Garda SMI Implementation Steering Group – Final Report
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Garda SMI Implementation Steering Group Final Report February, 2004 1 Table of Contents Page Chairman’s Foreword 4 Introduction: Background 7 The Report 7 Change Management 8 Consultation 9 Conclusion & Recommendation 10 Part 1 Review of Garda Síochána Structures and Organisation 1.1 Structures and Service Delivery 13 1.2 Community Policing 23 1.3 Housing Section 26 1.4 Telecommunications Section 28 1.5 Traffic Accident Investigation - need for National Unit 30 1.6 Roles of Ranks 32 1.7 Criminal Justice Management 35 1.8 Garda National Drugs Unit 38 1.9 National Bureau of Criminal Investigation 40 1.10 Logistics 42 1.11 Liaison and Protection 45 1.12 Transport Maintenance and Procurement Compliance 48 2 Part 2 Reviews and projects previously reported to Government Page 2.1 Quality Service 52 2.2 Rosters 54 2.3 Financial Management and Procurement 55 2.4 Human Resource Management 57 2.5 Promotion 59 2.6 In-Service and Management Training 60 2.7 Student/Probationer Training 62 2.8 Civilianisation 64 2.9 GERM 65 2.10 PULSE 66 2.11 Legislative Change 67 2.12 Performance and Accountability Framework 68 2.13 Performance Management 70 Appendices (a) Members of Steering Group 71 (b) Members of Bottom-Up Review Group 72 (c) Glossary of Terms 73 Charts 1 Proposed HQ Structure 18 2 Proposed Regional Organisation 20 3 Foreword by Mr Kevin Bonner Chairman of the Garda SMI Implementation Steering Group 1. The Steering Group on the Review of An Garda Síochána concentrated on developing a broad strategic framework for action and on identifying issues for further development within this framework. Following on from that, the Government appointed this Implementation Steering Group in January 1998 to develop and implement the overall programme for change which had been recommended in the report of the Steering Group on the Efficiency and Effectiveness of the Garda Síochána. I welcome the opportunity to outline some of the achievements in respect of the projects developed as part of the Garda SMI process and to present the Steering Group’s recommendations for change and modernisation. 2. With the assistance of management consultants a programme of reviews and initiatives has been completed on behalf of Steering Group, including a review of Garda structures, operations and organisation. These reviews have identified key needs/issues to be addressed in relation to the change/modernisation required for An Garda Síochána at this time. The next step is facilitating change. In making its recommendations the Steering Group is conscious of the role traditionally played by An Garda Síochána in Irish society and of the changes which have taken place in that society, particularly the changing nature of crime. 3. The first phase towards fundamental change was the report on Efficiency and Effectiveness of the Garda Síochána. This, the second phase, reviewed structures and operation systems of An Garda Síochána and makes recommendations to facilitate implementation of specific changes. The next phase will be the detailed development and implementation of individual elements of a change management programme. 4. The Report of the Steering Group on the Efficiency and Effectiveness of the Garda Síochána stressed the need for an inclusive approach to the implementation of SMI initiatives, based on excellent communication, consultation and participation at all levels of the Force. We have sought to ensure the widest possible involvement of staff and representative associations. The four Garda staff associations are represented on the Implementation Steering Group and were consulted at all stages of the review process. As part of the research, considerable consultation was engaged in throughout the organisation in regard to the challenges and opportunities 4 facing the Garda Síochána. The recommendations made in the report seek to address and develop these issues. In addition, throughout the SMI review process, change management briefings/seminars were delivered to members of the Garda organisation including civilian staff, senior Garda management and all representative bodies. 5. Significant structural change and development has emerged from the SMI process across the public service. I believe that there is recognition within the Garda Síochána of the need for change and for modernisation of practices and procedures. I have no doubt that the SMI process will support the Garda Síochána in providing an efficient, effective and excellent policing service to the public at all times. 6. There are issues to be addressed in deciding future policy. Transition to the new structures will require careful strategic planning and management of change, leadership involvement, good communication and proper co-ordination of implementation. As well as looking at the business of the organisation, An Garda Síochána needs to look at the way in which it does its business so as to achieve more effective management and supervision of resources. This progress report recognises the apprehension which may face some of the stakeholders. However, this is also an opportunity to ensure that the Garda Síochána positions itself to continue its proud history of excellent service to the community. The benefits to the organisation will be optimised by introducing new management processes and developing the culture of the organisation to reflect the defined competencies of each rank. 7. The overall design phase of the Garda SMI projects is now completed. The Garda SMI programme involves a continuing process of change. As a consequence, while recognising that there are implications regarding resources which may have to be considered in the context of Government policy on staffing levels and expenditure, the development and implementation of change must be regarded as a long term process requiring continued commitment of dedicated resources in the years ahead. In other words, this report marks the beginning rather than the end of a process, a process which must continue into the future, and which must and will be led more and more by the Garda Síochána itself as an organisation. By adopting a strategic approach, best management practice, and adapting to changing circumstances, an Garda Síochána can maintain and continue its role as an organisation in which the nation can have confidence and pride. 5 8. The high level implementation plan, which will enable Garda management and the Department to plan the modernisation and enhancement of the Garda organisation, is provided in the structures and service delivery review. The detailed implementation can be decided and priorities planned and developed further as necessary. 9. I would like to take this opportunity to thank the members of the Steering Group, the Bottom up Review Group and the Garda SMI Team and all who contributed to successfully bringing forward such a wide ranging programme of recommendations for change. I would particularly like to thank Mr. Declan Brennan, Chairman of the BURG, and Assistant Commissioner Crummey for the sustained efforts they made to further our work. I would like also to acknowledge the input of Mr. Eamon Leahy, SC, who contributed to the review of legislative change and who we sadly missed after his untimely death. 10. I would recommend to Government to accept these recommendations as the basis for driving forward and implementing the process of change and modernisation which must continue over the coming years. Kevin Bonner Chairman 6 Introduction Background In November 1997 the Government accepted in principle the recommendations set out in the Report of the Steering Group on the Efficiency and Effectiveness of An Garda Sío chána. That review was conducted within the framework of the Strategic Management Initiative across the public service. The report contained many recommendations requiring a more comprehensive development of issues relating to the organisation, operations, financing and performance and accountability of An Garda Síochána. In January 1998 the Government established a Garda SMI Implementation Steering Group, chaired by Mr Kevin Bonner, to develop the report’s recommendations for implementation. To this end, a Bottom-Up Review Group (BURG), chaired by Mr Declan Brennan, was established to focus on organisation structures/systems and the deployment of operational resources and to bring recommendations to the steering group in the areas for which it was made responsible. The BURG was comprised of representatives of An Garda Síochána, the Department of Justice, Equality and Law Reform and the Department of Finance with the assistance of an independent member. A full- time Implementation Team, comprising representatives from the Department of Justice, Equality and Law Reform and from An Garda Síochána management, was also appointed to assist the BURG. The Report The Government was advised in November 1997 that the overall development and implementation process could take three to five years. The first report to Government was made in June 1999 with a second in June 2000. The BURG reports are also summarised in this comprehensive report. This is the final overall report from the Steering Group to Government. 7 The Report outlines progress that has been made to date in developing the Garda SMI projects. It is presented in two parts: Part 1 gives an overview of all projects completed since the last Report to Government in June 2000. Part 2 gives an overview of projects previously reported to Government and outlines the progress made towards implementation. For clarification purposes, please note that material included under the heading ‘Summary of Key Findings’ in each section below refers to the position established by the BURG at the time of the review in each case. Change Management The original Garda SMI Report stressed the need for an inclusive approach to be taken to the implementation of the SMI initiatives based on communication, consultation and participation at all levels of the Force. The Steering Group has sought to ensure the widest possible involvement of staff and representative associations. The four Garda staff associations were represented on the Implementation Steering Group and were consulted regularly by the Bottom-Up Review Group.