HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

HM Inspectorate of Constabulary Central Region

Inspection of Chase BCU Staffordshire Police

CROWN COPYRIGHT ISBN 978-1-84726-313-1 Hard Copy FIRST PUBLISHED 2007 ISBN 978-1-84726-314-8 Electronic Copy

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

CONTENTS

page

1. Executive Summary 5 Recommendations and Good Practice 6

2. Introduction and Methodology 8

3. The Force and BCU Context 10

4. The Leadership Audit 13

5. BCU Performance 22

6. What We Found 25 The Baseline Assessment Frameworks Leadership and Direction 26 Leadership Performance Management and Continuous Improvement Citizen Focus 28 Fairness and Equality in Service Delivery Neighbourhood Policing and Problem Solving Customer Service and Accessibility Professional Standards Reducing Crime 30 Volume Crime Reduction Investigating Crime 30 Managing Critical Incidents and Serious Crime Tackling Serious and Organised Criminality Volume Crime Investigation Improving Forensic Performance Narrowing the Justice Gap Promoting Safety 32 Reducing Anti-Social Behaviour Protecting Vulnerable People Providing Assistance 33 Call Management Accessing Specialist Operational Support Resource Usage 33 Human Resource Management Training, Development and Organisational Learning Race and Diversity Resource Management Information Management National Intelligence Model

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

APPENDICES Appendix ‘A’ Chase Organisational Structure Appendix ‘B’ Leadership Audit Survey Results Appendix ‘C’ Performance Charts Appendix ‘D’ Notional Contract

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

1. Executive Summary

1.1 Basic Command Units (BCUs) are a fundamental building block in the delivery of policing services. Following a five-year rolling programme of BCU inspections, HMIC has moved to a more intelligence-led approach whereby only a small number of BCUs are selected for inspection, following an examination of their relative performance within their most similar BCU (MSBCU) group. (The inspection itself includes review of performance data, a comprehensive self-assessment process and leadership audit, followed by a structured and on-site inspection.) In the case of Chase BCU while some performance problems had been identified by HMIC the inspection was in fact conducted at the invitation of the BCU commander and senior officers of the force.

1.2 Chase BCU is centred on the county town of Stafford, serving three local authority areas - Stafford Borough, Cannock Chase District and South Staffordshire District Councils. The BCU has a total population of 318,692 in 129,100 households, centred on the main urban areas of Stafford and Cannock; the BCU also contains large areas of rural countryside and smaller towns such as Rugeley, Stone and Wombourne. The area is well served by the major roads network, and attracts significant numbers of visitors for both business and recreation. The annual ‘V’ festival attracts up to 70,000 people for what is now a major established popular music event.

1.3 Staffordshire BCUs operate under considerable freedoms - devolved from force including police pay. Without losing corporacy, BCU commanders are encouraged to innovate. Chase BCU faces some significant challenges, including the roll-out of neighborhood policing teams, and has had considerable success in attracting funding and support for Police Community Support Officers (PCSOs). Against this background, in many performance areas the BCU performs above the average for its MSBCU family. Performance challenges include the volume and detection of violent crime, and the detection of residential burglary and robbery.

1.4 The Leadership Audit, consistently reinforced by other elements of the inspection, reveals a well-motivated workforce, working in what they perceive to be a positive and rewarding environment where roles are clearly defined and supported by a meaningful Performance Development Review (PDR) process. Some concerns were expressed around the sufficiency of resources to meet demand, subject to ongoing work within the BCU. It was clear that senior managers take the time to consult and communicate with their staff, leading to a feeling of inclusivity and underpinning a ‘can do’ culture.

1.5 Any searching inspection process is likely to highlight areas for improvement. In Chase, gains can arguably be made through work to address custody capacity issues and in the allocation and management of crime enquiries. Taken together, these do not represent serious concerns about the management of the BCU and are more than offset by strengths such as the positive working environment/cultural effective financial planning and governance, an active Special Constabulary working as an integral part of BCU operations, and the development of a managed crime unit. The commitment of the Senior Management Team (SMT) to the ongoing vitality and continual improvement of the BCU’s performance through engagement Page 5 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

with communities, partners and staff promotes confidence in the continued success of this BCU.

Recommendations and Good Practice

1.6 The inspection team has made the following recommendations that should contribute to the drive for continuous improvement displayed by the BCU. There are also various suggestions that the SMT may wish to consider contained within the What We Found section of the report, mainly from data gathered by the inspection team or from BCU staff participating in focus groups or interviews.

Recommendation (1):

The BCU has clearly identified its custody provision as a potential impediment to performance improvement, and is currently engaged in strategic development towards a new custody facility shared with a neighbouring BCU. However, to address these issues in the short term the BCU should re-examine the scope for more productive use of its existing capacity, focusing particularly on better management of bail-backs to the police station.

Recommendation (2):

Tensions are evident between arrangements for the allocation of crime investigations and the shift pattern worked by operational officers, which can lead to delay in the initial investigation of offences and risk both to victim dissatisfaction and the loss of sanction detections. The BCU should review its crime allocation process to maximise the chances of a positive outcome. Where crimes are allocated to investigating officers, early supervisory activity should include a crime investigation plan which ensures that all productive lines of enquiry are followed.

Page 6 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

1.7 The inspection team also acknowledges the following areas of good practice:

Culture: Throughout the inspection the positive ‘can do’ nature of Chase BCU’s culture was evident. It is also a culture of inclusion, fostered by formal links and contacts and reinforced through informal links between senior and junior staff. In particular, effective links between different teams and disciplines create a team atmosphere and an environment where staff value the contribution of others. This culture is clearly influenced by the personal investment of the BCU commander and his senior management team, and can be seen through interaction with staff representative groups, communities and partners.

Special Constabulary: The Special Constabulary provides excellent support at Chase. Under an established divisional and sub-divisional command structure, officers provide support during traditional periods of high demand, such as Friday and Saturday evenings, as well as local support through alignment to neighbourhood management teams. The divisional officer has developed and maintains a comprehensive personnel record to inform the selection and deployment of staff. There are ambitious plans to expand the Chase Special Constabulary to 200 by the end of 2007. The Special Constabulary has taken on responsibility for specific functions including the policing of Stafford Rangers Football Club and the Tuesday night-time economy in Stafford. On two recent occasions Specials were able to call to duty a full Common Minimum Standards (CMS) serial to respond to local disorder within an hour of the first call for assistance. Managed Crime Unit: The BCU has identified a quality of service issue around unattended reports of crime. Using staff from each Incident Management Unit (IMU) shift on short attachments, it has put in place a system for attending and obtaining crime reports through a system of appointments, offering victims of crime a more consistent and reliable service. It addition to offering reassurance and a better quality of service to victims, this initiative may also deliver additional sanction detection opportunities through more timely intervention. Financial Planning and Governance: Staffordshire Police operates significant budget devolvement, including police pay, to its BCUs. In Chase, a combination of robust management structures and effective processes, supported by particularly able practitioners, has enabled the BCU commander to integrate short, medium and long-term financial planning with BCU planning and priorities. Further devolvement and scrutiny enables the BCU to control spending, maintaining performance whilst remaining in budget and releasing resources for the development of both its PCSO establishment and custody facilities.

Page 7 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

2. Introduction and Methodology

2.1 BCUs are a fundamental building block in the delivery of policing services. Aligned to communities, BCUs represent the local interface with the public and are therefore highly influential in the police service’s aims to reduce crime and disorder, and to increase community confidence. BCUs vary in size and composition but all share responsibility for the delivery of the national community safety plan as it affects them and, with crime and disorder reduction partnership colleagues, the delivery of the local community safety strategy priorities. As such, individual BCUs will remain to be subject to scrutiny of performance from both Government and local communities.

2.2 The range in performance outcomes between BCUs presents an opportunity for weak performers to improve and for all to share the learning of ‘what works’. A key ingredient of successful BCUs remains focus – the most successful demonstrate a sharp focus through effective leadership at every level. They will also have a performance management framework that strikes the right balance between holding individuals to account, and providing support for those in most need. The NIM is fully embedded and mainstreamed throughout the BCU, driving all types of proactive intervention through the systematic and skilled interpretation of intelligence. Successful BCUs will also have a thorough appreciation and desire to meet the needs, wishes and expectations of their primary customer - the communities they police.

2.3 Following a five-year rolling programme of BCU inspections, HMIC has now moved to a risk-based approach whereby only a small number of BCUs are identified as needing inspection. This identification is based upon an examination of performance as compared with the MSBCU group. In most cases, a self- assessment carried out by the BCU highlights the areas which the inspection process needs to concentrate upon. Shorter visits will also be made by HMIC to high-performing BCUs to learn from and share the good practice that underpins their achievement. The overall objectives of inspection are summarized below (Box A).

Box A – Aims of BCU Inspections

Promoting effective leadership

Disseminating good practice

Identifying inefficiencies

Providing pointers to enhance performance

Strengthening the capacity for self-improvement

Leaving behind a BCU management team that has learnt about itself and is even more committed to self-improvement

Page 8 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

2.4 The inspection of Chase BCU is somewhat unusual in that the performance problems were not in themselves sufficient to trigger an inspection but the BCU conducted, of its own volition, the self-assessment that is part of the normal process and was keen to have the results validated independently. It also offered HMIC Central Region offices the opportunity to pilot the GL3 process and it is grateful to Chase BCU and chief officers for their co-operation in this work, which was conducted between 6 and 10 November 2006.

Methodology

2.5 The Inspection of Chase BCU consisted of the following core stages:

Pre-visit data and Leadership BCU analysis of BCU Feedback Reporting self-assessment Audit Inspection to BCU

2.6 During the inspection, 17 structured interviews and focus groups were conducted involving some 122 individuals. Partnership agency representatives were also contacted and there were visits to various workplace settings; the inspection team spent time on an operational shift with officers from Stafford prior to the main inspection. Representatives from the Chase Crime and Disorder Reduction Partnership and the Independent Advisory Group (IAG) were consulted in the course of the inspection.

Page 9 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

3. The Force and BCU Context

3.1 Staffordshire is a diverse county reaching from Stoke-on-Trent and the Peak District in the north down to the borders of the urban West Midlands in the south; local authority structure is two-tier, with Stoke-on-Trent unitary authority and Staffordshire County Council as the largest players. The county comprises both high-density housing and large expanses of countryside and the population is just over one million. The economic situation is also diverse, with affluent pockets in the south abutting some urban areas of serious deprivation. The M6, M6 Toll, M42 and M54 motorways pass through Staffordshire, bringing both the challenges of policing major traffic routes and the potential for cross-border crime. To address the needs of its communities, Staffordshire Police delivers its services from four Basic Command Units (BCUs), which are, in turn, divided into a total of 23 Neighbourhood Policing Units (NPUs). Chase BCU, centered on Stafford, operates to the south of Stoke-on-Trent and serves the south west area of the county.

Page 10 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

3.2 At the heart of Chase BCU is the county town of Stafford. Its boundaries are coterminous with the three local authority areas of Stafford Borough, Cannock Chase District and South Staffordshire District Councils. To the south are the BCU boundaries of Wolverhampton, part of West Midlands Police. According to the 2001 Census data, the BCU serves a population of almost 319,000, residing in some 129,000 households. As well as the main urban areas of Stafford and Cannock the BCU covers large areas of rural countryside and the smaller towns of Rugeley, Stone and Wombourne.

3.3 A rich local history and areas of rural beauty attract significant numbers of visitors to the area. Attractions include Cannock Chase – once preserved as the hunting ground of ancient royalty and now designated an Area of Outstanding Natural Beauty. Sporting venues include Stafford Rangers and Hednesford Town football clubs, and Hednesford Raceway; the proximity of the higher profile football clubs of Stoke City and Port Vale in the neighbouring BCU also present a challenge to policing Chase. Within the BCU area is Stafford Crown Court and four prison establishments. A major policing challenge is posed by the annual ‘V’ music festival, typically attracting up to 70,000 people to Weston Park over an extended weekend.

3.4 Road networks include sections of three motorways, the M6, M6 Toll road and M54, bringing significant road traffic into the area from Birmingham, Merseyside, Manchester and Telford. The A5 (Watling Street), A34 and A51 roughly dissect the BCU into four, crossing from west to east to link Telford and Tamworth, and from north to south linking Stoke-on-Trent with Wolverhampton. Stafford railway station is situated on the northwest line linking Liverpool to London, with sub stations at Cannock, Stone, Rugeley and Wombourne.

Page 11 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

Diversity

Minority Ethnic Groups in Chase

3.5 The following table shows the distribution of ethnic groups within Chase BCU identified from the 2001 Census.

Percentage of resident population Chase Chase % England % in ethnic groups

White British/Irish/Other 312,256 97.98 90.92 Caribbean Black/White 956 0.30 0.47 Caribbean Black 747 0.23 1.14 African White/Black 107 0.03 0.15 African Black 200 0.06 0.97 Black Other 104 0.03 0.02 Asian White/Black 574 0.18 0.37 Asian Indian 1819 0.57 2.09 Asian Pakistani 346 0.11 1.44 Asian Bangladeshi 144 0.05 0.56 Asian Other 322 0.10 0.48 Chinese/Chinese Other 717 0.22 0.89 All Other 400 0.12 0.50

Page 12 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

4. The Leadership Audit

4.1 A critical attribute of successful BCUs is effective leadership. Leadership styles vary – some are highly transformational while others veer more towards transactional approaches. There is no ‘correct’ style because circumstances vary too, and good leaders attune their approaches to fit these circumstances. To try and explore the components of leadership and their relative impact on performance, HMIC has developed a leadership audit tool, the findings from which inform the fieldwork stage of the inspection to validate key themes. This is a developing tool that will become increasingly powerful as benchmarks are created from BCUs against which results can be evaluated.

4.2 The leadership audit is a ‘soft’ tool in that it invites perceptions from staff through the survey which are then validated or not during interviews and staff focus groups. The validation process includes interviews with the BCU commander and members of the SMT so as to provide a management context to the survey findings, together with triangulated evidence obtained during the wider fieldwork visit and overall BCU performance. Emerging strengths and areas for improvement from the audit offer insights to the leadership style and its impact but it is not a scientific exercise and so some caution is needed in interpreting the findings.

4.3 The audit process comprised three elements: a questionnaire, circulated to a statistically significant cross-section of all BCU staff and returned in confidence directly to HMIC; focus groups of representative officers and staff; and one-to-one interviews with the BCU commander, operations superintendent/chief inspectors and business manager. The audit also includes an interview with the relevant chief officer who line manages the BCU commander, in which their working relationship is explored.

The Leadership Context for Chase BCU

4.4 Chase faces some significant challenges, including the roll-out of neighbourhood policing teams, but has attracted part-funding and support for PCSOs, and successfully established a local base on the Highfields Estate. Against this background it strives to deliver crime reduction and increase sanction detections. Since 2002/3, Chase has seen a significant drop in domestic burglary and despite a small rise in the year to date its performance exceeds the Most Similar BCU (MSBCU) family average. Sanction detections have dropped over the same period and continue to fall, to below the peer averages. Vehicle crime volume is down, and to date this year sanction detections have recovered well.

4.5 Recorded violent crime has consistently increased in volume, and while the proportion detected has remained relatively constant, sanction detections remain close to the bottom end of MSBCU performance. A contributory factor may be the very prescriptive guidance on recording of incidents as crimes, and recent corporate direction is likely to produce a significantly different picture. Robberies are few in number – around 200 offences annually – but continue to reduce, while sanction detections have improved this year. The volume of total notifiable offences has remained relatively stable, while total sanction detections have improved consistently since 2002/03 in both absolute and relative (MSBCU) terms. Page 13 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

Leadership Audit Findings

4.6 The Leadership Audit findings are set out below under the headings and specific questions for which responses were sought from Chase BCU officers and police staff.

Q1. The BCU receives appropriate support from the chief officer – line manager

The BCU commander enjoys a positive relationship with his ACC line manager. There is a strong sense of teamwork and corporacy between the force’s BCUs and chief officer team. This is evidenced by frequent formal and informal contact between chief officers and the BCU commander, including a structured performance regime through the performance management group. Objectives for the BCU are set through a negotiated process, in which the BCU commander has some influence, and he works in an environment where innovation is encouraged. The force’s performance framework is robust, with tactical intervention dependant on the type and level of any emerging concern. Chief officers have sought to ensure that the BCU command team has a balance of skills and experience, and the BCU commander has engaged consultants to look at team dynamics. Resource support is provided on a needs basis and works well.

Q2. The BCU has an appropriate structure which is aligned to the force strategy

(a) My role is clearly defined and contributes to the BCU and force strategy.

Some 94% of respondents gave a positive response and 6% negative. This positive response was confirmed by feedback from the focus groups noting the structured planning process, with clear direction from the force in setting priorities. The BCU commander is involved in the target setting process and there is a clear ‘glide path’ of expected performance.

(b) I am set objectives which are clearly relative to my role and experience.

Some 80% of respondents gave a positive response, with 19% negative and 1% “don’t know”. Focus group interviews point to a comprehensive PDR process, with some minority concerns that statistical performance is over-emphasised. Although the survey returned a 19% negative result, none of the focus groups reflected this level of negativity.

(c) Lines of accountability and responsibility within the BCU are clearly defined.

A total of 88% of respondents gave a positive response, with 8% negative and 4% “don’t know”.

(d) Resources are effectively managed within the BCU including specific issues of demand and deployment.

Page 14 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

Some 67% of respondents gave a positive response, with 27% negative and 6% “don’t know”. The SMT focus group thought that resources were managed well but recognised problems in matching response resources to demand. Both sergeants and police staff focus groups cited issues such as “never having enough resources to meet demand” and “creating specialist units at the expense of response” as the main barriers. Focus groups recognised the establishment of the managed crime team and a demand project, currently led by the chief inspector operations, as providing potential solutions.

(e) Throughout the BCU teams are balanced in terms of skills, experience and diversity.

Only 54% of respondents gave a positive response, with 36% negative and 10% “don’t know”. Managers felt that due to the location of the BCU, it lost proportionately more staff to specialist posts based at FHQ. The inspectors/police staff focus group felt that the IMU suffered because experienced officers were replaced by staff who tended to be at the start of their service.

(f) The health and safety procedures on the BCU are effective and make me feel safe in my workplace.

Some 80% of respondents gave a positive response, with 15% negative and 5% “don’t know”. A structured process deals with health and safety issues; the BCU commander chairs the health and safety strategy meeting. Issues identified in that meeting are resolved as a matter of urgency.

Q3. The BCU has a performance culture with integrity

(a) My manager demonstrates an interest in my performance and development.

A total of 89% of respondents gave a positive response, with 10% negative and 1% “don’t know”.

(b) I receive the development I need to perform my role.

A positive response was given by 82% of respondents, with 18% negative. The constables/police staff group felt that scheduled training days were increasingly diverted to policing initiatives and operations. In particular, there was a view that training provided for the recent change to powers of arrest was inadequate. Middle and senior managers recognised a tension between training need and the resource available for service delivery.

(c) Within the BCU, good performance is recognised and rewarded.

Some 72% of respondents gave a positive response, with 28% negative and no- one replying “don’t know”. Focus groups were more positive in this area, with strong endorsement across role and rank of the performance regime.

Page 15 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

(d) Innovation is promoted and supported on the BCU.

Some 69% of respondents gave a positive response, with 21% negative and 10% “don’t know”. Again, focus group responses were more positive; senior managers feel there is a culture of innovation, although the BCU commander suggested some difficulty in keeping all staff aware of all developments.

Q4. The BCU makes effective use of the national intelligence model, especially in respect of resources/tasking/co-ordination

A total of 79% of respondents agreed with this view, while 6% were negative and 15% were in the “don’t know” category; this positive response was mirrored by all focus groups. At a more senior level there was recognition of the need to include quality of service data into NIM processes, with the DCI consistently checking whether priorities are delivered through tasking.

(a) BCU managers ensure that maintaining our integrity is more important than achieving good performance.

Some 60% of respondents gave a positive response, with 19% negative and 21% “don’t know”.

(b) The BCU delivers an effective service to the community.

Some 78% of respondents gave a positive response, with 18% negative and 4% “don’t know”. Focus groups identified that the BCU delivers a quality service within the constraints of resource availability. There was broad recognition that some areas prioritised under the roll-out of neighbourhood policing had seen a tangible improvement in public confidence, but that limited resources meant some more isolated areas had yet to see the full benefit of fully staffed Neighbourhood management teams.

Diversity

Q5. Diversity is embedded within the BCU, specifically in terms of personal values and all areas of business including selection and appointment of staff.

For this overarching question, 87% of respondents gave a positive response, with 6% negative and 7% “don’t know”.

(a) Fairness at work procedures (eg, grievance or appeals) can be confidently used by staff on the BCU without fear of recriminations from managers.

A total of 68% of respondents agreed, with 12% negative and 20% “don’t know”. In focus groups, more junior staff were likely to answer “don’t know” on the basis of a lack of experience, but on further exploration many felt that the culture of the BCU would give them the confidence to invoke formal or informal systems to resolve issues.

Page 16 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

(b) My manager’s decisions in respect of operational issues are consistent.

Some 87% of respondents gave a positive response, with 4% negative and 9% “don’t know”. Focus groups were less positive in this area, with sergeants/police staff suggesting that some local determination was inconsistent with later direction from FHQ. The PCSO group articulated a real lack of consistency in their deployment and organisation across the BCU.

(c) My manager’s decisions in respect of disciplinary issues are consistent.

A total of 79% of respondents gave a positive response, with 0% negative and 21% “don’t know”.

(d) Staff have confidence in managers to solve problems effectively.

Some 81% of respondents gave a positive response, with 9% negative and 10% “don’t know”. Interestingly, the BCU commander suggested that response staff in particular may have felt that managers were unaware of problems and issues, but focus groups suggested the reverse was true, with high levels of confidence in this area.

(e) My manager inspires me with confidence.

A total of 81% of respondents gave a positive response, with 16% negative and 3% “don’t know”.

(f) Sickness and welfare are effectively managed within the BCU.

71% of respondents gave a positive response, with 15% negative and 14% “don’t know”. Respondents in focus groups were positive about welfare provision, although some expressed frustration with the speed of HR processes in this area. Special constables were particularly confident in this area, citing the identification of a Special Constabulary welfare officer in each case, supported by effective processes.

(g) Managers deal effectively with bullying.

55% of respondents gave a positive response, with 7% negative and 38% “don’t know”. Focus group responses broadly mirrored the results of the audit. Significantly, a large number of staff suggested they had no experience on which to determine an alternative response. More senior managers were confident of a challenge culture in this area.

(h) Abstractions from duty – other than sickness – are effectively managed within the BCU.

55% of respondents gave a positive response, with 27% negative and 18% “don’t know”. This issue produced a mixed response from focus groups. Managers acknowledged the lack of a good match between resource and demand, and felt there could be better co-ordination of abstractions for sickness, leave and courses.

Page 17 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

Sergeants, police staff and special constables expressed concerns about a lack of consistency, suggesting occasions where there is an embarrassment of resources one week followed by real shortages the next.

(i) There is a commitment within the BCU to staff retention.

58% of respondents gave a positive response, with 25% negative and 17% “don’t know”. Special constables and PCSOs were particularly positive on this point. A four-year minimum tenure for IMU has recently been abandoned, with views expressed that the only entry point to the IMU was through new officers. Some more junior managers expressed frustration about a drain of experienced officers to HQ functions.

Q6. Personnel Management

(a) I have regular and meaningful contact with my line manager.

Some 92% of respondents gave a positive response, with 8% negative and no “don’t know”. This response was endorsed by all focus groups, who felt that managers fostered a culture of genuine interest in the work and welfare of colleagues. Within the constables/police staff group a concern was expressed that a rapid turnover of managers operated as a barrier to establishing effective relationships.

(b) My manager demonstrates a genuine interest in me.

In total, 87% of respondents gave a positive response, with 12% negative and 1% “don’t know”; the focus group response was very positive (see above).

(c) I feel that my contributions are welcomed and valued.

87% of respondents gave a positive response, with 12% negative and 1% “don’t know”. Within focus groups, senior staff were more likely to give this statement a high score, while at the same time acknowledging that not all staff would feel equally valued. As suggested, opinions expressed by IMU constables and sergeants suggested that the focus on performance limited their discretion.

(d) My manager makes me feel proud of the service we deliver.

85% of respondents gave a positive response, with 14% negative and 1% “don’t know”. Focus groups were almost exclusively positive, but at a junior level sometimes qualified in the same way as the previous statement.

(e) My manager makes me feel trusted, valued and included.

86% of respondents gave a positive response, with 14% negative and 0% “don’t know”.

Page 18 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

(f) Training and development is allocated on the BCU according to need.

65% of respondents gave a positive response, with 27% negative and 8% “don’t know”.

(g) I am encouraged to learn by my manager.

80% of respondents gave a positive response, with 19% negative and 1% “don’t know”.

(h) I feel prepared for future changes.

75% of respondents gave a positive response, with 14% negative and 11% “don’t know”.

(i) Coaching and mentoring is available to me if I need it.

67% of respondents gave a positive response, with 21% negative and 12% “don’t know”.

(j) Personnel issues are dealt with by my manager in a relevant and timely manner.

78% of respondents gave a positive response, with 13% negative and 9% “don’t know”. All focus group members gave a positive score.

Q7. Communication

(a) The BCU commander and senior management team has a high profile within BCU.

76% of respondents gave a positive response, with 17% negative and 7% “don’t know”. The BCU command team invests significant effort in maintaining a high profile, including a series of seminars attended by all staff. This was recognised by focus groups and all members of staff who expressed a view gave a positive response.

(b) My manager communicates relevant information to me.

91% of respondents gave a positive response, with 8% negative and 1% “don’t know”. Senior managers felt that communication is enabled through a good meeting structure. Other focus groups endorsed the level of communication in the BCU although more junior staff expressed some frustration with the volume of email communiqués.

(c) I feel that, where it is appropriate, I am consulted on matters of policy and strategy.

72% of respondents gave a positive response, with 25% negative and 3% “don’t know”. Annual presentations are delivered to staff by the command team, who outline the business review process and encourage challenge and feedback. Staff

Page 19 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

association representatives are routinely involved in formal consultation and as members of development groups. Although in one group there was a concern of insufficient consultation with those required to implement policies, this was countered by the majority view that there are a number of opportunities to offer feedback.

(d) My manager is available when I need to talk to him/her.

89% of respondents gave a positive response, with 11% negative and 0% “don’t know”.

(e) The BCU commander, senior management team are available to staff at appropriate times.

71% of respondents gave a positive response, with 16% negative and 13% “don’t know”.

(f) The BCU commander and SMT respond in a positive way to feedback from staff.

66% of respondents gave a positive response, with 18% negative and 16% “don’t know”. The BCU commander has invested significantly in a 360 degree appraisal process for his senior management team. Focus groups routinely gave this area a high score.

(g) My manager responds in a positive way to feedback from staff.

86% of respondents gave a positive response, with 8% negative and 6% “don’t know”.

Audit Conclusions

4.7 The Leadership Audit process has two elements, with an initial paper-based survey followed up with focus group meetings, allowing further exploration of issues and themes that arise.

4.8 From this process it is possible to say that officers at Chase feel that they work in a positive and rewarding environment, where their role is clearly defined and supported by a meaningful PDR process. There will always be a tension between achieving good performance and an over-emphasis on statistical gains, but where this was expressed at Chase it was very much the minority view.

4.9 Although still broadly a positive issue, most concern appears to be directed to the management of resources, with some groups echoing a theme around the insufficiency of response resources to meet demand. This view is reinforced by concern over the balance of skills, experience and diversity and the management of sickness and abstractions. These issues are certainly not specific to Chase BCU, but note is taken of developments such as the managed crime unit and ongoing work to model demand management.

Page 20 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

4.10 Staff consistently feel that managers are interested in their performance and development, with a good culture around meaningful contact and rewarding good performance. There is a feeling of pride about working at Chase, with staff feeling that they deliver a good service to the community within the constraints of resource availability.

4.11 There are strong indications of an accommodating and inclusive workforce. Senior managers were confident that poor behaviour would be challenged if it was found, and this appears to be reinforced by the views of other groups, who either felt that bullying would be dealt with effectively or who simply had no experience of the issue on which to base a reply.

4.12 The BCU commander and SMT invest time in their profile and visibility, largely recognised by staff. Comprehensive systems are in place to ensure both consultation and the communication of information, underpinning a positive ‘can do’ culture. The BCU works together and for each other.

Page 21 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

5. BCU Performance

5.1 BCU objectives should reflect both national priorities – as set out in the National Policing Plan and reflected quantitatively in the public service agreement (PSA) targets – and local needs. In inspecting BCUs, HMIC covers both achievement of locally set targets and, more specifically, the delivery against national objectives – target crime reduction and sanction detections in particular. Considerable attention is paid to the MSBCU group positioning and direction of travel, both against the BCU’s past performance and relative to its MSBCU group.

5.2 This is illustrated numerically in the following tables, and graphically using iQuanta comparisons (Appendix ‘C’) which illustrate performance against national priorities over the short (12 month) and medium (3 years) term against the MSBCU average.

Residential Burglary

2002/03 Crimes 2005/06 Crimes Percentage Change 1,446 1,058 -26.83% 2005/06 YTD Crimes 2006/07 YTD Crimes Percentage Change 585 610 +4.27% Crimes per 1,000 Households – Crimes per 1,000 Households - YTD1 2005/06 7.999 4.612 MSBCU Group Position – Crimes for MSBCU Group – Crimes for YTD 2005/06 Group mean = 9.680 Rank = 5th Group mean = 5.580 Rank = 6th

2002/03 – 2005/06 SD Rate 2006/07 YTD SD Rate 18.79% - 12.29% 11.48% MSBCU Group – SD Rate for MSBCU Group – SD Rate for PYTD 2005/06 Group mean = 17.48% Rank = 10th Group mean = 20.57% Rank = 14th

1 YTD = April 2006 to October 2006 Page 22 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

Vehicle Crime

2002/03 Crimes 2005/06 Crimes Percentage Change 3,304 2,763 -16.37% 2005/06 YTD Crimes 2006/07 YTD Crimes Percentage Change 1,560 1,547 -0.83% Crimes per 1,000 Population – Crimes per 1,000 Population - YTD 2005/06 8.579 4.803 MSBCU Group Position – Crimes for MSBCU Group – Crimes for YTD 2005/06 Group mean = 10.072 Rank = 5th Group mean = 5.452 Rank = 7th

2002/03 – 2005/06 SD Rate 2006/07 YTD SD Rate 14.38% - 8.07% 14.09% MSBCU Group – SD Rate for MSBCU Group – SD Rate for YTD 2005/06 Group mean = 12.68% Rank = 12th Group mean = 16.39% Rank = 7th

Violent Crime

2002/03 Crimes 2005/06 Crimes Percentage Change 5,188 6,441 +24.15% 2005/06 PYTD Crimes 2006/07 YTD Crimes Percentage Change 3,815 4,213 +10.43% Crimes per 1,000 Population – Crimes per 1,000 Population - YTD 2005/06 19.999 13.081 MSBCU Group Position – Crimes for MSBCU Group – Crimes for YTD 2005/06 Group mean = 18.446 Rank = 10th Group mean = 11.306 Rank = 12th

2002/03 – 2005/06 SD Rate 2006/07 YTD SD Rate 40.88% - 38.43% 38.12% MSBCU Group – SD Rate for MSBCU Group – SD Rate for YTD 2005/06 Group mean = 47.76% Rank = 14th Group mean = 46.59% Rank = 14th

Page 23 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

Robbery

2002/03 Crimes 2005/06 Crimes Percentage Change 206 183 -11.12% 2005/06 YTD Crimes 2006/07 YTD Crimes Percentage Change 100 94 -6% Crimes per 1,000 Population – Crimes per 1,000 Population - YTD 2005/06 0.568 0.292 MSBCU Group Position – Crimes for MSBCU Group – Crimes for YTD 2005/06 Group mean = 0.607 Rank = 8th Group mean = 0.351 Rank = 7th

2002/03 – 2005/06 SD Rate 2006/07 YTD SD Rate 29.61% - 14.21% 20.21% MSBCU Group – SD Rate for MSBCU Group – SD Rate for YTD 2005/06 Group mean = 25.21% Rank = 14th Group mean = 23.49% Rank = 10th

Total Notifiable Offences (TNOs)

2002/03 Crimes 2005/06 Crimes Percentage Change 25,736 26,090 +1.38% 2005/06 YTD Crimes 2006/07 YTD Crimes Percentage Change 1,5377 16,076 +4.55% Crimes per 1,000 Population – Crimes per 1,000 Population - YTD 2005/06 81.006 49.914 MSBCU Group Position – Crimes for MSBCU Group – Crimes for YTD 2005/06 Group mean = 83.377 Rank = 6th Group mean = 48.829 Rank = 8th

2002/03 – 2005/06 SD Rate 2006/07 YTD SD Rate 24.83% - 25.17% 27.26% MSBCU Group – SD Rate for MSBCU Group – SD Rate for YTD 2005/06 Group mean = 26.43% Rank = 10th Group mean = 27.22% Rank = 7th

Page 24 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

6. What We Found

6.1 Following a review of the BCU’s performance, the Going Local 3 (GL3) self- assessment, the findings from the leadership audit and other key documentation, HMIC conducted its fieldwork at Chase BCU. The inspection team sought to validate acceptable practice and further investigate/evidence both potential good practice and any areas for improvement. This report does not, therefore, reiterate what is and should be happening on a BCU in terms of its core functional activities, given that these are detailed within the GL3 self-assessment process. Instead, the following section highlights areas against the baseline assessment frameworks that are evidenced by the inspection team as either particular strengths or opportunities for improvement against the core business of the BCU.

The Baseline Assessment Frameworks

Citizen Focus (Domain A) Fairness and Equality in Service Delivery Neighbourhood Policing and Problem Solving Customer Service and Accessibility Professional Standards

Reducing Crime (Domain 1) Volume Crime Reduction

Investigating Crime (Domain 2) Managing Critical Incidents and Major Crime Tackling Serious and Organised Criminality Volume Crime Investigation Improving Forensic Performance Narrowing the Justice Gap

Promoting Safety (Domain 3) Reducing Anti-Social Behaviour Protecting Vulnerable People

Providing Assistance (Domain 4) Contact Management Providing Specialist Operational Support Strategic Road Policing

Resource Use (Domain B) Human Resource Management Training, Development and Organisational Learning Race and Diversity Managing Financial and Physical Resources Information Management National Intelligence Model

Leadership and Direction Leadership Performance Management and Continuous Improvement

Page 25 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

LEADERSHIP AND DIRECTION

6.2 Leadership

Strengths (a) The BCU commander receives appropriate support from chief officers through a series of formal and informal links, including monthly meetings chaired by the Chief Constable. He has the full confidence of his ACPO line manager and is granted appropriate freedoms to manage the BCU without unnecessary interference. It is clear that the mutual relationship is one of trust, and that he feels supported without being reliant on close management. (b) The BCU commander has a supportive and positive relationship with link members of the police authority who are able to provide feedback on service delivery. He has considerable autonomy, including control of his police pay budget, and has sought to develop processes that deliver a quality policing service, using appropriate latitude to develop the contribution of the Special Constabulary and advance the recruitment of a significant body of police community support officers in support of neighbourhood policing. Other measures have seen the establishment of a priority crime team to improve sanction detection performance. (c) A feature of the BCU is the degree to which the commander and his team ensure their personal visibility, seeking to ensure regular and meaningful contact with as many staff as possible. There is a tangible ‘feel good’ factor around the BCU. There was strong and consistent evidence that managers were seen as approachable and encouraged contact with all members of staff. Significantly, staff articulate a common purpose and identify themselves as part of a single team, rather than placing an emphasis on role or function. (d) The BCU presents a positive image both internally and externally, assisted by the media manager. A feature of stations visited included professional and up to date information boards. Framed photographs of staff in operational situations throughout corridors and rooms in Stafford police station help to project a positive atmosphere. Innovation is strongly encouraged, and the BCU aspires to significant change in pursuit of its goals. Where this is the case, rapid development can often leave staff feeling uninvolved. Within Chase, it is evident that good consultation, on both a formal and informal basis, represents normal daily business. (e) There was evidence that diversity was embedded in the BCU, in the personal values and ethics of staff. Chase is not an area characterised by large minority communities, but evidence of an effective IAG and from staff interest groups suggest a healthy culture of inclusion within the organisation. (f) Chase has a well-established and constantly evolving performance culture, with an emerging emphasis on ‘new performance’, describing performance in terms of both traditional (reduction, detection) and emerging (satisfaction, citizen focus) understanding of outcomes. Performance is delivered with integrity.

Page 26 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

(g) At management level, significant time is invested in meetings such as the weekly senior management team meeting and it is clear that this leads to mutual understanding of issues and the construction of less formal links.

Areas for Improvement

(h) Inspectors attended both an SMT and tasking and co-ordinating meeting, where staff were presented with significant amounts of written information. In the case of the SMT meeting, information was presented on the day and HMIC supports comments made that executive summaries possibly provided in advance, would be useful. In the case of the tasking and coordinating meeting, attendees appear to have been provided with an 82 page tactical assessment the evening before a morning meeting, and expected to read and absorb a detailed document overnight. The BCU may want to review arrangements for the provision of information for such meetings, considering both content and timing. (i) The BCU is commended for its success in the introduction of a large number of PCSOs, although in many cases, awareness of the role and potential for use of PCSOs is limited. Deployment to incidents by control is sporadic, and often relies on PCSOs calling in to make themselves available on hearing a job come over the air. Inspectors are aware of and would encourage further PCSO visits and presentations to control to raise awareness of their potential. There is a culture of sections and departments helping each other in times of need, but to a lesser extent the establishment of neighbourhood management teams and their terms of reference are not fully understood.

6.3 Performance Management and Continuous Improvement

Strengths (a) Detective inspectors report that the detective chief inspector is intrusive, highly visible and highly credible in his management of crime issues. This has been a feature in ensuring good co-operation between CID and uniform officers. (b) The operations superintendent has driven an increase in performance awareness and accountability. There are clear processes to monitor key performance areas such as progress against forensic packages, Crimestoppers information and prison releases. (c) Under the leadership of the operations chief inspector, the BCU is developing an IT package to deliver comprehensive workload and performance information on a team and individual officer basis. Although yet to be rolled out, it appears that this database will be a significant aid to understanding and managing performance. (d) Support departments demonstrate a commitment to improving front line performance. (e) There is good evidence from the performance management team of environmental scanning, seeking to identify risks to performance and prevent Page 27 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

long-term activity being pulled off course. There was good understanding of the potential pitfalls of a performance culture and the need to avoid perverse performance outcomes. (f) Business planning is led by a committed and resourceful business manager. HMIC was convinced of the freedoms given through control of devolved budget arrangements, and excellent financial management has allowed the BCU to achieve significant gains. (g) Considerable value is placed on the PDR system, with objectives relating to performance and specific to role and core activity. (h) There is a strong ‘thank you’ culture on the BCU, with innovative use of the talkback system to encourage any member of staff to nominate others for good work. This includes self-nomination.

Areas for Improvement

(i) Led by the personal example of the commander, the openness of Chase BCU to innovation, change and self development is remarkable. Throughout the inspection, it has been difficult to keep track of the number and complexity of the number of initiatives planned or under way. The sanction detection improvement plan alone contains more than 80 actions. Whilst all actions are captured in the operational strategy and subject to constant monitoring, the BCU commander should consider a critical review of those activities containing outstanding actions, with a view to greater rationalisation, and prioritisation (particularly those ‘quick wins’ with the opportunity to deliver performance improvement).

CITIZEN FOCUS

6.4 Fairness and Equality in Service Delivery

Strengths (a) The BCU understands its demographic profile and engages with core and significant minority groups. There is an active IAG with wide representation, and an excellent working relationship with the BCU. (b) There is evidence that the IAG feels included, and has been involved in the management of critical incidents at an early stage. Members commented that “Our concerns are listened to, have been put into action and we have been informed of the results”. (c) Partners have been involved in initiatives to reduce hate crime, including the establishment of third party reporting schemes and the provision of administrative support staff.

Page 28 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

6.5 Neighbourhood Policing and Problem Solving Strengths (a) The BCU has gone through a significant process in identifying and grouping neighbourhoods, with appropriate consultation. Each group of neighbourhoods, designated a Neighbourhood Management Area (NMA) has been profiled, with information used by partners and Joint Operations Groups (JOGs). (b) There was particular praise for the work of PCSOs in providing reassurance and continuity of contact. Partners in particular thought that co-ordination between police and their agencies worked well. Police and local authority staff are co- located. There is good information sharing and effective problem solving through the JOGs. This view was endorsed by staff members who could add perspective as residents of the BCU. (c) The BCU has taken a measured view of the skills and training for NMA police officers, and significantly of CMS training, acknowledging the need to balance operational flexibility with the principles of a consistent neighbourhood presence. (d) The activities of the Special Constabulary have been realigned to NMAs, managing through some initial scepticism amongst members by ensuring consultation and variety of deployment.

Areas for Improvement

(e) There are some excellent examples of problem-solving activity to achieve significant results in NMAs. Each of the NPUs records community/neighbourhood problems, priorities and their respective resolutions, and should an NPU be unable to deal with issues locally they can be escalated through the JOG and partnership arrangements or to BCU tasking for support. Despite deserved praise for individual examples, the BCU does not appear to routinely monitor, record and assess problem-solving activity as a part of its performance processes. This area deserves further consideration in order to ensure that problem-solving activity becomes mainstream activity. (f) Partners suggested that there could be more routine police representation at local meetings, particularly in more rural areas, although understanding pressure on resources where meetings often take place in the evenings. All expected that the expansion of PCSO numbers would present an opportunity for purposeful visibility at such events. Although there is some co-location of dedicated resource at a neighbourhood level, to date this has been isolated. Partners have shown an understanding of the need to progress this issue, more recently encouraged by the publication of the Local Government White Paper ‘Strong and Prosperous Communities’.

Page 29 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

6.6 Customer Service and Accessibility Strengths The BCU offers a number of means of contact for its staff, including good use of business cards and contact numbers. A text warning system for NHW was felt to be particularly well used.

6.7 Professional Standards Strengths

The BCU has an active integrity process, adopting an intelligence-based approach to professional standards issues such as the private use of mobile telephones and mileage. There is a commitment to using customer focus responses (positive and negative) in maintaining and raising standards.

REDUCING CRIME

6.8 Volume Crime Reduction Strengths (a) The BCU operates to clear ethical standards on crime recording, supported by a robust monitoring mechanism in the Crime Analysis and Investigations Standards Unit (CAISU). A recent strategic decision to suspend the automatic generation of a crime report for some violence-related incident reports has been welcomed by staff, although there will be a need for close scrutiny of the outcome on ethical crime recording. (b) The BCU operates a joint agency co-located persistent offender unit with some excellent indications around the reduction of re-offending (as the result of targeting, current information suggests 79% of persistent offenders dealt with under the scheme have not re-offended).

INVESTIGATING CRIME

6.9 Tackling Serious and Organised Criminality

Strengths Inspectors found good awareness of opportunities for activity under the Proceeds of Crime Act (POCA). The BCU operates under an arrangement with FHQ for hypothecation of a proportion of monies seized. In the year to date, the BCU has seized £240k against a target figure of £100k, with a further £400k under process.

Page 30 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

6.10 Volume Crime Investigation Strengths (a) The BCU has responded to concerns around sanction detections. Performance improvement over recent months has been exponential, and Chase now has an overall sanction detection rate of 28% - currently the highest of Staffordshire BCUs. (b) The establishment of a managed crime unit, servicing crime-related calls on an appointment basis, represents a significant improvement in the quality of service offered to victims and assists in demand management for both the BCU and control. (c) There has been an increased emphasis on the use of fixed penalty notices for disorder where appropriate, with a 95% increase in their use for the year to date. It is noted that positive action in this respect can have an impact on recorded violent crime. (d) A small but proactive priority crime unit has been established to improve sanction detection opportunities from forensic hits and offenders remanded in custody. This unit has produced 256 detections in fewer than 6 months, with a 95% increase in TICs. (e) All priority crime is reviewed in appropriate detail every day to ensure a focus on progress and maximising investigative opportunities. (f) The BCU demonstrated close scrutiny and ownership of hate crime investigation, with results for violent offences currently showing a close match between white and visible ethnic minority groups.

Areas for Improvement (g) There appears to be a conflict between arrangements for the allocation of crime investigations and the shift pattern worked by operational officers. Dependant on their point in the shift pattern, there may be a minimum delay of four days before officers can take initial action, and possibly more if officers are on night shift entering rest days. (h) There is significant pressure on first-line supervisors, but it is apparent that crime reports are routinely allocated to officers without significant scrutiny and without the addition of a clear investigation plan. This can mean that the first supervisory scrutiny of an investigation can occur at the time of filing, reducing the opportunity for early intervention. Particularly where crimes have been allocated to less experienced officers, it is probable that this has led to a poorer quality of service to victims and the loss of sanction detection opportunities. (i) Although there is an increasing focus and momentum around the importance of achieving sanction detections, the targets for and resource requirement around administrative detections has continued to confuse this performance area. Since the completion of inspection activity there has been a corporate decision to Page 31 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

remove administrative detections as a crime disposal with effect from 1 April 2007.

6.11 Improving Forensic Performance Strengths (a) Forensic services are managed from FHQ but allocated on a BCU basis. Whilst these arrangements can create tensions, inspectors found enthusiastic and well motivated forensic staff. SOCOs have given training input to police officers, PCSOs and to control staff to raise awareness of forensic opportunities. (b) Scenes of crime officers hold daily surgeries at police stations to photograph assault victims, or will attend home addresses where appropriate. As well as providing best evidence in as many cases as possible, this approach also demonstrates a good service to victims.

Areas for Improvement (c) The deployment of SOCOs from control can be haphazard. The lack of active management can mean that resources often make return journeys over some distance because of poor communication when resuming from an initial task. (d) SOCOs will routinely recover footwear evidence from scenes but suggest that the recovery of footwear impressions from custody has reduced significantly over a period of time. The BCU has trained 19 police officers in minor crime scene examination and retrieval as part of a wider force initiative. In Chase BCU their utilisation has been low with only three now currently active.

6.12 Narrowing the Justice Gap Strengths (a) There is good evidence of collaboration between the police, probation and courts through the prolific offender unit to identify and deal with licence breaches. Gatekeepers and CPS charge advisors are based at both custody suites.

Areas for Improvement (b) The BCU has identified the adequacy of its custody provision as limiting the potential for performance improvement, and should be recognised for its wide- ranging approach to potential solutions including joint working with a neighbouring BCU, exploration of a PFI initiative and negotiations with a neighbouring force. (c) Acknowledging that new thinking and significant development remains necessary, nevertheless inspectors believe there is scope for maximising the

Page 32 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

effectiveness of existing custody provision, with a particular focus on the appropriate use of bail back to the police station. There appears to be the potential for significant performance improvement in this area driven by:
Challenging the culture leading to bail back to the police station as the dominant disposal for suspects arrested in Chase.
Maximising the use of a single custody visit to decide final disposal.
Daily scrutiny of the use of bail at SMT level.
More active management of offenders who have failed to return.
An increasing use of the gatekeeper function earlier in the custody process to set and supervise post-arrest investigation.

Close liaison with CPS representatives to ensure that early charging opportunities are not neglected in order to produce a case that is more trial ready.
Where bail is a necessity, the use of alternative custody facilities to manage bail returns without impacting on the capacity of the main estate.

PROMOTING SAFETY

6.13 Reducing Anti-Social Behaviour

Strengths (a) There is wide use of a number of tactics under anti-social behaviour legislation including street drinking bans, dispersal zones, acceptable behaviour contracts and anti-social behaviour orders, and of the use of innovative approaches to common issues such as altering street scenery, access points or the use of a ‘Mosquito’ sound device. (b) Inspectors attending the tactical tasking and coordinating group saw an excellent analysis of criminal damage offences down to specific roads and micro locations. This was developed into joint partnership activity and the engagement of parish councils.

6.14 Protecting Vulnerable People

Strengths (a) The active IAG involvement in the development of the BCU hate crime policy is commendable. (b) Violent domestic crime reviewed at daily tasking.

Areas for Improvement (c) Inspectors noted that arrangements in the public protection unit lead the PPU

Page 33 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

sergeant to report directly to the detective chief inspector. This is contrary to national practice and in such a risk area HMIC would suggest line management arrangements for the PPU are reconsidered in the light of this comment.

PROVIDING ASSISTANCE

6.15 Call Management Strengths a) The establishment of the managed crime unit has delivered marked successes.

RESOURCE USAGE

6.16 Human Resource Management

Strengths (a) The BCU operates a highly devolved HR function. This has facilitated a rapid response to priority issues such as the recruitment of a large number of PCSOs from advert to appointment without significant assistance from FHQ. There is a ‘can do’ attitude contributing to positive staff relations. (b) Human resource officers operate on a fieldwork basis, and will routinely visit all BCU sites to maintain accessibility and improve communication. (c) The issue of health and safety in the workplace is given appropriate priority. There is a regular programme of activity involving proactive walkthroughs and review of near-miss as well as actual incidents. Staff association representatives are included in the process. (d) A good understanding of sickness patterns is evident and is developing into analysis of pattern behaviour beyond individuals, including such issues as sickness type, role and gender. (e) There is a healthy and accommodating approach to requests for part-time working or variations from established working hours, with part-time staff deployed across a variety of functions, including front-line policing.

Areas for Improvement (f) Whilst offering every encouragement to the BCU in its efforts to expand its PCSO establishment, HMIC would draw attention to the concerns of already busy first-line supervisors, and the need to carefully explore future potential supervision arrangements.

6.17 Training, Development and Organisational Learning

Strengths

Page 34 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

(a) The BCU demonstrates a commitment to personal development and organisational learning. A review of attendance at mandatory training in four core areas showed Chase as the leading BCU in the force. Financial assistance and time-off are available to staff undertaking course or training relevant to their current or anticipated role.

Areas for Improvement (b) Evidence from focus groups suggested that there were some significant omissions from the training programme. Of a group of six sergeants with a varied service profile, none had received specific training on promotion relevant to their rank. Staff from a number of groups felt that the PowerPoint input for recent changes to powers of arrest under POCA was insufficient for such a major change.

6.18 Race and Diversity

Strengths (a) There was considerable evidence that the welcoming and inclusive atmosphere on the BCU contributes to a working environment that recognises and values diversity. Chase BCU polices a predominantly white area and its staff largely reflects that lack of visible diversity, but the lack of any apparent division on the lines of gender, police or police staff role (or even an excessive deference to rank) suggests a strength area. The BCU is conscious of opportunities to enhance the diversity of its workforce and during recent recruitment activity for PCSOs has targeted a neighbouring force area. (b) Staff and interest groups are routinely invited to senior management meetings and are widely consulted on matters of change, and expressed positive views of their relationship with senior managers.

6.19 Resource Management

Strengths (a) Inspectors were particularly impressed with the BCU’s business management, with a very able team in the form of the business manager and finance manager. Staffordshire Police operates with highly devolved budgets, including police pay, and this has allowed the BCU to effectively plan forward to meet its plans and priorities. (b) BCUs are required to start and finish the performance year at a set officer profile level. The need to meet budget targets has the potential to produce wide variations in this profile during the year. Chase uses the experience and judgement of its planners to bid for resource and ensure a relatively even profile throughout the financial year. (c) Recruitment decisions are determined locally, supported by a bi-monthly SMT meeting. Officers approaching the point where they can retire are contacted to ascertain their intentions. Where required, transferees from outside

Page 35 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

Staffordshire can be used to maintain officer numbers. (d) Where appropriate, budgets for issues such as overtime and utilities are devolved to IMU and NPU inspectors, with oversight from specific line managers. The system supports responsible spending, with all NPUs spending within budget for the previous 12 months. (e) PCSOs are integrating well and are able to support police officers in a wide range of situations, as well as completing tasks independent of sworn colleagues. There remains a need, particularly in the light of PCSO expansion, to continue the process of education for colleagues, particularly in the control room. (f) The Special Constabulary provide excellent support at Chase. Under well- motivated leaders, officers provide support during traditional periods of high demand, such as Friday and Saturday evenings, as well as local support through alignment to NMAs. In some cases, the Special Constabulary has taken on responsibility for specific functions that would otherwise stretch the operational capability of core resources, including the policing of Stafford Rangers Football Club and the Tuesday night-time economy in Stafford. Inspectors were impressed to hear of two recent occasions where specials were able to call to duty a full CMS serial to respond to local disorder within an hour of the first call for assistance. (g) It is noted that the BCU is working with consultants to produce a comprehensive demand management model, which appears impressive in its scope and application. Inspectors remain interested in the development of this project and its outcome. Areas for Improvement (h) Acknowledging that forces have been constrained to some degree by the rules relating to the maintenance of police officer numbers, there has been limited workforce modernisation activity. Senior management will wish to consider opportunities for diversifying its workforce in such areas as interviewing and investigation under the auspices of the corporate project ‘Liberate’. (i) It is clear that the 2/2/2 shift pattern worked by front-line officers is popular among those who work it. Nevertheless, there is concern that this system does not necessarily produce strength of numbers where it is required, and may be a significant barrier to the effective investigation of allocated crime enquiries (and delivery of quality of service to victims).

6.20 Information Management

Areas for Improvement

a) Supervision of crime enquiries is undertaken through both the crime recording system and the crime tasking system, often requiring double entry for supervisors. It is understood that development towards a single system may have been suspended due to the prospect of regional restructuring, but it is clear that the current series of queries generated by the crime tasking system is Page 36 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

the cause for real frustration amongst staff (particularly first-line supervisors), and requires review.

6.21 National Intelligence Model (NIM)

Strengths

(a) At a tactical level, the tasking and coordinating group process appears to be strong, with good evidence of offender focused activity (persistent and priority offenders, domestic violence suspects, identified nominals and ASBOs). The process included consideration of specific road safety and road crime issues. There is a well resourced covert human intelligence source unit, fully integrated into the intelligence process and deployed in line with control strategies. (b) HMIC observed an effective daily intelligence meeting, which was minuted and recorded actions. There was discussion of overnight detainees, a review of crime and intelligence over the last 24-hours and discussion of specific offenders and offences. There was appropriate tasking of covert activity. In line with previous comments, the meeting could expand its remit to the scrutiny of custody processes, including persons granted police bail in the preceding period and those due to return over the next 24-hours. (c) The intelligence unit is held in high regard by its line managers, and there appears to be an established process of turning information into action. The unit operates a focus desk structure aligned to priority crime areas and adopts a positive ‘can do’ approach.

Areas for Improvement

(d) HMIC attended two shift briefings. While in both cases the process was fairly effective, the BCU may wish to examine both the content and delivery of briefings for quality of delivery and effective tasking. (e) Each NMA operates a Joint Operations Group (JOG), with localised tasking and co-ordinating. While very positive at a local level, there is limited co-ordination of these activities at strategic level. It will be a challenge for the BCU to capture neighbourhood issues and activity, and incorporate them into the strategic process, without diminishing the effectiveness of positive action at this level. (f) Officers expressed some frustration at frequent delays in obtaining authority for CHIS conduct. Consideration could be given to the grant of wider authorities, reducing the burden both on the requesting and authorising officers.

Page 37 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006 Appendix ‘A’

Chase Command Structure

Divisional/BCU Commander [Chief Superintendent]

Superintendent Operations

Chief Inspector Detective Chief Chief Inspector Chief Inspector Business HR Manager Operations Inspector Community Criminal Justice Manager

Incident Management Unit, PPU, Covert Policing, Community Safety, CAISU, Warrants, Finance, Performance HR, Training Custody and Pro-Active Unit and Neighbourhood Investigative Support, Management, and PDU Coroners CID/Priority Crime Unit t Policing Teams CCTV and PSD Inspectorate, IT, Media and Property

Page 38 of 46 GL3 – BCU Inspection Report HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

Leadership Audit - Staff Survey results Appendix ‘B’ Key to Scores: 0 = Don't Know, 1 = No - this doesn't happen 2 = This happens occasionally but there is no consistency 3 = Yes this usually happens but it could be improved 4 = Yes this is recognised as the way we do business, and we achieve real benefits 5 = This is an integral part of our culture and operation and can be regarded as best practice. Percentage response by score Questions Score: 0 1 2 3 4 5 The BCU has an appropriate structure which is aligned to the force strategy 1 My role is clearly defined and contributes to the BCU and force strategy 0 1 5 18 40 36 2 I am set objectives which are clearly relative to my role and experience 1 6 13 24 36 20 3 Lines of accountability and responsibility within the BCU are clearly defined 4 0 8 25 42 21 4 Resources are effectively managed within the BCU including specific issues of demand and deployment 6 8 19 45 19 3 5 Throughout the BCU teams are balanced in terms of skills, experience and diversity 9 12 25 31 19 4 6 The health and safety procedures on the BCU are effective and make me feel safe in my workplace 5 7 8 21 41 18 The BCU has a performance culture with integrity 7 My manager demonstrates an interest in my performance and development 1 5 5 22 36 31 8 I receive the development I need to perform my role 0 7 11 33 33 16 9 Within the BCU, good performance is recognised and rewarded 0 9 19 34 19 19 10 Innovation is promoted and supported on the BCU 9 7 14 31 26 13 11 On the BCU there is effective use of the National Intelligence Model - resources/tasking/coordination 15 1 5 24 38 17 12 BCU managers ensure that maintaining our integrity is more important than achieving good performance 21 9 9 31 25 5 13 The BCU delivers an effective service to the community 5 6 12 39 32 6 Diversity Diversity is embedded within the BCU, specifically in terms of personal values and all areas of business including 14 7 2 4 24 45 18 selection and appointment of staff Fairness at work procedures (e.g, grievance or appeals) can be confidently used by staff on the BCU without fear of 15 20 6 6 24 33 11 recriminations from managers 16 My manager’s decisions in respect of operational issues are consistent 10 1 2 22 46 19 17 My manager’s decisions in respect of disciplinary issues are consistent 21 0 0 20 39 20 18 My manager to solve problems effectively 7 4 7 20 43 19 19 My manager inspires me with confidence 2 6 11 22 40 19 20 Sickness and welfare are effectively managed within the BCU 14 6 9 28 33 10 21 Managers deal effectively with bullying 38 5 2 12 29 14 22 Abstractions from duty - other than sickness - are effectively managed within the BCU 18 5 22 27 24 4 23 There is a commitment within the BCU to staff retention 18 8 16 21 26 11 Personnel management 24 I have regular and meaningful contact with my line manager 0 5 4 16 44 31 25 My manager demonstrates a genuine interest in me 1 7 5 18 46 23 26 I feel that my contributions are welcomed and valued 1 6 6 20 42 25 37 My manager makes me feel proud of the service we deliver 1 6 8 20 42 23 38 My manager makes me feel trusted, valued and included 0 6 8 15 45 26 29 Training and development is allocated on the BCU according to need 7 7 20 33 26 7 30 I am encouraged to learn by my manager 1 8 12 22 42 15 31 I feel prepared for future changes 11 7 7 29 34 12 32 Coaching and mentoring is available to me if I need it 12 11 11 21 33 12 33 Personnel issues are dealt with by my manager in a relevant and timely manner 9 4 9 13 39 26 Communication 34 The BCU commander & senior management team have a high profile within BCU 7 6 11 24 40 12 35 My manager communicates relevant information to me 1 1 7 22 49 20 36 I feel that, where it is appropriate, I am consulted on matters of policy and strategy 4 13 12 31 33 7 37 My manager is available when I need to talk to him/her 0 2 8 16 41 33 38 The BCU commander, senior management team are available to staff at appropriate times 13 8 8 28 32 11 39 The BCU commander and SMT respond in a positive way to feedback from staff 16 12 6 29 28 9 40 My manager responds in a positive way to feedback from staff 6 1 7 18 46 22

Page 39 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

Appendix ‘C’

Total Crime Comparison Charts:

Volume

Sanction Detections

Page 40 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

Domestic Burglary Comparison Charts:

Volume

Sanction Detections

Page 41 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

Robbery Comparison Charts:

Volume

Sanction Detections

Page 42 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

Vehicle Crime Comparison Charts:

Volume

Sanction Detections

Page 43 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

Violent Crime Comparison Charts:

Volume

Sanction Detections

Page 44 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

Appendix ‘D’

NOTIONAL CONTRACT

Purpose

This ‘notional contract’ follows an HMIC inspection of Chase BCU in the Staffordshire Police, that was conducted on the 6 to 10 November 2006 and sets out the action required by the BCU together with the improvement outcomes required. The notional contract exists between the HMI, the BCU commander and his ACPO line manager.

Action Required

BCU inspection reports published by HMIC contain both recommendations and ‘Areas for Improvement’. Save for exceptional circumstances rendering the implementation of recommendations impossible or inappropriate, the implementation of recommendations is presumed to be a reasonable expectation. Areas for improvement entail more discretion, giving BCUs the option not to implement them if the BCU can show good reason why they should not be adopted.

For Chase BCU, HMIC requires that the following recommendations be implemented by the 10 November 2007 at the latest:

Recommendation (1): Custody – Process, Scrutiny, Performance Management

The BCU has clearly identified its custody provision as a potential bar to performance improvement, and is currently engaged in strategic development towards a new custody facility shared with a neighbouring BCU. Acknowledging that any significant change brought about by development of the custody estate will not address short-term issues, the BCU should re-examine the potential to improve the productivity of its existing capacity, particularly around the scrutiny and active management of bail back to the police station.

Recommendation (2): Crime Investigation – Allocation, Investigation Plan, Supervision

There appears to be a conflict between arrangements for the allocation of crime investigations and the shift pattern worked by operational officers, potentially leading to delay in the initial investigation of offences. This can lead both to victim dissatisfaction and the loss of sanction detections.

The BCU should consider a review of its crime allocation process to ensure that allocation is based on the best opportunity of a positive outcome. Where crimes are allocated to investigating officers, early supervisory activity should include a crime investigation plan to ensure that all productive lines of enquiry are followed.

Page 45 of 46 GL3 – BCU Inspection Report

HMIC Inspection – Chase BCU (Staffordshire Police) November 2006

In addition, HMIC expects all ‘areas for improvement’ contained within the GL3 BCU inspection report to be implemented within the same timescale, save for good reasons as described above.

Improvement Outcomes

The implementation of recommendations and areas for improvement should ultimately lead to improvement in BCU performance. It is therefore essential that this notional contract includes expectations as to future performance that are firmly linked to force and BCU priorities.

Chase BCU is expected to meet or exceed the following performance targets by 10 November 2007:

• To maintain MSBCU quartile positioning for its crime reduction from the time of inspection for residential burglary, vehicle crime, robbery and total notifiable offences, and for its sanction detection rate for vehicle crime and total notifiable offences (all in the second quartile at the time of inspection); • To improve MSBCU quartile position for its crime reduction from the time of inspection for violent crime, and for its sanction detection rate for residential burglary, violent crime and robbery (all in the third or fourth quartile at the time of inspection).

It is acknowledged that there will be occasions when circumstances change beyond the control of either the force or the BCU commander whereby the implementation of certain recommendations or improvement outcomes is rendered unrealistic and void. Account will therefore be taken of these factors when the HMIC revisit is conducted within the timescale described herein.

BCU Revisit and Review

Chase BCU will be revisited by HMIC (Central Region) on or soon after 10 November 2007 to determine whether this notional contract has been fully discharged. At that 12 months stage, HMIC will make an overall assessment that will fall within one of the following four options:

1) fully discharged; 2) fully or partially discharged with aspects voided; 3) partially discharged with further revisit scheduled; and 4) not discharged with PCSU referral.

Page 46 of 46 GL3 – BCU Inspection Report