offences has fluctuated over the and processes, it is clear that the progress more achievable. past three years. In 2007/08, Tayside differences in information captured by Police reported the biggest decrease the SPPF cannot always be considered in the number of offences for class A as differences in performance drugs out of the eight Scottish forces. between forces. A service-wide This was reversed in 2008/09, with the force recording its highest ever number of class A offences. This

7 Scottish Index of Multiple Deprivation 2006, Scottish Government. 8 ACPOS Scottish Crime Recording Standard, April 2007. Part 2. Tayside Police Force performance assessment 23

Exhibit 8 the publication of a review of call Group 1 to 4 comparative performance management in police forces in Scotland,9 led the force to begin

60 2006/07 detection an evaluation of its communication rate – group 1-4 centre. Numerous recommendations 50 were made including significant 2007/08 detection rate – group 1-4 changes in staff and structures. These 40 recommendations were progressed 2008/09 detection by the force and by the end of March 30 rate – group 1-4 2009, 92.8 per cent of all 999 calls

Percentage 3-year average 20 to the force were answered within detection rate target, compared with 87.7 per cent – group 1-4 10 in 2008.

0 94. Improvements have also been made in the force’s ability to Fife answer non-emergency calls. Central Tayside

Borders Northern Scotland Galloway Grampian Since March 2009, it has been able Strathclyde umfries and Lothian and D to compare itself against the Source: HMICS national target and benchmark performance in this regard. The force now needs to ensure that it reflects the increased activity and cent increase in relation to officer is achieving and sustaining focus on the abuse of drugs which is visibility. In spite of these efforts, their performance in relation to national visible within daily force business and public perception survey reveals that targets for non-emergency calls. partnership working. in relation to antisocial behaviour, four per cent more respondents believe 95. The force has improved their 90. There is a differential between antisocial behaviour is taking place overall capacity to answer calls from actual performance by the force and in their neighbourhood and there are the public. The percentage of calls the public perception of drug issues. decreases in confidence levels relating abandoned is a significant measure Over the same reporting period, to perceptions of individual safety. and the force has improved from the force public perception survey 15 per cent in 2007/08 to 10.5 per revealed that the perception of 92. Tayside Police are successfully cent for 2008/09. Call handling is drug-related problems had increased reducing crime levels and working one of the most critical areas of by seven per cent. The force has with partners to prevent drug and interaction between the police and recognised the multitude of problems alcohol abuse but has been less the public. It is accepted that for a posed by drugs and is currently successful in improving public variety of reasons calls will always developing a partnership approach to perception. A strong emphasis on be abandoned, however, further tackle these issues. community engagement in all of improvement is required to meet the these activities is essential to reduce industry standard of less than eight 91. This degree of difference between this perception gap and achieve the per cent. actual performance and public desired outcome. perception is also evident in relation to 96. Public satisfaction levels in relation antisocial behaviour. The force’s aim to Objective 2 – Increase public trust to initial contact with the force have reduce antisocial behaviour has been and confidence marginally improved in 2008/09. driven by targeting alcohol-related 93. Tayside Police has improved its This increase in public satisfaction crime and disorder. It has worked in call-handling service. Within the force includes initial contact with police partnership to deliver initiatives linked Service Standards 2008/09 it aims officers where service satisfaction to SOA priorities. Recorded crimes of to ‘answer emergency calls within has improved across the breadth of vandalism, which are often used as a ten seconds’. This is in keeping with measures. The overall enhancement measure of antisocial behaviour, have the national target of answering in public satisfaction is positive but decreased in 2008/09 by ten per cent. 90 per cent of 999 calls within this should be set in a national context. The force has focused on providing a time. In 2007/08, Tayside Police was In 2007/08, the force reported high-profile police presence and their one of only two Scottish forces that levels of user satisfaction below the service satisfaction survey shows did not meet this target. In 2008, Scottish average for three out of the recognition of this with a nine per concern over this performance and four questions asked. The force has

9 Police call management: an initial review, Audit Scotland, September 2007. 24

demonstrated a desire to continue the performance of Tayside Police in to improve public satisfaction and achieving outcomes. recently launched its ‘Quality of Service’ agenda. Force operational priorities 100. The force control strategy (see Objective 3 – Improve the efficiency Appendix 2) is not directly linked of our organisation to the force strategic priorities and 97. Sickness absence performance in objectives. The force control strategy Tayside Police shows a positive trend priorities are: serious and organised with the percentage of working time crime groups, class A drugs, alcohol- lost decreasing for both police officers related antisocial behaviour, public and staff but at a slower pace than protection and safety, and terrorism. being reported throughout Scotland. The force objectives do not explicitly In 2008/09, the force had the second include some force control strategy highest percentage of working days priorities. Force performance lost, for both police officers and reports do not include the scope of staff, of forces in Scotland. This is force prevention, intelligence and at odds with the performance we enforcement activity undertaken to would expect given the force size. protect its communities from this HMICS is currently undertaking a potential harm. This assessment thematic inspection on attendance of policing plan outcomes has management and expects to publish therefore not covered the full range findings in late 2009. These may of force activity. HMICS has recently assist the force to continue to lessen inspected the force management the impact of absence on colleagues and performance in relation to control and service delivery. strategy priorities and this is subject to a separate report. 98. Tayside Police has improved the time of submission of reports to both the procurator fiscal and the Children’s Reporter, but is still not meeting the agreed national standard for either. During 2008/09, the force recorded the third highest proportion of police reports submitted to the procurator fiscal within 28 calendar days, with only two Scottish forces performing better. During the same period, it was the poorest performing Scottish force in relation to police reports submitted to the Children’s Reporter within the agreed standard. These standards have been agreed to improve the efficiency of the criminal justice process.

99. The force does not currently have adequate measures of its policing plan objectives to enable full understanding of its performance. This is most apparent in relation to organisational efficiency and public trust and confidence. The force is developing new service standards and integrating the means to measure the improvement and impact of each will benefit them greatly. Without comprehensive relevant measures it is difficult to completely understand 25 Part 3. Improvement recommendations 26

The improvement programme This requires a culture where areas in the benefits of which are already need of improvement are identified becoming apparent in the services 101. Continuous improvement in and openly discussed and in which it provides. public services and local governance service performance is constructively are central to the Best Value challenged. 103. Tayside Joint Police Board, Tayside and Community Planning policy Police Force and the chief constable framework. In striving to achieve the 102. Tayside Police has a good must work together and take shared highest possible standards of service, awareness of where it needs to responsibility to deliver a best value members of the board must focus on improve and already has some plans in police service to the communities of key policy objectives and the needs place to address these areas. Indeed Tayside. The table below sets out the of service users and communities. the force has become increasingly key areas where the force and the engaged in improvement activity, board need to improve.

Improvement agenda

Tayside Joint Police Board • exercising stronger, transparent 3. P rovide opportunities for the board scrutiny and challenge of the members to appraise options 1. Ensure that all members of the board strategic use of resources, and make decisions, particularly have a clear understanding of their performance, improvement activity, in relation to determining roles and responsibilities as laid out in community planning activity and strategic priorities and prioritising the Scottish Government’s guidance. outcomes for the public improvement activity. Better inform board members by providing reports • proactively requesting exceptions 2. E nsure that all members participate in on community planning, community reports. training opportunities specific to board engagement and sustainability, along duties and identify areas of training with comprehensive, comparative Tayside Police Force need through self-assessment. performance information.

3. E nsure that the duties of the board in 1. S trengthen corporate strategic 4. Enhance service performance by: relation to Best Value and Community leadership and challenge through: Planning are discharged by: • focusing on public perception of • integrating operational and crime to raise confidence levels • proactively driving improvements by improvement planning processes being more involved in identifying into divisional/departmental plans • sustaining the improving trend in areas for best value review and linked to strategic priorities and call handling areas for improvement, and incorporating high-level costing • sustaining the force’s planned prioritising identified improvement • developing an improvement activity to improve services. activity in conjunction with the force programme management • seeking assurance that the force approach through a consolidated Tayside Joint Police Board, police engages with community planning and prioritised force-wide authorities (constituent councils) and partners corporate improvement plan Tayside Police Force

• scrutinising the impact and • developing corporate approaches 1. R eview governance and outcomes of community to force-wide matters such as accountability arrangements for planning work community planning, community the board. engagement, strategic asset • developing links to the community management, workforce planning 2. Strengthen the role of the councils safety partnerships and sustainability, linking these to in supporting the board and its • taking joint ownership of the strategic priorities, the SOAs and members. force’s public performance report partners’ strategies. 3. Jointly agree a plan to assist the • improving engagement in 2. Foster an improvement culture by board to discharge its Best Value equalities and sustainability. strengthening the performance and Community Planning management approach using responsibilities, identifying actions 4. E nsure that the duties of the board in performance monitoring that is required by the board, councils and relation to holding the chief constable comprehensive, balanced and linked the chief constable. to account are discharged by: to strategic priorities. Ensure clear • considering regular, comprehensive lines of accountability and ownership reports from the chief constable on of performance including agreed and performance of the service monitored improvement actions. 27 Appendix 1. Expectations of police authorities

Having examined existing guidance • Members of the police authorities for policing (Circular 11/2003 and should be able to demonstrate that Guidance for Members, June 2007), they are making the best use of we are able to make a number of public resources and demonstrate statements on expectations: an approach to review that is rigorous, robust and covers all • Police authorities need to pursue aspects of their work. best value in tandem with chief constables who are responsible • Police authorities need to make for police operations in their force. sure that the force collects and Members of the police authorities reports good-quality performance should take joint responsibility for data to them. Police authorities the overarching plan to achieve should analyse the data and any best value and other duties in the accompanying commentary. They force, and work with the chief may then want to investigate constable to ensure that it is further by asking questions of carried out effectively. the chief constable as part of a continuous discussion and review • Best value requires elected of force performance. 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.

• It is a matter for each authority to determine how it fulfils these roles. However, one option might be for the police authorities to contribute to and endorse the chief constable’s annual plan. 28 Appendix 2. The National Intelligence Model

The National Intelligence Model (NIM) is an intelligence-led business model used by the police to manage risk, identify operational priorities and allocate resources.

The strategic assessment is a key component of NIM and provides an overview of long-term issues which involve criminality or have community safety implications. Strategic assessments are produced at national, force and divisional levels.

The control strategy is derived from the strategic assessment and sets out the long-term priorities to be tackled.

Those priorities which are deemed to be of greatest risk are known as very high priority risk areas (VHPs). The national VHPs are currently antisocial behaviour, terrorism, public protection, serious organised crime groups, drugs and violence.

The control strategy also identifies prevention, intelligence and enforcement recommendations (PIEs), which outline activity to tackle the VHPs. Tayside Police and Tayside Joint Police Board Best Value Audit and Inspection

If you require this publication in an alternative format and/or language, please contact us to discuss your needs.

You can also download this document at: www.audit-scotland.gov.uk www.scotland.gov.uk/hmics

Audit Scotland, 110 George Street, Edinburgh EH2 4LH 1st Floor West, St Andrew’s House, Regent Road, Edinburgh EH1 3DG T: 0845 146 1010 E: [email protected] T: 0131 244 5614 E: [email protected] www.audit-scotland.gov.uk www.scotland.gov.uk/hmics

ISBN 978 1 906752 69 9

Printed on Revive 100 Uncoated, a Forest Stewardship Council (FSC) certified recycled grade containing 100% post consumer waste and manufactured at a mill certified with ISO 14001 environmental management standard. The pulp used in this product is bleached using an Elemental Chlorine Free process (ECF).