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Policing with Local Communities Report of the Garda Síochána Inspectorate Policing with Local Communities December 2018 PB I The objective of the Garda Síochána Inspectorate is: ‘To ensure that the resources available to the Garda Síochána are used so as to achieve and maintain the highest levels of efficiency and effectiveness in its operation and administration, as measured by reference to the best standards of comparable police services.’ (s. 117 of the Garda Síochána Act 2005) III POLICING WITH LOCAL COMMUNITIES Table of Contents Introduction 1 Executive Summary 4 Chapter 1 - Local Policing – The Strategic Perspective 31 Introduction 32 A Changing Ireland 32 Implications of a Changing Environment on the Delivery of Local Policing Services 39 Garda Functions, Budget and Staffing 40 The Importance of Understanding and Measuring Demand 41 Tools to help Understand, Measure and Manage Demand 45 Determining Policing Priorities 48 Critical Action 1 51 Structures to Deliver Policing Services 52 Divisional Functionality Model 54 Strategies and Plans to Deliver Policing Services 59 Strategy for Growth 68 Governance, Accountability and Risk Management at a Strategic Level 70 Critical Action 2 72 Chapter 2 - Allocation, Availability and Utilisation of Resources 75 Introduction 76 Part I – Allocation of Human Resources 76 Garda Síochána Staffing Levels 77 Allocation of Resources 2014 to 2018 84 Allocation of Garda Members to Local Policing 85 Critical Action 3 94 Part II – Availability and Utilisation of Resources for Local Policing Services 95 Garda Visibility 95 Utilisation of Garda Stations and Access to Services 101 Custody Facilities 108 Stations Now and Into the Future 110 Availability and Utilisation of Garda Staff 111 Availability and Utilisation of the Garda Reserve 116 Mobility of Staff 122 Availability and Utilisation of Overtime 122 Availability and Utilisation of Garda Vehicle Fleet 126 Other Specialist Resources and Equipment 129 III POLICING WITH LOCAL COMMUNITIES Factors Affecting the Availability and Utilisation of Resources 129 Critical Action 4 134 Performance Management 136 Attendance Management 138 Technology Gaps 143 Human Resource Managers 143 Critical Action 5 144 Chapter 3 - Deployment and Capabilities of Resources at the Local Level 145 Introduction 146 Deployment of Resources at the Local Level 146 Understanding Public Demand at the Local Level 146 Understanding Protective Demand at the Local Level 152 Briefing, Tasking and Debriefing 153 Duty and Resource Planning 155 Garda Rosters 157 Call Allocation and Investigation Policies and Practices 161 Critical Action 6 165 Developing Workforce Capability at the Local Level 167 Strategic Issues Impacting on Workforce Capability 172 Front-line Supervision 179 Technology to Support Local Policing 186 Critical Action 7 190 Chapter 4 -Delivering Local Policing Services 193 Introduction 194 Local Policing Services 194 Service Delivery 195 Headquarters and National Structures to Support Local Policing 201 Local Policing Plans 203 Critical Elements of Local Policing Services 206 Crime Prevention and Community Reassurance 209 Community Engagement 212 Community Policing 222 Responding to Calls for Service 231 Investigation of Crime and other Incidents 232 Enforcement of Powers 232 Policing National and Local Events 233 Problem Solving 233 IV V POLICING WITH LOCAL COMMUNITIES Preventing Offending and Managing Offenders 234 Partnership Working 237 Governance, Risk Management and Accountability for Local Policing 238 Governance 239 Risk Management 241 Local Accountability 242 Critical Action 8 245 Divisional Policing Model – the Way Forward 247 Inspectorate Divisional Functionality Model 250 Individual Functions 252 Analysis of Benefits and Challenges 258 Critical Action 9 266 Appendix 1 267 Appendix 2 282 References 283 IV V POLICING WITH LOCAL COMMUNITIES The development of multiple rosters, aligned to a unit’s policing function, would put resources Foreword on duty when needed. There are also inefficient practices linked to garda allowances which Visibility, accessibility and reassurance are inhibit effective use of resources. essential elements of policing and are critically important to local communities, particularly A leaner Garda Síochána organisational structure those most vulnerable. They can also have a based on divisions rather than districts, with positive effect on public confidence in policing. fewer regions and divisions, would improve Delivering effective policing services is not solely efficiency and effectiveness and provide dependent on the number of staff or stations additional resources for front-line duties. The available, but on the totality of resources at the district model is too small in scale, leading to disposal of the Garda Síochána and how they are inefficient and inconsistent services to victims used. and communities. The Inspectorate believes that a move to a divisional policing model would In policing, it is critically important to improve local services and ensure sufficient understand demand for services in order to levels of resources are available at peak demand match resources with the right skills to meet the times. While the Garda Síochána is committed various demands. This inspection found a limited to a divisional approach, the proposed model understanding of the demand for garda services effectively retains the district structure. This and the Inspectorate considers that the absence report contains a detailed analysis of how a of an intelligence-led strategic assessment divisional model could improve the delivery of process is a significant weakness. Although the local policing services. Garda Síochána has a workforce plan, it is still unclear what the optimum number and mix of The inspection identified several areas of members, garda staff and reserves should be to organisational risk, including the deployment police Ireland. Opportunities to increase front- of district detectives to incidents requiring line resources and release members to areas of an armed response, without the same level of higher risk and vulnerability are hindered by training and equipment as Armed Support slow progress on civilianisation and declining Units. This requires an organisational review numbers of reserves. It is disappointing to find to determine the national firearms response large numbers of members still working in non- requirement. There are also serious concerns operational posts. about front-line supervision levels, particularly with the inexperience of a large proportion of Despite a recommendation made in 2009, members. Training also needs to be addressed to no model is used to allocate resources to ensure sufficiency of local policing skills, such as headquarters and national units and the model response driving. used for local policing is not evidence based. As such, it does not determine how many staff a The Garda Síochána is well behind other division needs to match its policing demands. At comparable police services in terms of using a local policing level, there are often insufficient modern technology for dealing with calls for gardaí on duty at the right times to deal with service and resource management. Mobile local demand and, compared to urban areas, devices could transform garda capability and there are often fewer gardaí available each day local policing should be prioritised for new in more rural places. Abstractions of members technology. for prisoner escorts and other non-core functions greatly impact on the availability of resources Visibility matters to local communities and they and often the persons most affected are victims want to see an increased garda presence. While of crimes and local communities. The “one- there is an understanding within the Garda size-fits-all” garda roster is not making the best Síochána of the importance of visibility, there is use of finite resources and, although popular no strategy or local plans to utilise resources for with members, it does not support the effective greater visibility. delivery of local policing services. VI VII POLICING WITH LOCAL COMMUNITIES Visibility can be increased without additional Local policing plans present an opportunity to resources by maximising foot and cycle patrols as address community needs and a more interactive well as using reserves and members on overlap and collaborative approach should be taken to shifts. An intelligence-led approach would achieve positive outcomes on things that matter identify where visible policing can have the to communities. Plans are not costed, and it is greatest impact. unclear if sufficient resources are in place to deliver objectives. There should be one local Policing should be mobile and accessible divisional policing plan, supported by micro to the public, by using innovative ways of level plans created in smaller community delivering services away from garda stations. policing areas. Accountability for the delivery The development of garda clinics, kiosks of local policing services could be enhanced or shopfronts, particularly in locations of through the further development of Joint Policing high footfall would bring services to local Committees and local community fora. This communities. A decision needs to be taken on needs to be supported with guidance, training whether it is more efficient to build new stations, and funding and with much wider community to refurbish existing accommodation or lease representation. facilities that provide more agility. It is also important to consider if it is cost effective to invest Crime prevention should
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