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Dockie..PSM163 Wilson & Van Haperen .. Page206 International Journal of Police Science & Management Volume 12 Number 2 Improving regional policing: a review of protective services. Undertaking an audit of a method of analysis using soft systems methodology Brian Wilson and Kees van Haperen† (Both) Koios Group, 1–5 Stud Offices, Redenham Park, Redenham, Andover, SP11 9AQ. †(Corresponding author) Tel: +44 (0)7787522196; Fax: + 44 (0)1264774009; email: [email protected] Received 5 June 2009; revised and accepted 12 October 2009 Keywords: protective services, strategic review, regional review, micro- analysis, problem structuring, soft systems methodology, audit Kees van Haperen is a founding member and of business analysis known as soft systems Managing Director of the Koios Group and has methodology (SSM). This development was been Chairman of the Board since February driven by the action research programme carried 2004, whilst continuing his involvement with out in that department, in which his particular ‘Strategy and Change’ consultancy assignments. interest was the application of SSM to informa- He has over 15 years of experience in strategy- tion and organisation-based analysis. The work making, management of change and programme appeared in the book, Systems: Concepts, management for a wide spectrum of public and Methodologies and Applications. He has over 35 private customers. After a decade as an officer in years of experience of tackling organisation- the Royal Netherlands Air Force and a period of based problems of various kinds and has under- involvement with decision-making and organisa- taken projects in the pharmaceutical industry, the tional learning in crises, his more recent engage- Met Office, the Office of Government Com- ments have been concerned with making sense merce, (OGC), the Ministry of Defence (MOD), of complexity and uncertainty in stakeholder-rich the National Health Service (NHS) and a variety situations. His work has focused on defining of other organisations in both the private and common purpose and desired outcomes, and public sector. He has been involved with various implementing all means required to achieve policing-related projects including with the West these. In addition, his work has concentrated on Yorkshire Police and with the Thames Valley exploring how to improve business performance Police and also with a regional project with the by doing things differently eg, through the intro- three Yorkshire forces and Humberside Police. duction of innovative and collaborative working practices and technologies. Brian Wilson left the world of nuclear power ABSTRACT engineering and control systems design in 1966, This paper illustrates how soft systems method- to become a founder member of the Department ology (SSM) was used in undertaking an audit International Journal of Police of Systems Engineering at the University of Lan- of an analysis method — Micro-Analysis — for Science and Management, Vol. 12 No. 2, 2010, pp. 206–219. caster. During his time at the University he was improving effectiveness and efficiency in a particu- DOI: 10.1350/ijps.2010.12.2.163 involved in the development of a particular form lar area of policing known as 'protective services'. Page 206 Wilson and van Haperen The authors were asked to support the Regional create larger forces ceased. Instead, Tony Project Director tasked with exploring options for McNulty, the then Minister responsible for collaboration between North Yorkshire Police, policing, was exploring ways to improve South Yorkshire Police, West Yorkshire Police and effectiveness and efficiency of the forces Humberside Police. SSM was used to develop a through intensive collaboration in a par- reference model relevant to protective services ticular area of policing known as ‘protective which, together with information categories for services’ (McNulty, 2007). each of the SSM activities and conceptual meas- This paper discusses the review of the ures of performance, was used to analyse the analysis method — ie, ‘Micro-Analysis’ — efficacy of Micro-Analysis by comparing and mandated for analysing threats, and the contrasting information content. The paper further availability and suitability of policing assets explains the importance of the use of other in the context of these threats. Although the techniques and tools to overcome the information ‘Micro-Analysis’ method is based on infor- richness and to meet the need for flexibility of mation from each individual force, it should data representation. Finally, the paper reflects on look at implications for the forces in a the deliverables and achieved outcome of the regional context. In short, the approach project and suggests some further application of seeks to determine whether excess capabil- the approach. ities within forces exist and whether these could be used to overcome shortfalls in the INTRODUCTION area of other forces. Early in 2007, the authors were invited A review of policing in England and Wales by a representative of West Yorkshire Police has been on the political agenda for some to assist in the analysis of four forces in the time. In November 2003, the then Home region covered by Yorkshire and Humber- Secretary David Blunkett hinted at a poss- side. Early views of the proposed Micro- ible restructuring of policing in England Analysis method had raised some concerns and Wales which could see smaller forces giving way to larger, ‘strategic’ forces. In about how consistently it could be applied November 2005, the then Home Secretary in isolation by individual forces. For Charles Clarke announced restructuring instance, it was feared that the definition of proposals reducing the number of police what comprises each protective service and forces in England and Wales from 43 to 12 the 'how' of its delivery would differ from (British Broadcasting Corporation [BBC], force to force, and without a clear defini- 2005). tion of purpose and activities associated These plans have had varying degrees of with each area, the responses would lack support among police officers’ organisa- consistency, thus preventing aggregation tions. In August 2004, the Police Super- and meaningful interpretation. intendents Association stated its belief that One of the authors had worked with this the existing 43 police forces of England and representative before on a number of other Wales were based on outdated boundaries projects using soft systems methodology and structures and called for reform of the (SSM) (see Wilson, 2001). It was suggested police service in its official response to that, in this situation, the early stages (and government plans. However, the Associ- possibly later ones) could be better ation of Chief Police Officers (ACPO) did informed by the application of SSM as well. not favour such moves (BBC, 2004). An acceptable definition of what constitute Finally, in June 2006 the efforts to merge ‘protective services’ would enable the iden- forces were called off and the attempts to tification of required activities, which could Page 207 Improving regional policing: a review of protective services then be used by forces to guide their assess- The protective services assessment was to ments, thus providing consistency and a involve evaluating the viability of the common language. Forces would then be option to support the delivery of protective able to make an assessment of all the avail- services to nationally accepted standards. It able 'assets' to support the service area was advised that an expert panel of senior within their force (irrespective of 'how' they managers with professional knowledge in would be delivered locally). the seven service areas should undertake this This paper will firstly give a brief over- assessment. The seven service areas are view of the issues surrounding the policing defined by ACPO and subject to national review and will focus in more detail on the assessment by Her Majesty’s Inspectorate of particular aspects of ‘protective services’. Constabulary (HMIC), namely: This is followed by an explanation of the SSM approach, the development of a con- ● serious and organised crime ceptual model which was used as a frame- ● major crime work for analysis, together with the use of ● civil contingencies and emergency information categories to evaluate the planning Micro-Analysis approach. Since an analysis ● critical incident management of this type across four organisations pro- ● counterterrorism and allied matters vides a rich source of information, views ● public order and perspectives, it is believed that, without ● strategic roads policing. some expert software tools, analysis is ren- dered too complex to structure problems The HMIC report, Closing the Gap (HMIC, effectively. To organise the depth of infor- 2005) detailed the case for major change in mation, the authors decided to use a the delivery structures for the police ser- modelling software known as MooD,1 and vice, concluding: applied system engineering principles. A section has been included on the use of The police service needs not only to deal software tools and modelling principles. effectively with volume crime, the cur- Finally, the paper reflects on the work to rent performance focus, but also have date and the benefits that have arisen from demonstrable readiness to tackle com- the audit and application of SSM. plex, volatile threats to individuals, neighbourhoods and businesses. This implies a major development in capabil- BACKGROUND PROTECTIVE ity and to achieve this change must be SERVICES AND THE FOUR FORCES made not only to the structure, but the In October 2005,
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