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Inquiry Into the Command, Management and Functions of the Senior Structure of Victoria Police

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Inquiry Into the Command, Management and Functions of the Senior Structure of Victoria Police Inquiry into the command, management and functions of the senior structure of Victoria Police Inquiry into the command, management and functions of the senior structure of Victoria Police The Victorian Government has vested the State Services Authority with functions designed to foster the development of an efficient, integrated and responsive public sector which is highly ethical, accountable and professional in the ways it delivers services to the Victorian community. The key functions of the Authority are to: identify opportunities to improve the delivery and integration of government services and report on service delivery outcomes and standards; promote high standards of integrity and conduct in the public sector; strengthen the professionalism and adaptability of the public sector; and promote high standards of governance, accountability and performance for public entities. The Authority seeks to achieve its charter by working closely and collaboratively with public sector departments and agencies. contact us at the State Services Authority Email: [email protected] Phone: (03) 9651 1321 Fax: (03) 9651 0747 Postal Address: 3 Treasury Place Melbourne 3002 www.ssa.vic.gov.au © Copyright State Government of Victoria State Services Authority November 2011 contents abbreviations v executive summary vii 1 introduction 1 1.1 Inquiry approach 1 1.2 background to the Inquiry 2 1.3 recent reports and research 2 1.4 themes 3 2 Victoria Police overview 4 2.1 role 4 2.2 legislative overview 4 2.3 funding 6 2.4 workforce 7 2.5 regions 8 2.6 senior command responsibilities 9 2.7 Justice portfolio 10 2.8 reporting arrangements 11 3 future capability 15 3.1 culture 15 3.2 corporate and strategic planning 17 3.3 workforce planning 20 3.4 workforce flexibility 22 3.5 leadership development 27 Inquiry into the command, management and functions of the senior structure of Victoria Police iii 3.6 performance management and discipline 31 4 legislative reform 40 4.1 overview 40 4.2 relationship between Victoria Police and Government 41 4.3 constitution and role of senior command 45 4.4 senior police appointments 47 4.5 termination of senior officers 52 4.6 future capability 53 5 structure of senior command 55 5.1 structure and design principles 55 5.2 role of the Chief Commissioner 57 5.3 historical changes to senior command 57 5.4 current structure of senior command 61 5.5 management committees 62 5.6 interstate models 63 5.7 UK model 64 5.8 recommendations 65 5.9 conclusion 73 6 information technology 74 6.1 Business Information and Technology Services department 76 6.2 information management and information security 77 6.3 LEAP replacement 78 6.4 HR Assist project 83 6.5 PALM 84 6.6 systemic issues 84 6.7 procurement reform and project management 85 6.8 PIPP 86 6.9 conclusions 86 appendices appendix a consultations 89 appendix b bibliography 94 appendix c inter-jurisdictional comparison - relationship between government and police 100 appendix d inter-jurisdictional comparison - roles of police and chief commissioners 102 appendix e Victoria Police organisation chart 106 iv Inquiry into the command, management and functions of the senior structure of Victoria Police abbreviations AC Assistant Commissioner ANZPAA Australia New Zealand Policing Advisory Agency BITS Business Information and Technology Services BERC Budget and Expenditure Review Committee of Cabinet BOCC Building Organisational Capability and Capacity CCP Chief Commissioner of Police CIO Chief Information Officer CLEDS Commissioner for Law Enforcement Data Security DC Deputy Commissioner ERC Expenditure Review Committee of Cabinet ESB Enterprise Service Bus FIMS Forensic Information Management System HRMS Human Resource Management System IMSSD Information Management Standards and Security Division I&IT Infrastructure and Information Technology IT Information Technology KPI Key Performance Indicator LEAP Law Enforcement Assistance Program MPS Metropolitan Police Service OPI Office of Police Integrity PAEC Public Accounts and Estimates Committee PALM Property and Laboratory Management Program PDA Professional Development and Assessment PIMS Policing Information Management System PIPP Policing Information Process and Practice Reform to Support a Modern Police Force PPSM Police Practice Standards Model SAU State Administration Unit SPMP Seized Property Management Project Inquiry into the command, management and functions of the senior structure of Victoria Police v SSA State Services Authority TPU Transfer and Promotions Unit VGPB Victorian Government Purchasing Board VPE Victoria Police Executive VPLG Victoria Police Leadership Group VPS Victorian Public Service vi Inquiry into the command, management and functions of the senior structure of Victoria Police executive summary introduction establishing the Inquiry On 9 May 2011, the Premier announced the Government would establish a special inquiry (the Inquiry) into the command, management and functions of the senior structure of Victoria Police. On 23 May 2011, the Premier wrote to the Chairperson of the State Services Authority (SSA) directing, in accordance with section 52 of the Public Administration Act 2004, that the SSA conduct such an Inquiry. The Terms of Reference were attached to the letter and read as follows: “To inquire into the following matters relating to the structure, operations and administration of the senior command of Victoria Police: 1. The effectiveness and functions of the senior structure of Victoria Police command. 2. The extent to which the senior command structure of Victoria Police provide the future capabilities to deliver best practice policing. 3. The extent to which Victoria Police has the command management structures to deliver major IT and administrative functions.” The Premier directed that a report, findings and recommendations of the Inquiry be made within six months of the direction, that is, by 23 November 2011. On 24 May 2011, the Governor In Council appointed Mr John (Jack) Rush QC, a Commissioner of the SSA from 25 May 2011 until 24 November 2011 to conduct the Inquiry. events surrounding the Inquiry Events immediately preceding the announcement of the Inquiry highlighted a perception that the effectiveness of the senior command of Victoria Police was compromised by dysfunctional relationships of those in senior command positions. On 6 May 2011, the then Chief Commissioner Mr Simon Overland directed that Deputy Commissioner Sir Ken Jones take leave, effective from close of business on 6 May 2011. Sir Ken Jones had, previously, on 2 May 2011 announced his intention to resign from Victoria Police, with the resignation to take effect on 5 August 2011. The resignation of Sir Ken Jones, and the direction that he take leave, was preceded by many weeks of speculation in the media about tensions between members of the senior command of Victoria Police. Mr Overland was appointed Chief Commissioner of Police in March 2009. He resigned on 16 June 2011. His resignation followed the release of a report by the Ombudsman earlier that day, Investigation into an allegation about Victoria Police crime statistics. On 27 October 2011, the Office of Police Integrity released a report Crossing the Line that further highlighted the history of disunity in senior command in the months before the resignations of Sir Ken Jones and Mr Overland. This history, combined with a succession of reports, both internal and external, identifying chronic and costly mismanagement across important sections of the administration of Victoria Police, brought into question the effectiveness of the senior command structure and administration of Victoria Police and its ability to deliver best practice policing. The Inquiry was established in the light of this background. Inquiry into the command, management and functions of the senior structure of Victoria Police vii process and method The Commissioner was supported by SSA employees and counsel assisting, Ms Melinda Richards. Background consultations were held with senior public servants, current and former members of Victoria Police, commissioners and senior police of interstate police organisations, business and management consultants and others. Formal interviews under section 53 of the Public Administration Act 2004 were conducted with senior police, senior public servants and others including Mr Overland and Sir Ken Jones. In all 79 people were consulted and/or interviewed. Relevant documentation was summoned from Victoria Police and provided from a number of other sources. Submissions were received from key interest groups and individuals. At the time of the establishment of the Inquiry there was speculation as to the matters the Inquiry may investigate. At an early stage the Inquiry consulted with the Ombudsman, Mr George Brouwer, the Director of the Office of Police Integrity, Mr Michael Strong, and the Auditor-General, Mr Des Pearson, to ensure, as far as possible, there was no overlap in investigations. The Terms of Reference of the Inquiry, although wide, focus on the structure and effectiveness of the senior command of Victoria Police and its ability to administer the organisation. This has been the focus of the Inquiry. Victoria Police overview The role of Victoria Police is to “provide a safe, secure and orderly society by serving the community and the law”.1 Victoria Police has grown to become the second largest police organisation in Australia with a full time equivalent workforce of 15,062.9 as at 30 June 2011.2 The workforce of Victoria Police, like that
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