State-Of-Policing-2016.Pdf

Promoting improvements in policing to make everyone safer

State of Policing The Annual Assessment of Policing in England and Wales 2016 Her Majesty’s Chief Inspector of Constabulary © HMIC 2017 You may re-use this information (excluding logos) free of charge in any format or medium, under the terms of the Open Government Licence. To view this licence, visit www.nationalarchives.gov.uk/doc/open-government-licence/version/3/ Where we have identified any third party copyright information you will need to obtain permission from the copyright holders concerned. Images used in the report are credited to the individual police force which kindly supplied them.

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Cover image © West Midlands Police Promoting improvements in policing to make everyone safer STATE OF POLICING

State of Policing – The Annual Assessment of Policing in England and Wales 2016 Her Majesty’s Chief Inspector of Constabulary

Presented to Parliament pursuant to section 54 of the Police Act 1996

i STATE OF POLICING 1

6 Part 1 8 Overview

36 Part 2 38 Our PEEL inspections 46 PEEL: effectiveness 52 PEEL: efficiency 58 PEEL: legitimacy 62 PEEL: leadership 66 Our specialist inspections 84 Our joint inspections 87 HMIC’s monitoring arrangements

88 Part 3 90 HMIC reports 92 Reports published 98 References

104 Annexes 107 Annex A 108 Annex B 121 Annex C 122 Annex D 124 Annex E

1 STATE OF POLICING This year – for the first time – we have been Foreword able to compare year- This is my report to the Secretary of State under on-year performance section 54 of the Police Act 1996. It contains my for each police force. assessment of the efficiency and effectiveness of policing in England and Wales, based on the Foreword inspections which HMIC carried out between February 2016 and March 2017.

This reporting period has 2016, and will continue to seen the second complete do so on an annual basis. round of PEEL (PEEL: Last year, our PEEL police effectiveness, inspections enabled us to efficiency and legitimacy) compare performance on inspections, which a force-by-force basis. This consider the efficiency year – for the first time – we and effectiveness of police have been able to compare forces, and assess their year-on-year performance legitimacy in respect of for each police force, their discharge of their and therefore assess the obligations, that is, how direction of travel for each they behave and treat force and the police service people. These inspections as a whole. An assessment provide the basis for our of this nature is particularly comprehensive analysis valuable to police and crime of the way in which each commissioners, police police force in England and leaders, policymakers, and Wales has performed in others in the criminal justice

2 system, as well as those on findings and reports not about how much STATESTAT OF POLICING E O F P LICING – principally the public – from other organisations. funding forces have at their who rely on its efficient In so doing, I have taken disposal. the opportunity to set operation. Part 2 provides an overview out a broader view of the We will continue to develop of the findings of the major problems which I and refine the PEEL model inspections we have carried believe confront the police in the years to come. out between February 2016 service now and which it ForewordF OREWORD Continuing to build year on and March 2017, including will have to tackle in the year, our PEEL inspections a summary of our PEEL years to come. Those provide an in-depth and inspections. problems include the need growing bank of information for continued reform, the Part 3 sets out the full list about how well each of the treatment and protection of our inspections and 43 police forces in England of vulnerable people, the other work. and Wales is policing erosion of neighbourhood the communities that it The year 2016 was an policing and the fragmented eventful one in policing serves, so that areas of police use of technology. concern can be identified, and at HMIC. In May evaluated and tackled. The I should make it clear that, 2016, elections took assessments also identify overall, in our inspections place for police and crime commissioners. New and good practice in a force the judgments which we make in relation re-elected commissioners which other forces should to the efficiency and have now taken up their consider adopting. effectiveness of the police four-year appointments I have taken full advantage are predominantly about and are holding chief of the fact that all our how well the police uses its constables to account published reports are money and other resources, for the effectiveness and available on HMIC’s website1 and throughout this report there are easy- to-use web links to the relevant sections on that site. This year’s report follows a similar structure to that of previous years. Part 1 provides my assessment of the state of policing in England and Wales. It draws together the principal themes from the inspections HMIC carried out in 2016 and in previous years. HMIC does not operate in isolation; where relevant, I have also drawn © Northumbria Police

3 STATE OF POLICING efficiency of their forces. QPM, who left HMIC in 2020. The strategy will be In planning and carrying May 2016 after four years’ reviewed every year. out our inspections, HMIC distinguished service. I wish I should like to place on has taken and will continue here to place on record my record my thanks to the to take full account of the own and the Inspectorate’s other organisations and priorities that police and very great debt of gratitude inspectorates that have crime commissioners set and thanks to Stephen worked with HMIC over the Foreword for their chief constables in Otter for his considerable past year. They have made their police and crime plans. achievements and These plans constitute immensely hard work in all a significant contribution, extremely important the affairs and concerns and I look forward to democratically established of HMIC. The public will working with them again in instruments of police probably never know how the future. accountability, and it is much they owe to him for I am proud of what we have essential that all concerned the very many things he achieved over the past year, understand and give full did which have directly but the real credit should go weight to their significance. and so substantially made to my fellow HMIs and the In August 2016, Rear them safer. His outstanding staff of HMIC who remain Admiral Matthew Parr CB record of public service just as loyal, hard-working was appointed as one of stands high to his credit. and diligent as ever. My Her Majesty’s Inspectors of In November 2016, thanks and admiration go to Constabulary. HMI Parr has we published HMIC’s them for all that they do for considerable expertise and organisational strategy2 HMIC, for policing and for experience from and in his which sets out – for our the public. Royal Navy service; their staff, the public, the police great value in the work of and others with whom we HMIC is already apparent. work – who we are as an I warmly welcome him to organisation; our purpose Sir Thomas P Winsor this role. He takes over and objectives; and what Her Majesty’s Chief from HMI Stephen Otter we intend to achieve by Inspector of Constabulary

4 HMIC website www.justiceinspectorates.gov.uk/hmic 194,775 current users on the website – over 35,000 STATE OF POLICING increase on last year HMIC @HMICgov Foreword

TE WE TS FWGOLLO IN FLOL OWERS 400 378 8,098

Top 5 reports (non-PEEL): • Crime data integrity 1 • National child protection inspection (Metropolitan) We present • Ipsos MORI public views information about of policing survey police forces’ • Rape Monitoring performance Group digests (known as the PEEL • C rime data integrity 2 assessments) in an interactive and accessible way

12,000

6,000

E fficiency Le gitimacy (and Leadership) Effectiveness 3 November 2016 – 2,638 users 8 December 2016 – 3,830 users 2 March 2017 – 11,048 users

5 STATE OF POLICING PART 1: OVERVIEW

7 STAT E O F P LICING The vast majority of frontline police officers Overview and staff continue to The inspections that HMIC has carried out do a very difficult job during the reporting period reveal two principal well. themes. The first is that the vast majority of frontline police officers and staff continue to do PA R

T 1: O a very difficult job well, under demanding and

V ER often harsh circumstances. The second is that,

VI EW while there are examples of excellence, police leaders need to focus on what matters most, plan properly for the future, ensure that their officers and staff are properly trained, supported and equipped, and improve the pace of change significantly.

With the second complete standard of policing has cycle of HMIC’s PEEL3 been exemplary, but in programme, this is the others not. This is reported first year that we have upon in Part 2. been able to compare the The police service is not the performance of all forces only public service charged year on year. While the with meeting the needs of performance of some forces vulnerable people, but it is has improved, regrettably being used increasingly as the performance of others the service of first resort. has deteriorated. For This is particularly true in the most part, where the respect of people suffering performance of individual from mental ill-health. forces has changed, it has Until mental health is been for the better. But the given the same priority pace of improvement needs as physical health, in to rise. Moreover, there is resources including funding, still far too much variation the police will continue between forces; the poor to play too large a role in performers lag too far dealing with people with behind the best. mental health problems. Some of the improvements By the time the police are encouraging. These become involved, many include the ways in which opportunities to intervene – the police deal with and to prevent mental ill-health protect vulnerable people; deteriorating to the point at in some cases, the which people are in danger

8 STATE OF POLICING PART 1: OVERVIEW

– will already have been as a matter of routine. are taking steps to improve missed. This is ineffective Every day and every night, it. However, the level of and expensive. In a well- police officers do things support that forces provide ordered and compassionate that most of us go out of for their officers and staff society, we should not our way to avoid. They varies considerably, as does rely on law enforcement do this professionally, the capability of supervisors officers to support people conscientiously, to identify and meet the who need medical care. compassionately and needs of individuals. I do The severe problems in without complaint, and they not believe that the general mental health provision in deserve our grateful thanks. public fully realises the risks this country are not only It is not only the safety which police officers and failing those who need of private citizens arising staff take, or the sometimes treatment; they also create from their ill health or the severe adverse effects an unacceptable strain ill health of others which which the strain of policing on the police, and imperil is a matter of material can have on them, both public safety. concern to the police. The mentally and physically. It is, on the whole, frontline job that frontline officers do Forces also need to do officers who feel this strain takes its toll on their own much more to manage the most acutely. Their jobs physical and mental health. performance of individuals. require them to deal with Increasingly, police leaders As well as contributing to difficult, uncertain and understand the importance perceptions of unfairness often dangerous situations of workforce well-being and among the workforce, weak

9 STATE OF POLICING Devising a sound force management statement requires clarity of purpose and honesty about

PART 1: OVERVIEW performance.

performance management imposed targets. Neither is likely to have an adverse does it mean recruiting effect on the efficiency, large numbers of effectiveness, integrity and administrators. But until leadership of forces. This police leaders at all ranks is a symptom of a wider and grades fully understand problem. the importance of good management, the police In policing, management will remain too slow to is too often seen as a change and the variation necessary chore, rather in performance between than a fundamental part forces will remain too great. of providing a good service. For too long, Good management starts police leaders have relied with a sound understanding on the professionalism of organisational purpose, and dedication of their the activities an organisation officers and staff, without will undertake and the resources available to it. For giving them the best the police, that means an support, supervision understanding of current and management. In and future demand, as well other areas of public as the capacity, capability service, management is and security of the assets a professional specialism that will be used to meet in its own right; the same that demand, including the should also be true in skills and experience of policing. officers and staff. I believe This does not mean the that each force should imposition of bureaucratic follow the example of other procedures or centrally safety-critical essential

10 public services and set need to have an informed There are good STATE OF POLICING these things out in a public debate about what published statement, known we want them to do, and examples of forces as a force management what we do not want them using innovative statement, modelled on to do. Then it becomes technology or making the network management the job of police leaders innovative use of statements of other services to decide how they are

existing technology, PART 1: OVERVIEW such as transport and going to meet the public’s energy. legitimate expectations. but these are too few There are many benefits This is no more, and and far between. to this approach, which certainly no less, than we I set out in last year’s require of other public State of Policing 2015 sector organisations; for report.4 Devising a sound too long and in too many force management respects, the police have statement requires clarity lagged far behind. of purpose and honesty The police are particularly about performance, two far behind many other essential elements for high- organisations in the way performing organisations. they use technology. There The statements will also are good examples of help forces to improve their forces using innovative decision-making, based on technology or making tried and tested methods. innovative use of existing Done well, they should also technology, but these are provide a good foundation too few and far between. for early and better discussions about priorities between police and crime commissioners and chief constables. I look forward to the introduction of force management statements later in 2017. Any discussion about demand needs to start with a clear understanding that, given the range of activities the police carry out, we cannot possibly expect them to meet every conceivable demand we might make of them. Ultimately, the police are public servants and we © West Midlands Police

11 STATE OF POLICING For too long, a culture with the overriding purpose Until we have of insularity, isolationism of affordable interoperability dissolved to nothing and protectionism has at its heart. Until we have the remaining prevented chief officers dissolved to nothing the technological and from making effective use remaining technological and human barriers that of the technology available human barriers that prevent to them. This needs to law enforcement agencies PART 1: OVERVIEW prevent law change. enforcement agencies from obtaining and using Policing is no longer all the information that others from obtaining and local. There have never of them hold, lives could yet using the information been 43 best ways to be shattered or even lost. that others of them specify, acquire or use technology. Used well, The context of hold, lives could yet be policing in 2016 shattered or even lost. modern technology should give the police an In many respects, UK unprecedented ability to policing remains the envy exchange, retrieve and of the world. The principle analyse intelligence. But of policing by consent that is only possible if has stood the test of time the intelligence is made and very substantially available in the first place. contributes to levels of We saw the consequences public trust and confidence of failing to exchange in the police that remain intelligence all too clearly high. in 2002 in Soham, when Holly Wells and Jessica We know from research Chapman were murdered carried out by Ipsos by Ian Huntley. Failures to MORI5 that three times as make reliable and timely many people say they are intelligence available satisfied with the police as across force boundaries say they are dissatisfied. meant that opportunities to The proportion of people prevent these murders were who speak highly of the missed. police is increasing. The It is high time for a figure is even higher among network code: a service- people who regularly see wide decision-making a uniformed officer in mechanism in which police their local area. Among and crime commissioners the public, the strongest and chief constables pool advocates for the police their sovereignties in order are people who have to maximise the effective frequent interaction with use of technology through police officers or police the timely establishment of community support officers sound common standards, (PCSOs).

12 This is all the more policing by consent and the STATE OF POLICING impressive when it is hard-won levels of public I do not underestimate recognised that, since trust will be jeopardised if the financial pressures 2010, the police have the police do not continue that forces will been through a period of to pursue reform with continue to face over reform that has been more imagination and resolve. the coming years, and intensive and extensive The neighbourhood policing

neither should they. PART 1: OVERVIEW than at any time since model of small teams 1829, when Sir Robert Peel of officers dedicated to established the Metropolitan particular communities has Police. In each of the past also played an important six years, the police service part in developing the in England and Wales has confidence and trust of had significant reductions the public and keeping in its funding, with the level people safe. In last year’s falling every year in cash State of Policing 2015 terms. The police workforce report,7 I warned that the has been reduced from neighbourhood policing 243,900 officers, PCSOs model was under threat; and other staff in 2010 to that remains the case. I will 200,600 in 2016 – an 18 return to this theme later. 6 percent reduction. I am pleased to report that, The 2015 spending overall, police forces in review maintained central England and Wales treat government funding for the people they serve the police in real terms. with fairness and respect, This was a better financial and police leaders are settlement than many good at ensuring that their forces had been expecting, workforces act ethically and I am concerned that, as and lawfully. Contrary to a result, some forces are no attempts by the media and longer pursuing reform with others to paint a different the levels of determination picture, levels of corruption that once they were. This among police officers is unacceptable. The scale and staff remain relatively of necessary reform has low. Nonetheless, HMIC not diminished, and forces continues to identify forces are still expected to reduce that are not taking the costs in the long term. I abuse of authority for sexual do not underestimate the gain seriously enough; this financial pressures that is another theme to which forces will continue to face I will return. over the coming years, Stories about firearms and neither should they. officers (or the shortage of The cherished principle of them) have continued to

13 STATE OF POLICING make headlines during the officers deal on a daily Constant exposure to last year, but the reality is basis. Levels of hate crime threatening, confusing that the very great majority recorded by the police and often violent of police officers in the have increased over the situations undoubtedly UK do not routinely carry past year, with a particular takes its toll on firearms. In fact, fewer spike in July 2016, after the than 5 percent of police EU referendum. And in the

PART 1: OVERVIEW frontline officers and officers in the 43 Home run-up to the vote, a young staff, mentally as well Office forces are authorised woman and Member of as physically. to carry and use firearms; Parliament – Jo Cox – was the number of times they brutally murdered. Police discharge their firearms officers were, as always, at each year is fewer than the forefront of dealing with ten.8 these incidents. Over the last year, we have There has been a number witnessed shocking terrorist of recent attempts to attacks on mainland quantify the overall level of Europe, and we have violence, insults and threats witnessed the bravery and directed towards the police. selflessness of those who The estimates vary and responded to them. The some paint a particularly threat of terrorism in the alarming picture, but we do UK remains real and should not need statistics to tell us not be underestimated, that frontline police officers but we should not forget and staff routinely deal the full range of dangerous with incidents that most situations that confront the of us go out of our way to public and with which police avoid. Constant exposure

14 to threatening, confusing Among police forces in There are individual STATE OF POLICING and often violent situations other countries, such undoubtedly takes its toll restraint is often absent, police officers who on frontline officers and with tragic consequences. show conspicuous staff, mentally as well as We must never forget the bravery and who put physically. work that these men and themselves at women do for us; they It is in the nature of deserve our wholehearted enormous risk in order PART 1: OVERVIEW inspection that inspectors gratitude and support. to help others; their tend to focus on identifying actions are an example those areas where While police officers performance needs to continue to do their to us all. improve. This should not jobs to the best of their overshadow the excellent, abilities, crime (and our understanding of crime) often unrecognised, work continues to evolve. We that individual officers and have seen growth in cyber- staff are doing on a daily crime, fraud and offending basis. As in previous years, against the vulnerable. I would like to pay tribute to the integrity and bravery of police officers and police staff. Overwhelmingly they are good, committed people who are doing their best under difficult conditions. Every year, there are individual police officers who show conspicuous bravery and who put themselves at enormous risk in order to help others; their actions are an example to us all. So too are the actions of every officer who turns up for work each day to protect others, knowing that on their shifts they may well be threatened, intimidated, assaulted or insulted. Their endurance and forbearance in the face of these dangers and provocations stand high to their credit. © South Wales Police

15 STATE OF POLICING Forces need fully to Keeping up with the pace able to predict the levels of change is a major test for of demand they are likely understand the nature the police; the public need to face, and they need and potential scale of to be confident about the to identify demand that online offending to ability of the police to pass may not immediately be ensure that more is that test. obvious. Latent demand done to protect For instance, dealing with may be just as important PART 1: OVERVIEW child sexual exploitation as patent demand. children, elderly people Sometimes it will be more and others from harm, in the digital dimension requires a model of policing serious because victims are afraid or prevented from and bring perpetrators quite different from the approaching the police, to justice. conventional methods of and the abuse and other the past. Forces need fully types of offending to which to understand the nature they are subject may be the and potential scale of online more severe because the offending to ensure that perpetrators are confident more is done to protect they will never be caught. children, elderly people This arises particularly in and others from harm, and cases of modern slavery bring perpetrators to justice. and forced labour, child New approaches must be abuse, so-called honour- developed to reflect this based violence, female contemporary demand on genital mutilation and policing services. forced marriage, and in The ability to understand, communities or parts predict and meet demand of communities where is a principal theme of this traditionally the police are report. It has never been trusted less. The police sufficient for forces only to service’s duty to protect react to 999 calls from the in these cases is just as public. They need to be strong, and often stronger

16 because of the vulnerability the skills of their workforces, STATE OF POLICING and fear of the victims. or how to develop the The majority of forces do not manage the HMIC has been working skills necessary to meet with the London School future demand. Too many performance of their of Economics to develop forces have reduced the officers and staff well a statistical model that numbers in their workforces enough. can with considerable to meet reductions in their accuracy predict demand budgets without properly PART 1: OVERVIEW for police services. The understanding how that model will allow forces to may affect current and plan effectively at a force- future capability. This is a wide level, taking account recurring theme throughout of variations in demand at a our inspections and local level. Predicting levels is particularly acute in of demand in these areas, respect of the capability to together with an analysis of investigate online crime. the types of incidents that Performance management constitute that demand, also remains too weak in will help the police to many forces. The majority of establish the capacity and forces do not manage the capability necessary to do performance of their officers much more to prevent such and staff well enough, and incidents from happening, many forces do not have or to respond effectively processes for promotion to them after they have that are sufficiently open occurred. The model is or clearly explained. While being improved and has most forces have now been made available to the set out clear expectations police service. I urge forces of leadership, these are to make use of it. rarely included as part of Understanding current and individual performance future demand, both latent reviews. and patent, is important Recruitment and retention but it is only half the battle. of specialists is a problem It is also crucial that forces for many forces. We have are able to deploy their long been aware of the resources effectively, in national shortage of firearms order to deal with the officers. The shortage of demand they are facing. detectives has reached Most forces know their a point at which the current workforce capacity Metropolitan Police Service in terms of costs and has a shortfall of nearly numbers of staff. However, 700, or 13 percent.9 This very few forces have a clearly has a detrimental sufficient understanding of effect on the force’s ability

17 STATE OF POLICING There needs to be a to investigate crime and for early and better needs urgent remedy. All discussions about priorities well-informed and forces need to think more between police and crime mature debate about creatively about how to commissioners and chief what the police recruit, train and retain constables. should be expected specialist officers including, In last year’s State of where appropriate, Policing 2015 report, PART 1: OVERVIEW to do and, just as recruiting people directly importantly, what I provided a detailed into specialist roles and explanation of the they should not do. providing accelerated characteristics of force training programmes. management statements The police are lagging too and set out the benefits of far behind in the way they the approach.10 Since then, manage their workforces with the helpful contribution and in their understanding of chief constables, police of demand. and crime commissioners We cannot realistically and others, a cohort of pilot expect the police to meet forces has worked with every possible demand we HMIC to develop and refine might make of them. There the concept. We continue needs to be a well-informed to do so and I look forward and mature debate about to the introduction of force what the police should management statements be expected to do and, later in 2017. just as importantly, what Vulnerability they should not do. This dialogue must start The cuts in public spending with a clear and reliable over the last six years have assessment of demand, inevitably affected the ability capacity and capability, now of the police – and other and in the future. public services – to make provision for those who I believe that force often need their services management statements will be an important part the most: vulnerable of the assessment that people. This state of affairs is required to inform this strengthens the case for debate. They will also help more efficient ways of forces to improve their working; by working more decision making, based on efficiently, forces will be tried and tested methods able to do more to protect drawn from other safety- people, even in the face of critical public services. reduced resources. They will benefit others too; Vulnerable people are done well, they should also often at the greatest risk of provide a good foundation harm. The police, like other

18 STATE OF POLICING PART 1: OVERVIEW

© Northamptonshire Police organisations, has a duty Police leaders need to do faces, specifically the risk to give them the protection more to recognise this, and of becoming a victim of and support they need. to bring all of their officers child abuse, child sexual It is not always easy for up to the level of the best. exploitation, domestic frontline officers to provide In part, this means adopting abuse, female genital this protection and support, deployment models that mutilation, forced marriage, not least because cases give officers enough time so-called honour-based involving vulnerable victims to meet the needs of violence, modern slavery, are often both complex and vulnerable people. It also prostitution, serious sexual sensitive. Neither is it always means providing appropriate offences or stalking and 11 easy to identify people levels of training, supervision harassment. Again, these who may be vulnerable, and support. are disparate groups. Many particularly for officers Vulnerable people include of them consist of people under pressure to attend children, elderly people, who live, work and socialise other incidents or who are disabled people, and those in communities across not in possession of all the with learning difficulties or the country, all too often facts. Nonetheless, HMIC mental health problems. showing no outward sign of has found many examples These are disparate groups, their grotesque mistreatment of officers and staff at all but they all include people at the hands of others. Such ranks and grades who whose voices are often not people are concealed in have with consummate heard, and whose needs plain sight. It is the job of the professionalism and great are not recognised or met police – with others – to find humanity and compassion by other public services and protect them. protected and cared for with obligations towards We have seen what vulnerable people, often them. The College of happens when the risks in the most demanding Policing uses a definition of faced by vulnerable people, and distressing of vulnerability that focuses on or vulnerable people circumstances. the risk that an individual themselves, are ignored or

19 STATE OF POLICING not recognised. In places of HMIC’s 2015 PEEL: Forces have now such as Rotherham, effectiveness inspection recognised that the Rochdale and Oxfordshire, in which forces were service they provide hundreds of children have weakest. No force was for vulnerable people been subjected to horrific found to be outstanding is not good enough. abuse, much of which could and the majority required have been prevented if the improvement or were

PART 1: OVERVIEW agencies of the state had inadequate. Of the understood their plight and four forces graded as discharged their obligations. inadequate, our inspection We should not lose sight revisits in 2016 have found of the fact that vulnerable evidence of good progress people are at risk from a in only two of them. wide range of other crimes It is worth noting that forces too. The 2016 National have now recognised that Trading Standards Board the service they provide Consumer Harm Report12 for vulnerable people is points out that illegal not good enough and money lenders “usually that police leaders are target people in vulnerable committed to making situations who struggle to improvements. To reflect access credit through other the increasing priority that is means” and that criminals being given to vulnerability, impersonating officials are many forces are changing also likely to target people their structures, realigning in vulnerable situations, their spending and such as older people living resources, and adapting alone. their approaches in areas The report also states such as staff promotion. that the average age of a These improvements are victim of a postal scam is welcome. In no small part, 75. Research conducted they have come about by the Home Office shows because forces are acting that people in this group on the recommendations are most likely to take in last year’s reports. In advice from someone particular, forces are now they already know, which showing real resolve to highlights the importance of improve their handling of building relationships within domestic abuse. However, communities – a theme more needs to be done to which I will return in the and these improvements section on neighbourhood have not come easily. It policing. has taken years of pressure Looking back two years, from charities, politicians vulnerability was the area and HMIC for police leaders

20 The police’s duty to STATE OF POLICING to recognise the need for Today’s children are change. Constant vigilance protect children will be required to ensure growing up in a digital In early 2016, as part of our that the current level of world. They face rolling programme of child focus on domestic abuse protection inspections, we pressures from social is maintained. inspected the Metropolitan media that simply did The College of Policing Police Service. The not exist as recently as PART 1: OVERVIEW intends to devise a system resulting report was the a decade ago. that requires officers leading most severely critical investigations into complex that HMIC has published crimes against vulnerable about any force, on any people to hold a licence subject, ever. In short, we to practise.13 This is an found significant errors of encouraging step among judgment, unacceptable a wider set of measures delays and a lack of intended to transform leadership which meant the service provided to that children were not vulnerable people.14 being protected properly. There is no place in civilised As I have said, there are society for the police to many frontline officers neglect their duty towards who provide exemplary children in this way, and it is service to vulnerable deeply troubling that it has people, including children been happening to such at risk, often despite difficult a significant extent in the conditions. But we are still largest force in the country. finding weaknesses in the overall approach to keeping Today’s children are vulnerable people safe. growing up in a digital world. They face pressures Police leaders, while from social media that recognising the need to simply did not exist as improve, lag some way recently as a decade ago. behind their officers and Many children suffer cyber- staff in their understanding bullying from which even of what it takes to meet the their homes provide no safe needs of vulnerable people. haven. Their exposure to Until frontline officers and extremely upsetting and staff are given the tools damaging material, and (and the time) they need their vulnerability to online to do their jobs properly, grooming and predation, improvement in this area should alarm and spur will be too slow. Therefore, into action every parent I expect HMIC inspections and carer, every teacher, to continue to focus on every health professional vulnerability in 2017. and every other member

21 STATE OF POLICING of the community. No one greatest vulnerability and No one should be should be complacent; who have the most to lose. wilfully or negligently no one should be wilfully Our children in particular ignorant or dismissive or negligently ignorant enter, occupy and play of the very great or dismissive of the very in places exponentially dangers to which our great dangers to which more hazardous than any our children are now into which their parents

PART 1: OVERVIEW children are now exposed. Those dangers ever could have ventured. exposed. are often greater and more Neither is the internet prevalent in the online designed with the police world than they are in the in mind; indeed, parts of it physical world. As the are designed to evade the Children’s Commissioner attentions and techniques for England pointed out of law enforcement. in a recent report, the 16 internet is an extraordinary Home Office research force for good, but it is not shows that the group designed with children in of people at the highest mind.15 It is also a vehicle risk of cyber-fraud and for very great numbers financial crime are also the of the worst and most most likely to have anti- dangerous offenders, who virus software installed use it to obtain unimpeded on their computers and access to those with the so assume they are safe.

22 It is their over-reliance on This is not just important This generation of STATE OF POLICING a basic and inadequate in relation to the risks that level of protection and their children face online; it is also children are digital willingness to take risks important that parents (and natives, but senior that put them in danger. anyone who works with leaders in the police Police and parents need to children) understand how are at least two know how to deal with the technology can be used to

generations behind. PART 1: OVERVIEW risks that come with the facilitate crime offline. unprecedented ability to Many criminals are communicate, create and adept at exploiting exchange information and opportunities presented false information that is now by new technology, and part of our digital lives. continuous vigilance is Parental controls on internet required to keep up with use are not enough; the risks that the misuse of technology poses. Parents, education about online for example, need to be risks is vital. Parents need aware that the ease with to be able to spot warning which stored-value cards, signs and they need to such as gift cards, can be satisfy themselves that purchased with cash means their children understand that they have become the risks they face, and attractive to drug dealers can avoid them. This is (among others) as a form not always easy, but there of anonymised electronic is support available for currency. There are, of parents, including the course, perfectly legitimate Child Exploitation and reasons for children to Online Protection Centre have such cards, but their www.thinkuknow.co.uk unexplained or excessive website and other online use is a warning sign that a resources such as those child could be being drawn provided by the NSPCC.17 into danger. Commercially-available This generation of children software which allows are digital natives, but parents to monitor and senior leaders in the control their children’s police are at least two use of internet-connected generations behind, and technology – to see what are not recruiting enough they are doing, and to people with the right skills block or restrict access – to police the internet, to is now well advanced and investigate digital crime extraordinarily inexpensive. or to make effective use No parent should of new technology. Rapid disregard it. technological change

23 STATE OF POLICING The provision of creates new opportunities the police significantly. to investigate crime and In some forces, police mental healthcare has apprehend suspects, officers end up acting as reached such a state of but forces are all too first responders when no severity that police are often overwhelmed by ambulances are available. often being used to fill it, leading to backlogs With ambulance services of digital devices waiting across the country being

PART 1: OVERVIEW the gaps. to be examined and stretched, this is a worrying evidence waiting to be trend that makes it all the assessed. Forces urgently more important for police need to recruit and train a leaders to understand workforce that is fit for a the full range of demand digital future. The public – – including of course the especially the vulnerable – nature of demand – they are cannot afford for the police facing. to be left behind. We are still finding cases Mental health of mentally ill people – The police have often been who have not committed used as the service of any crime – spending the last resort. In some areas, night in a police cell. This particularly where people is because they are too with mental health problems vulnerable to be left alone need urgent help, the police but there is no bed for are increasingly being them in a healthcare facility. used as the service of first The provision of mental resort. While the financial healthcare has reached settlement for the police in such a state of severity that the most recent spending police are often being used review was welcome, cuts to fill the gaps that other in other public services agencies cannot. This is can increase demand on an unacceptable drain on

24 police resources, and it is when someone is holding STATE OF POLICING a profoundly improper way a weapon in a state of high to treat vulnerable people distress, the expense to all who need care and help, concerned is far higher than not incarceration among it should be. The principal criminals. Recently-enacted sufferer is the person who legislation to deal with this is ill, especially when it problem is very welcome, is realised that his or her PART 1: OVERVIEW but it will only be effective if suffering could have been adequate provision is made much less or even avoided available elsewhere.18 altogether. The first obligation of the Then there is the economic police is to prevent crime. cost in terms of the This is not only because this expenditure of time and makes society safer – both effort by the police and in reality and in perception other public services, – but also because it is far as well as the expense cheaper to prevent a crime and trauma sustained by than it is to investigate and those adversely affected arrest the offender after by the crisis at the time. the event. The same is true The economic arguments of mental ill-health, which for earlier intervention is not a crime. It is an old intensify the health and adage that an ounce of moral ones already in play. prevention is better than a Furthermore, research, pound of cure, and this is carried out by Ipsos MORI particularly true when the for HMIC, shows that only cure fails and an emergency two percent of people think intervention is required to that the police service has protect the safety of an the greatest responsibility individual in distress and, for the safety of people with often, people nearby. By mental ill-health or learning the time depression or difficulties. some other mental disorder With an estimated one in has been allowed to ten young people having a advance to the point that mental health problem, this someone is contemplating is not a matter for the police suicide, or engaging in very alone.19 The inadequacy hazardous behaviour, many of mental health provision opportunities to intervene and the lack of parity with will have been missed physical health provision in by many organisations. this country should disturb When that intervention everyone. It should never be takes place on a motorway the case that someone who bridge or railway line, or requires treatment, for any

25 STATE OF POLICING condition, should become diminishes. This necessarily I have longstanding the responsibility of the leads to a significant concerns that the police simply because other reduction in the numbers bedrock of agencies do not have the of times that members of neighbourhood resources to act. the public see a uniformed policing is being Neighbourhood police officer. Since 2015, there has been a substantial

PART 1: OVERVIEW eroded. policing continues to drop in the proportion of be eroded people who say they have I have longstanding seen the police, on foot or concerns that the bedrock in a police car, regularly, of neighbourhood policing is in their area. Our research being eroded. A dedicated shows that, now, fewer than neighbourhood policing one in five people feel there team in a local community is a regular uniformed police is able to build trust and presence in their area. confidence in a much Where neighbourhood deeper way than response teams exist, police officers officers will ever be able to. are routinely taken away A local presence is also a from their local areas to vital part of understanding meet demands in other the risks and threats faced parts of the force area, by a community, and is a leaving a reducing number critically important part of of PCSOs as the mainstay preventing crime. of community teams. Such As the resources available teams can do excellent to neighbourhood policing work with other local public teams dwindle, the ability services. They often have of officers to devote time a strong understanding of to local communities the policing needs of the

26 communities they serve, but communicate information to STATE OF POLICING they need to be properly them. There are instances As the resources and consistently supported of good and creative available to in their work. This support work, but these are rarely neighbourhood must include the availability joined up or supported by policing teams of warranted officers. resources from across the dwindle, the ability of Most people understand wider force. The ways that forces use social media, officers to devote time PART 1: OVERVIEW that neighbourhood policing to local communities can be a powerful force for including those channels protecting the vulnerable specifically aimed at local diminishes. and tackling the petty crime communities, are highly and anti-social behaviour variable, and most forces that blight people’s lives. have much to learn from But neighbourhood policing the best. also provides the eyes and Overall there is no ears in communities that sufficiently consistent can gather the intelligence approach to tackling local necessary for disrupting problems in a structured serious and organised way, or to adopting and crime and terrorism. adapting approaches Where the work of that have proved to be neighbourhood teams is successful elsewhere. inconsistent, unstructured Forces are not routinely or insufficiently supported, applying tried and tested it leads to a patchy techniques, and they understanding of threat, are not evaluating their harm and risk within approaches to find out what communities. Without the works in order to promote intelligence provided by good practice to others. neighbourhood teams, This results in too much forces cannot properly activity that is reactive and analyse and exploit data self-planned rather than from other services. directed by intelligence. Poor neighbourhood Much more use could policing leads to community be made of predictive engagement that the public analytical techniques to finds limited, frustrating help deploy increasingly and confusing. There is scarce resources more recognition among forces effectively. that engagement needs to Finally, powers to tackle evolve, but all too often we anti-social behaviour are find a general lack of clarity too often being used about how to work closely inconsistently. Some with local communities, forces are ten times more obtain their views and likely than others to use

27 STATE OF POLICING their anti-social behaviour Any organisation that fails powers, once population to make effective use of size is taken into account. ICT to collate, manage and Some variation between analyse information will not forces is to be expected, make effective decisions but there is no convincing and will get left behind. case that can be made for The history of police use of PART 1: OVERVIEW such wide variations. This ICT is not a distinguished is a problem that needs further investigation and is story. A persistently weak one that HMIC will return to approach to the adoption during 2017. and implementation of technology is a Use of technology longstanding problem, remains poor particularly with regard I have said before that to timely access to high- the oxygen of effective quality intelligence. For policing is information. more than 20 years, But information is useless successive reports from if it cannot be found and the Police Information used at the time and in the Technology Organisation, circumstances in which it is the Home Office Police needed. In an increasingly Research Group, the connected and fast-moving Association of Chief Police world, timely access to Officers and HMIC have accurate information has highlighted major concerns never been more important. about police ICT systems

28 and the information held STATE OF POLICING on them. Too many forces have large numbers of bespoke systems that only a small number of individuals know how to maintain. To PART 1: OVERVIEW address this, forces need to give deep thought to the ICT architecture that they are designing. This is more important, and more difficult, than the effective procurement of individual © Northamptonshire Police devices. Too many forces invest very significant and more efficient ways of amounts of money in working. devices and systems that their ICT architecture cannot There are, of course, handle efficiently. some examples of good practice. Many forces are This is not just a problem making good use of mobile of forces buying the devices which, when used wrong technology. In effectively, can enable general, forces do not officers and staff to remain have enough officers and within the community staff with the necessary without having to return to expertise to make good a police station to process use of technology, or the information. confidence to know what they need. Very few forces Cleveland Police is are focusing on developing using data from several the digital skills of their organisations to produce officers and staff, despite maps that reveal a universal acceptance geographical locations with that digital skills are an high demand or high risk. increasingly important part Using the geo-locators of police work. Fewer still within police vehicles and ensure that ICT and new radios, the system can technology are at the heart also be used to analyse of their day-to-day work. intervention work in an area. In most cases, forces’ ICT In Cumbria, frontline officers was designed to support have hand-held tablets with their existing processes, internet access and digital rather than shaping new maps for locating incident

29 STATE OF POLICING The equipment used scenes quickly. Using As discussed earlier, we the tablets, officers can saw the result of failing by the majority of update the constabulary’s promptly and efficiently to forces still lags far command and control communicate intelligence behind the technology systems, access their emails all too clearly in Soham that officers use in and circulate photographs in 2002 when Ian Huntley of missing people. Essex murdered Holly Wells and

PART 1: OVERVIEW their own homes and Police recently won Jessica Chapman. These cars. an award for its use of failures to make intelligence telematics in its vehicle available across force fleet to identify underused boundaries meant that vehicles and opportunities opportunities to stop Ian to improve the deployment Huntley were missed. of resources, leading to Police forces are not in reduced maintenance and competition with each mileage costs. other, and there is no These examples are reason for them not to encouraging, but the work together. We know technology involved is that adopting a common hardly cutting edge. The approach is possible and equipment used by the can lead to improvements. majority of forces still lags In the wake of the Bichard far behind the technology Inquiry into child protection that officers use in their procedures in Humberside own homes and cars. Police and Cambridgeshire Internet-enabled tablets, Constabulary,20 a nationally for instance, have been consistent framework for available for years in every the Management of Police high street in the country. Information (MOPI) was implemented. The absence of an effective 21 collective decision- In HMIC’s 2013 review into making mechanism at allegations and intelligence the national level militates material concerning Jimmy against progress and Savile, we found that, leaves us with a culture when MOPI is followed, the of insularity, isolationism system works as intended. and protectionism. This However, we also found is not to say that chief that implementation did not constables do not act in match expectations, partly the interests of their forces due to the discretion that and communities, but MOPI afforded to individual disseminating intelligence chief officers. and common ways of The picture painted in the working have not been high Bichard inquiry’s report enough on their agendas. was alarming:

30 “There was, and remains, on common systems. reduce costs and increase STATE OF POLICING no uniformity of approach. Similarly, Hertfordshire, consistency. Each of the 43 police forces Cambridgeshire and The Police ICT Company22 has a variety of IT systems, Bedfordshire have pooled has achieved some positive which are used for a variety their ICT budgets and have results with individual of different purposes. The a single ICT lead for all three suppliers, but currently interfaces between systems forces. lacks the mandate and at local force-to-force level PART 1: OVERVIEW None of this means that resources to bring about are almost non-existent. the level of change that every police force should Even within forces, the is desperately needed have exactly the same interface between systems in this area. Equally, the has been patchy at best.” ICT system. There is work of the National Police considerable scope for Much has changed since Chiefs’ Council on digital variation, provided that 2002; but accurate, contact with the public, comprehensive and systems can efficiently and investigations and links to nationally accessible law seamlessly connect to one the wider criminal justice enforcement information another and exchange system has the potential to systems are still some information. However, change things for the better. time away. The principles bespoke solutions tend to ICT systems, even those of perfect, timely and be more expensive, and the that are fully interoperable, affordable interoperability police service as a whole are only as good as the need to be applied by all would benefit from having data they contain. As far agencies concerned with access to some ‘off-the- back as 1996, an internal public safety, not only the shelf’ products that would report by the Police police. Given that not simplify procurement, Information Technology enough in law enforcement has changed, it is possible © Hampshire Constabulary that offenders could still be slipping through the net. Despite the patchy national picture in law enforcement, at the regional level there are examples of collective decision-making working well. Hampshire Constabulary and Thames Valley Police already have a shared chief technology officer and there are plans to include Surrey and Sussex in the arrangement, which will include common project management rules. The aim is to ensure that things are done only once,

31 STATE OF POLICING Organisation highlighted estimates it has matched or Forces must accelerate differences in the way deleted 200,000 records, a the move away from forces entered information task which would otherwise insularity and dissolve into intelligence systems. have taken years to to nothing the barriers This was also a principal complete. Elsewhere, some to sharing information. theme in the Bichard forces are joining elements Inquiry’s report, which found of their ICT together on a

PART 1: OVERVIEW that differing practices regional and inter-regional in the 43 police forces basis. increased the likelihood that Forces must accelerate the information would be lost. move away from insularity There have been some and dissolve to nothing improvements since 2004, the barriers to sharing most notably the creation information. Criminals are of the Police National more than capable of taking Database (PND). But even advantage of information so, a number of police highways, and it is essential forces do not routinely that law enforcement supply the PND with all the does the same. In today’s intelligence that the system digitally-connected world, is designed to handle. interoperability is not just Some progress has also important: it is essential. been made by individual Chief constables must forces. For instance, fully commit to working Avon and Somerset collaboratively with each Constabulary recently has other and the Police ICT invested in a new record Company to bring about management system that radical improvements to the links the preparation of use, design, interoperability custody and case files and procurement of ICT with intelligence recording systems. and crime management. The Strategic Policing The new system is also Requirement (SPR) compatible with the force’s requires, among other command and control things, connectivity system. As a result, between forces and multiple ICT platforms are emphasises the need for updated automatically. consistency. Police and Cleveland Police has made crime commissioners and a successful bid to the chief constables are all Police Innovation Fund required to have regard23 to buy a new system for to it. The chronic lack of data matching, leading to interoperability between identification and deletion of forces’ ICT systems clearly duplicate records. The force demonstrates that “having

32 regard to” the SPR is not economically and fairly STATE OF POLICING enough and that forces established, and they work need to go much further. well as a result. Interoperability is a problem These other public services that has largely been solved were starting from a single in safety-critical, essential entity (or a very few) and public services such as

created their network codes PART 1: OVERVIEW energy and transport. When before they were split up. these services were being In the case of the police, restructured, a network the problem is approached code was established from the opposite end – for each, specifying common operating we have forces which are procedures for things already separate (and have which had to be done never been one) and now the same way, to ensure need to join their systems quality and continuity together in a way that of service. Common respects local accountability technical standards, and but acquires, maintains and an obligation to adhere to exploits all the benefits of a them, have been efficiently, single networked system.

33 STATE OF POLICING In these respects, the no longer all local and there Until the police service principles are the same, have never been 43 best has a fully functional, and the techniques of other ways to specify, acquire or interoperable system public services can be use ICT. adapted to meet the needs of ICT networks, Of course, the requirements of law enforcement. This efficiency and of each force are not all is a problem about which exactly the same. There PART 1: OVERVIEW effectiveness are I have commented many needs to be a well- impaired, public safety times during my tenure is imperilled. as Her Majesty’s Chief developed procedure for Inspector of Constabulary. the proposal, analysis and consideration of standards The solution I have and new ways of working proposed is a network with ICT, so everyone has code: a decision-making a say, and everyone’s mechanism for the individual circumstances establishment, revision are taken fully into and abolition of common consideration. There is also operating standards and procurement of ICT. It a role for ICT suppliers to would still require all police ensure the practicalities and crime commissioners and economies of ICT and chief constables to pool development are properly their sovereignties, in the understood, at the right interests of a more efficient, point in time. economical and effective Until the police service police service. has a fully functional, This is an opportunity for interoperable system of ICT them to improve policing, networks, efficiency and not a threat to their effectiveness are impaired, independence. Policing is public safety is imperilled.

34 The solution I have STATE OF POLICING Connection and proposed is a network code: a decision-making mechanism for the collaboration establishment, revision and abolition of common operating standards and

procurement of ICT. It PART 1: OVERVIEW would still require all police and crime commissioners and chief constables to pool their sovereignties, in the interests of a more efficient, economical and effective police service. Sir Thomas P Winsor, HMCIC

35 STATE OF POLICING PART OUR INSPECTIONS 2:

37 STATESTAT OF POLICING E O F P LICING We assess and make graded judgments Our PEEL inspections about how well each In 2016, we made our second complete PEEL police force keeps assessment of the 43 police forces in England and people safe and Wales. As part of the PEEL programme, we assess and make graded judgments about how well each

PART OUR INSPECTIONS 2: reduces crime. police force keeps people safe and reduces crime. The PEEL programme consists of three pillars: effectiveness, efficiency and legitimacy.

PEEL: effectiveness is are provided by the police an assessment of whether and the treatment of the appropriate services are people who work in police being provided by each forces. police force and how well In addition, our PEEL those services work; it assessment includes considers the range of the an examination of how force’s responsibilities, such leadership is understood, as cutting crime, protecting developed and displayed in the vulnerable, tackling each of the 43 English and anti-social behaviour, and Welsh forces. dealing with emergencies The challenge of providing and other calls for service. services throughout an PEEL: efficiency is an entire police force area is assessment of whether a function of many things the manner in which each including the area’s size, force provides its services topography, road network represents value for money, and, most importantly, the and how well the force people who live, work and understands and matches spend time there. Taken its resources and assets together, these and other to the demands for its considerations are often services, both in the present referred to as the operating and in planning for the context. We take account future. of the operating context PEEL: legitimacy is an for each force, and we assessment of whether, recognise that differing in providing services, operating contexts create each force operates fairly, markedly different needs for ethically and within the law. policing. This includes the treatment At the end of the PEEL of those to whom services year (in March 2017),

38 STATE OF POLICING PART OUR INSPECTIONS 2:

HM Inspectors of significant themes such as and to understand the Constabulary produce a leadership. context in which services rounded annual assessment It is important to understand are provided. Similarly, it is of each force, drawing on that police forces are not important to read beyond the PEEL assessments in competition with each the headline graded and other sources of other. Inevitably, there will judgments and consider the information. We call these be those who want to re- reasons why some forces the HMIs’ assessments and order our graded judgments have been graded more we publish them on our into a form of league table. highly than others. These website.24 We also publish Nonetheless, a more more nuanced judgments national summary reports sophisticated approach is are to be found in the for each pillar of the PEEL required to represent the individual force reports programme, as well as breadth and complexity that are presented on our supplementary reports on of police performance website.25

39 PEEL judgments table

STATE OF POLICING Effectiveness Efficiency How effective is How effective is How effective is How effective is Effectiveness How well does How well does How well is the Efficiency To what extent How well does To what extent Legitimacy the force at the force at the force at the force at pillar the force the force use force planning pillar does the force the force ensure does the force pillar preventing investigating protecting those tackling serious understand its resources to for demand in treat all of the that its treat its crime, tackling crime and who are and organised the current and manage the future? people it serves workforce workforce with anti-social reducing vulnerable from crime? likely future current with fairness behaves fairness and Since 2015 Since 2015 behaviour and re-offending? harm, and Since 2015 demand? demand? and respect? ethically and respect? keeping people supporting lawfully? safe? victims? PART OUR INSPECTIONS 2: Requires Avon and Somerset Good Good Good Good  Outstanding Good Good Good Good Good Good Good improvement Requires Requires Requires Requires Requires Requires Requires Bedfordshire Inadequate Inadequate Inadequate  Good Good Good improvement improvement improvement improvement improvement improvement improvement Requires Requires Requires Requires Requires Cambridgeshire Good Good Good Good  Good  Good Good Good improvement improvement improvement improvement improvement

Cheshire Good Good Good Good Good Outstanding Good Good Good  Good Good Good Good

Requires Requires Requires Requires Requires Cleveland Good Good Good Good  Good Good Good Good  improvement improvement improvement improvement improvement Requires Requires Requires Cumbria Good Good Good Good  Good Good Good Good Good Good improvement improvement improvement Requires Requires Requires Requires Requires City of London Good Good Good Good Inadequate  Good Good Good improvement improvement improvement improvement improvement Requires Requires Requires Requires Requires Requires Requires Requires Devon and Cornwall Good Good   Good Good Good improvement improvement improvement improvement improvement improvement improvement improvement

Derbyshire Good Good Good Outstanding Good Good Good Good Good Outstanding Outstanding Good Outstanding 

Requires Dorset Good Good Good Good Good Good Good Good Good  Good Good Good improvement Requires Requires Requires Requires Requires Requires Requires Requires Requires Requires Requires Dyfed-Powys Good Good improvement improvement improvement improvement improvement improvement improvement improvement improvement improvement improvement Requires Durham Outstanding Good Good Outstanding Outstanding Outstanding Outstanding Outstanding Outstanding Good Outstanding Good improvement Requires Essex Good Good Good Good  Good Good Good Good Good Good Good Good improvement Requires Requires Requires Requires Requires Requires Requires Gloucestershire Inadequate Good Good Good Good Good  improvement improvement improvement improvement improvement improvement improvement Requires Requires Greater Manchester Good Outstanding Good Good Good Good Good Good Good Good Good improvement improvement Requires Gwent Good Good Good Good Good Good Good Good Good Good Good Good improvement Requires Requires Requires Requires Hampshire Good Good  Good Good Good Good Good Good Good improvement improvement improvement improvement Requires Requires Requires Requires Hertfordshire Good Inadequate Good  Good Good Good Good Good Good improvement improvement improvement improvement Requires Requires Requires Requires Requires Requires Requires Humberside Good Inadequate Good  Good Good Good improvement improvement improvement improvement improvement improvement improvement

Kent Good Good Good Good Good Outstanding Good Good Good Outstanding Good Outstanding Outstanding

Requires Lancashire Good Good Good Good Good Good Good Good Good  Good Good Good improvement Requires Requires Requires Requires Leicestershire Good Good  Good Good Good Good Good Good Good improvement improvement improvement improvement  Improved Unchanged  Declined 40 Efficiency Legitimacy STATE OF POLICING How effective is How effective is How effective is How effective is Effectiveness How well does How well does How well is the Efficiency To what extent How well does To what extent Legitimacy the force at the force at the force at the force at pillar the force the force use force planning pillar does the force the force ensure does the force pillar preventing investigating protecting those tackling serious understand its resources to for demand in treat all of the that its treat its crime, tackling crime and who are and organised the current and manage the future? people it serves workforce workforce with anti-social reducing vulnerable from crime? likely future current with fairness behaves fairness and Since 2015 Since 2015 behaviour and re-offending? harm, and Since 2015 demand? demand? and respect? ethically and respect? keeping people supporting lawfully? safe? victims? PART OUR INSPECTIONS 2: Requires Avon and Somerset Good Good Good Good  Outstanding Good Good Good Good Good Good Good improvement Requires Requires Requires Requires Requires Requires Requires Bedfordshire Inadequate Inadequate Inadequate  Good Good Good improvement improvement improvement improvement improvement improvement improvement Requires Requires Requires Requires Requires Cambridgeshire Good Good Good Good  Good  Good Good Good improvement improvement improvement improvement improvement

Cheshire Good Good Good Good Good Outstanding Good Good Good  Good Good Good Good

Derbyshire Good Good Good Outstanding Good Good Good Good Good Outstanding Outstanding Good Outstanding 

Kent Good Good Good Good Good Outstanding Good Good Good Outstanding Good Outstanding Outstanding

41 PEEL judgments table

STATE OF POLICING Effectiveness Efficiency How effective is How effective is How effective is How effective is Effectiveness How well does How well does How well is the Efficiency To what extent How well does To what extent Legitimacy the force at the force at the force at the force at pillar the force the force use force planning pillar does the force the force ensure does the force pillar preventing investigating protecting those tackling serious understand its resources for demand in treat all of the that its treat its crime, tackling crime and who are and organised the current and to manage the future? people it serves workforce workforce with anti-social reducing vulnerable from crime? likely future current with fairness behaves fairness and Since 2015 Since 2015 behaviour and re-offending? harm, and Since 2015 demand? demand? and respect? ethically and respect? keeping people supporting lawfully? safe? victims? PART OUR INSPECTIONS 2: Requires Requires Requires Lincolnshire Good Good Good Good  Good Good Good  Good Good Good improvement improvement improvement

Merseyside Good Good Good Outstanding Good Good Good Good Good Good Good Good Good

Requires Requires Requires Requires Requires Metropolitan Police Good Inadequate Good Good Good Good Good Good improvement improvement improvement improvement improvement

Norfolk Outstanding Good Good Good Good Outstanding Good Good Good  Good Good Good Good

Requires Requires Requires Requires Requires Requires Northamptonshire Good Good Good  Good Good Good Good improvement improvement improvement improvement improvement improvement Requires Requires Requires Northumbria Good Good Good Good Good Good Good Good Good Good  improvement improvement improvement Requires Requires Requires Requires Requires Nottinghamshire Good Inadequate Good  Good Inadequate  Good Good Good improvement improvement improvement improvement improvement Requires Requires Requires Requires Requires North Wales Good Good Good Good  Good Good Good Good  improvement improvement improvement improvement improvement Requires North Yorkshire Good Good Good Good Good Good Good Good Good Good Good Good improvement

Suffolk Good Good Good Good Good Good Good Good Good Good Good Good Good

Requires Requires Requires Requires Requires Staffordshire Good Good Good Good Good Good Good Good improvement improvement improvement improvement improvement Requires Requires Surrey Good Good Good Good  Good Good Good  Good Good Good Good improvement improvement Requires Requires Requires Requires Requires Sussex Good  Good Good Good Good Good Good Good improvement improvement improvement improvement improvement Requires South Wales Good Good Good Good Good Outstanding Good Good Good Good Good Good improvement Requires Requires Requires Requires Requires Requires Requires Requires Requires Requires South Yorkshire Good Inadequate Good  improvement improvement improvement improvement improvement improvement improvement improvement improvement improvement Requires Thames Valley Good Good Good Good Good Good Good Good Good Good Good Good improvement

Wiltshire Good Good Good Good Good Good Good Good Good Good Good Outstanding Good

Requires Requires West Midlands Good Good Good Good Outstanding Good Outstanding Outstanding Good Good Good improvement improvement Requires Requires West Mercia Good Good Good  Good Good Good Good Good Good Good Good  improvement improvement Requires Requires Warwickshire Good Good Good  Good Good Good Good Good Good Good Good  improvement improvement Requires West Yorkshire Good Good Good Good Good Good Good Good Good Good Good Good improvement

 Improved Unchanged  Declined

42 Efficiency Legitimacy STATE OF POLICING How effective is How effective is How effective is How effective is Effectiveness How well does How well does How well is the Efficiency To what extent How well does To what extent Legitimacy the force at the force at the force at the force at pillar the force the force use force planning pillar does the force the force ensure does the force pillar preventing investigating protecting those tackling serious understand its resources for demand in treat all of the that its treat its crime, tackling crime and who are and organised the current and to manage the future? people it serves workforce workforce with anti-social reducing vulnerable from crime? likely future current with fairness behaves fairness and Since 2015 Since 2015 behaviour and re-offending? harm, and Since 2015 demand? demand? and respect? ethically and respect? keeping people supporting lawfully? safe? victims? PART OUR INSPECTIONS 2: Requires Requires Requires Lincolnshire Good Good Good Good  Good Good Good  Good Good Good improvement improvement improvement

Merseyside Good Good Good Outstanding Good Good Good Good Good Good Good Good Good

Requires Requires Requires Requires Requires Metropolitan Police Good Inadequate Good Good Good Good Good Good improvement improvement improvement improvement improvement

Norfolk Outstanding Good Good Good Good Outstanding Good Good Good  Good Good Good Good

Suffolk Good Good Good Good Good Good Good Good Good Good Good Good Good

Wiltshire Good Good Good Good Good Good Good Good Good Good Good Outstanding Good

43 STATE OF POLICING PEEL 2016: Summary of grades for each pillar

Effectiveness: One force Efficiency: Two forces Legitimacy: Two forces

PART OUR INSPECTIONS 2: (Durham) was graded (Durham and West (Kent and Derbyshire) outstanding, 28 were Midlands) were graded were graded outstanding, graded as good, 13 outstanding, 33 were 36 were graded as good, were graded requires graded as good, 8 5 were graded requires improvement and one force were graded requires improvement and no forces (Bedfordshire) was graded improvement and no forces were graded inadequate. inadequate. were graded inadequate.

utstandingutstandingutstanding utstandingutstandingutstanding utstandingutstandingutstanding GoodGoodGood GoodGoodGood GoodGoodGood equiresequiresequires improement improement improement equiresequiresequires improement improement improement equiresequiresequires improement improement improement InadequateInadequateInadequate InadequateInadequateInadequate InadequateInadequateInadequate 202201061166 202201051155 202201061166 202201051155 202201061166 202201051155 1 11 1 11 222 555 222 1 11 282828 242424 373737 333333 363636 292929

181818

131313

888 888

555 555

1 11 1 11 44 Changes since last year STATE OF POLICING

Across all three pillars of For the efficiency pillar: One force (Bedfordshire) the PEEL programme, the the grades for 30 forces received different grades PART OUR INSPECTIONS 2: majority of forces have been remained the same, 6 in 2016 in all of the three graded the same in 2016 as improved and 7 declined. pillars, but this is unusual. they were in 2015. Of the 20 forces that The legitimacy pillar had the The effectiveness pillar received different grades least movement in grades had the largest movement this year, the vast majority in grades: 10 forces were compared with last year: (19) only received a different graded higher than the the grades for 36 forces grade in one pillar; 23 previous year; 7 forces remained the same, 4 forces received the same declined in grade. improved and 3 declined. grade in all three pillars. Changes since last year in the number of forces at each grade, for each pillar of the PEEL programme 10 6 4

36 30

Improed Improed Improed No change No change No change Declined Declined Declined

7 7

Effectiveness Efficiency Legitimacy 45 STATE OF POLICING Most forces, slightly more than last year, are PEEL: effectiveness providing a good In our PEEL inspections, our assessment of the service to the public. effectiveness of forces centres on how well they carry out their responsibilities, including cutting crime, tackling anti-social behaviour, and PART OUR INSPECTIONS 2: conducting investigations and managing offenders. We were particularly interested in how forces identified people who are most vulnerable and how services were tailored to meet their needs.

As a result of our PEEL serious and organised effectiveness inspections, crime. In particular, there one force (Durham) was has been considerable graded outstanding, 28 improvement in the forces were graded as protection of vulnerable good, 13 were graded as victims and keeping requiring improvement and them safe. This is to be one force (Bedfordshire) welcomed. However, HMIC was graded inadequate. is concerned that, despite Most forces, slightly more this broadly positive overall than last year, are providing picture, there are some a good service to the worrying practices in some public. Police leaders, police forces and risks to officers and staff should the public in the service that be commended for this. is being provided. We judged two forces to Some forces have struggled be outstanding at crime to respond to reductions prevention and four as in the level of resources outstanding at tackling available to them, changes

1 28 13 1 Effectiveness Effectiveness How effective is the force at Overall judgments preventing crime, tackling anti-social behaviour and keeping people safe?

● Outstanding ● Good 1 28 13 1 2 30 10 1 ● Requires improvement ● Inadequate

46 2 30 10 1 0 26 1 0

0 26 1 0 0 22 16 5

0 22 16 5 4 29 9 1

4 29 9 1 The result is that some STATE OF POLICING forces are not doing many of the fundamental things that are required to reduce crime and keep people safe. As shown in figure 1, in England and Wales, 47 PART OUR INSPECTIONS 2: percent of investigations into all recorded offences are closed without identifying a suspect. However, this ranges from 24 percent in © Sussex Police some forces to 60 percent in1 others.28 13 For 1 violent in the demand they face are not being pursued or offences, the proportion and the need to provide a apprehended and, in some of cases that forces close better service for vulnerable forces, a large number of without identifying a suspect people. Some of the crimes are being effectively ranges between 3 percent changes that forces have written off rather than and 53 percent. made are poorly-conceived pursued to an appropriate short-term responses to conclusion1 28 13 1 for the victim 2© Northamptonshire30 10 1 Police current pressures, and do and the community. This little to address the need could be by downgrading to make adequate plans the severity of calls for for acquiring or enhancing assistance from the public, the capabilities that will be by setting a quota for essential for the future. the2 30 number 10 1 of cases to 0 26 1 0 1In 28a small 13 number1 of forces, be referred for specialist these changes are putting assistance, or by not vulnerable people at serious analysing and recording risk of harm. Fewer arrests all of the known organised are taking place, suspects crime groups in a local area.

2 30 10 1 0 26 1 0 0 22 16 5 How effective is the force How effective is the force How effective is the force at investigating crime and at protecting those who are at tackling serious and reducing re-offending? vulnerable from harm, and organised crime? supporting victims?

0 26 1 0 0 22 16 5 4 29 9 1

0 22 16 5 4 29 9 1 47

4 29 9 1 Figure 1: STATE OF POLICING Police forces are not Proportion of investigations in the 12 months to 30 June 2016 keeping pace with the that were completed without identifying a suspect way technology is 90% 80% transforming people’s 70% lives and changing their 60% 50%

PART OUR INSPECTIONS 2: experience of crime. 40% 30% 20% 10% 0% Robbery All offences Drug offences Theft offences Sexual offences Public order offences Crimes against society Possession of weapons Criminal damage and arson Violence against the person Proportion of offences that are assigned to outcome 18: investigation complete, no suspect identified. Range between forces in England and Wales. Mid line shows England and Wales rate.

Source: Home Office (2016) Crime Outcomes, 12 months to 30 June 2016 Note: The proportion of outcomes is displayed as a range covering all forces in England and Wales. The centre line is the England and Wales rate. Dorset has been excluded from the chart as problems with the validity of the data were discovered during the inspection.

HMIC continues to be an important role in keeping concerned by the erosion vulnerable people safe. of neighbourhood policing. Too many forces are failing Officers who are visibly to match the capacity and and frequently present in a capability of their workforce local community are more to the demands they face. readily able to gain the Police forces need to trust and confidence of the people in that community. develop their structures, This, together with a capabilities and operating detailed understanding models in order to allocate of the risks and threats work appropriately. In each community faces, is particular, there is a national critical in preventing crime crisis in the recruitment and anti-social behaviour. of detectives, which is Effective local policing leading to some complex teams are also valuable investigations being carried assets in the fight against out by officers who lack the organised crime and play necessary training, skills

48 STATE OF POLICING PART OUR INSPECTIONS 2:

© West Midlands Police and experience. There are the 12 months to June behaviour.29 However, also still problems with 2016, at least 31 percent 42 percent do not feel the way investigations are of blackmail offences, confident that their local supervised. 45 percent of obscene police could deal with online 30 Police forces are not publication offences and crime. keeping pace with the way 11 percent of both stalking HMIC has concerns technology is transforming and harassment and child about the extent to which people’s lives and changing sexual offences were the public is being put their experience of crime. committed online in full or at risk because of the Last year, one in ten adults in part.27, 28 This is an issue limited capacity within was a victim of fraud and that worries the public: many forces to manage computer misuse at least 82 percent think online dangerous offenders. The once.26 New statistics crime is a big problem most dangerous offenders from the Office for National and 68 percent think the are managed through Statistics suggest that in same for online anti-social a multi-agency process

49 31

STATE OF POLICING known as MAPPA, which presented by some 2,700 Forces cannot includes an assessment successfully fight registered sex offenders has of the risk posed by each yet to be assessed. This serious and organised offender. Some forces were means that forces are failing struggling to complete crime in isolation. to understand and manage these risk assessments the risk to the public. as they require substantial PART OUR INSPECTIONS 2: input from a range of The variation in the extent agencies. In some forces, to which forces use there are also significant their powers and pursue delays in assessing the risks criminal justice outcomes posed by registered sex is currently unexplained offenders and carrying out and unacceptable. For supervisory visits to those offenders, visits that are instance, the rate of arrest required in order to keep for domestic abuse crimes communities safe. Across ranges from 25 percent to England and Wales, the risk 83 percent (see figure 2).

Figure 2: Domestic abuse arrest rate in the 12 months to 30 June 2016

0 ent Essex urre Gent Dorset uffol Norfol ussex Wiltshire Cumbria Cheshire Cleeland ampshire Lancashire erseside Lincolnshire umberside North Wales West ercia West Northumbria taffordshire outh Wales edfordshire ertfordshire Waricshire Dfed-Pos Leicestershire Thames Valle Cit of London West idlands West West orshire West North orshire outh orshire Cambridgeshire Nottinghamshire Northamptonshire etropolitan Police etropolitan Aon and omerset Aon Greater anchester Greater Deon and Cornall

Domestic abuse arrest rate England and Wales domestic abuse arrest rate

Source: HMIC effectiveness data collection Note: Three forces (Derbyshire, Durham and Gloucestershire) were unable to provide domestic abuse arrest data.

50 Most forces are good the intent and capability of Similarly, we are concerned STATE OF POLICING at tackling serious and groups involved in newer at the inconsistent organised crime. However, threats such as cyber- approach to assessing risk a shift in approach is crime, or criminal networks in relation to the criminal needed if forces are to whose membership, activity use of firearms. maintain and improve this and locations change Without a consistent level of effectiveness as quickly. HMIC believes that process for assessing risk, organised crime becomes the mapping methodology it is possible that forces are PART OUR INSPECTIONS 2: more complex. needs to be improved unable to plan properly and When a force identifies an and the function should therefore cannot be certain organised crime group, be transferred to regional that they have sufficient it assesses the group’s organised crime units. resources available to meet criminal intent and capability Forces cannot successfully the threat they face. The by carrying out a nationally fight serious and organised ability to assess demand standardised procedure crime in isolation. They and plan accordingly is a known as mapping. This need to work more closely recurring theme throughout procedure enables forces with regional organised HMIC’s reports, but the to understand the threat crime units and other consequences of failing to posed by organised crime agencies to identify the full do this where firearms are groups, and informs extent of organised criminal concerned would be severe decisions about which networks, rather than enough to merit special groups to tackle first, and simply targeting mid-level mention. which tactics to use. criminals. Intelligence needs As with organised While mapping provides to be shared, priorities crime mapping, HMIC a helpful structure for need to be established and believes that the national assessing many aspects regional-level specialist methodology for assessing of organised crime, it is capabilities need to be used firearms risk needs to be poorly suited to assessing where relevant. further developed.

51 STATE OF POLICING Many forces said that they were worried PEEL: efficiency about significant In our PEEL inspections, our assessment of the increases in future efficiency of forces centres on how well they demand for policing. provide value for money to the communities they serve. In particular, we examine how well forces PART OUR INSPECTIONS 2: understand the demand for their service, both now and in planning for the future, and how well they match their resources to that demand.

As a result of our 2016 for service, to how well PEEL efficiency inspections, they uncovered demand two forces (Durham and that might otherwise go West Midlands) have been unreported or unnoticed. graded as outstanding, We have also inspected 33 forces as good and the extent to which police eight forces as requiring forces understand how improvement. No force their demand and the has been graded as expectations of them are inadequate. As with last likely to change in the year, the majority of forces future. have been graded as good. As with last year, most Three fewer forces have forces have a good been graded as outstanding understanding of the compared with last year. current demand for their We inspected how well services, and are focusing forces understand the full on this demand to help range of their demand, them understand their work. from how well they For example, most forces reacted to 999 calls, crime have a good awareness of reports and other calls the number and nature of

2 33 8 0 Efficiency Efficiency How well does the force Overall judgments understand the current, and likely future, demand?

● Outstanding ● Good 2 33 8 0 2 9 0 ● Requires improvement ● Inadequate

52 2 9 0 1 32 9 1

1 32 9 1 2 29 10 2

2 29 10 2 Figure 3: Emergency 999 calls recorded by each force in the 12 months to 31 March 2016, per 1,000 STATE OF POLICING population

250

200 PART OUR INSPECTIONS 2:

150

100

0 ent Essex urre Gent Dorset uffol Norfol ussex Durham Wiltshire Cumbria Cheshire Cleeland Derbshire ampshire Lancashire erseside Lincolnshire umberside North Wales West ercia West Northumbria taffordshire outh Wales edfordshire ertfordshire Waricshire Dfed-Pos Leicestershire Thames Valle West idlands West West orshire West North orshire Gloucestershire outh orshire Cambridgeshire Nottinghamshire 2 33 8 0 Northamptonshire etropolitan Police etropolitan Aon and omerset Aon Greater anchester Greater Deon and Cornall ■ 999 calls per 1000 population ––– England and Wales

Source: Home Office annual data requirement Note: City of London Police does not directly receive 999 calls because these are received by the Metropolitan Police Service on behalf of City of London Police.

2their 33 999 8 0 calls, the number seek 2 out 9 0demand that Many forces said that of which varies hugely may otherwise be hidden. they were worried about across forces in England Most forces have plans in significant increases in and Wales (see figure 3). place to meet some of this future demand for policing, It is, however, important demand, but only the best partly as a result of greater that forces proactively have a detailed strategy. numbers of crimes such 2 9 0 as child sexual exploitation 1 32 9 1 and partly as a result of How well does the force How well is the force cuts to other public sector use its resources to manage planning for demand in the organisations. However, current demand? future? forces are making very broad assessments of likely trends for the future on the 1 32 9 1 2 29 10 2 basis of limited evidence; only a few could provide detailed evidence that they were gathering relevant

2 29 10 2 53 STATE OF POLICING The quality and information from other recruitment to fill these sources and assessing the roles. Consequently, forces ambition of the plans potential implications of find it harder to manage the that forces have for these trends. This detailed demands placed on them. work is essential if forces their futures are Most forces have change are to prepare efficiently for highly variable. programmes in place, the future.

PART OUR INSPECTIONS 2: but only a few higher- Most forces have performing forces can reflected their developing establish that their understanding of demand programmes have made in the way they assign them more efficient. Many and allocate resources. forces focus on successfully The best-performing forces have sophisticated software models that analyse demand and can match available resources to current and predicted demand for their services. In contrast, the poorest- performing forces do not have effective systems to analyse demand and this regularly leaves them without enough officers or staff available to respond quickly to calls from the public. Most forces’ ability to match resources to demand is limited by an incomplete understanding of the skills (and skills gaps) of their workforces. Although many forces have some form of database for recording workforce skills, it is often limited in scope and few forces can demonstrate that they make consistent use of the available information when allocating roles. This limits the ability of forces to identify gaps in staffing and to use external

54 reducing overall costs rather highly variable. The highest- for each of these areas STATE OF POLICING than making the most of the performing forces have and so do not scrutinise full benefits of change. Few impressively coherent sufficiently how all of the forces have a sophisticated and ambitious plans individual plans are likely to understanding of any for developing the size, affect each other. skills and background unintended consequences A few forces have good (positive or negative) for of their workforce, plans

plans that focus on specific PART OUR INSPECTIONS 2: their workforces as a result for improving their ICT systems, and plans for areas, such as greater of change programmes. managing continuing integration with other The quality and ambition financial pressures. organisations (often the of the plans that forces However, many forces are fire and rescue service) or have for their futures are only able to plan separately improved ICT. Few forces

55 STATE OF POLICING have workforce plans that to save money played are particularly innovative. only a small part in forces’ Many forces are recruiting financial planning. This year, new officers, but with a we found that a few forces limited understanding of the have very impressive and skills those officers will need innovative plans to work to have. Some forces are with other forces, other

PART OUR INSPECTIONS 2: seeking transferees from emergency services and other forces to increase the other agencies in their local number of their detectives areas. However, a similar who have experience of number of forces have working with vulnerable little ambition to increase people. We had hoped to their joint working beyond see much more innovative a few disparate projects, use of police staff, PCSOs, often focused on a specific special constables and function such as firearms volunteers to bring new and policing or forensics. under-represented skills into We commented last year the police workforce. that the best forces had Most forces still plan good working relationships to make savings this with health authorities to financial year, largely by cope with demand from continuing previous change people with mental health programmes, but we found problems. Nearly all forces evidence to indicate that now have some services some forces have reduced in place; the best have the pace and ambition of good access to mental their plans since last year. health expertise within their Most forces have made control rooms and on the sensible mid-term financial front line, and therefore are provisions. However, HMIC able to manage demand continues to believe that more efficiently. While rapid changes in demand this represents positive and public expectations of progress, it will take a policing mean that more sustained effort on the work is needed to identify, part of both police and at an earlier stage, those other local public services forces that could struggle to to make sure demand respond quickly enough to related to mental health is these changes. managed appropriately. Last year, we reported that Last year, as in previous forces were not making years, we noted that forces’ the most of opportunities ICT was generally weak and to work with each other, ageing. Some forces have and combining resources impressive projects under

56 way to increase their digital have large numbers of every police force should STATE OF POLICING capabilities, but very few individual, bespoke legacy have the same ICT system. forces have a coherent plan systems that only a small There is considerable scope to transform the way they number of individuals know for variation, provided that provide services using all of how to maintain. To fix systems can connect to their ICT systems. In most this, forces need to give one another and exchange cases, forces’ ICT was serious thought to the ICT information; interoperability designed to support their architecture that they are is essential. PART OUR INSPECTIONS 2: existing ways of working, designing. This is more 32 rather than influencing the important – and more The Police ICT Company design of new ways of difficult – than the effective has achieved some positive working. Very few forces procurement of individual results with individual focus on developing the devices. It is still too suppliers, but currently digital skills of their officers common for forces to invest lacks the mandate and and staff, or ensuring that very significant amounts resources to bring about the exploitation of new of money in devices and the level of change that is technology is at the heart systems that their ICT desperately needed in this of their day-to-day work. architecture cannot handle. area. It is essential that Some forces have struggled Bespoke solutions tend to all police leaders commit to implement new ICT be more expensive and the to working collaboratively systems. police service as a whole with the Police ICT Last year, we also drew would benefit from having Company to bring about attention to the problem access to ‘off-the-shelf’ radical improvements to of the deleterious effects products that would simplify the use, procurement, of older ICT systems. procurement, reduce costs interoperability and role This is still a significant and increase consistency. of information technology problem. Some forces That does not mean that systems.

57 STATE OF POLICING PEEL: legitimacy In our PEEL inspections, our assessment of the legitimacy of forces centres on whether they operate fairly, ethically and within the law. In particular, we examine how forces treat people. PART OUR INSPECTIONS 2: These things are essential to the maintenance of public support and co-operation; they are the cornerstone of the British model of policing by consent.

This year, we asked specific forces (Derbyshire and questions about how well Kent) as outstanding, 36 forces are dealing with the as good and five as requires problem of police officers or improvement. None was staff abusing their positions graded as inadequate. of authority for sexual gain. This is largely consistent This is a serious form of with last year’s results. corruption that betrays the Overall, the police forces trust of the public and preys of England and Wales are upon some of the most good at treating the people vulnerable people in society, they serve with fairness often at a time when they and respect. As figure 4 have turned to the police shows, victims’ satisfaction for help. with their treatment by the The results of this year’s police remains high; more PEEL legitimacy inspection than 93 percent of victims were largely positive, are satisfied with how though there were some they were treated by the areas where forces can police in the 12 months to improve. We graded two 31 March 2016. 2 36 5 0 Legitimacy Legitimacy To what extent does the Overall judgments force treat all of the people it serves with fairness and respect?

● Outstanding ● Good 2 36 5 0 2 38 3 0 ● Requires improvement ● Inadequate

58 2 38 3 0 1 26 16 0

1 26 16 0 3 28 12 0

3 28 12 0 Figure 4: Percentage of victims in England in Wales satisfied with overall treatment, for the 12 months to STATE OF POLICING 31 March 2016 100 99 98 PART OUR INSPECTIONS 2: 9 96

95 94 93 Percentage of ictims Percentage 92 91 90 2011 2012 2013 2014 2015 2016

Source: Home Office annual data requirement 2 36 5 0 Victim satisfaction has been from the public about a particularly from those stable in recent years. range of events and types people who are less likely to Officers and staff of behaviour that affect complain or who have less perceptions of fair and understand the importance trust and confidence in the respectful treatment. Some of treating people with police. forces rely too heavily fairness and respect, and 2 36 5 0 on2 38 public 3 0 complaints In order to identify and understanding of the Code understand the issues that 33 and channels such as of Ethics has improved. community meetings or affect public perceptions Forces use various social media. These forces of fair and respectful techniques to seek could do more to obtain treatment, most forces feedback and challenge feedback in different ways, analyse public surveys, 2 38 3 0 1 26 16 0 complaints and their use of How well does the force To what extent does the stop and search powers. ensure that its workforce force treat its workforce with However, many forces need behaves ethically and fairness and respect? to be more systematic lawfully? in the way they collect and analyse feedback, 1 26 16 0 and wider management 3 28 12 0 information and learning, to identify trends and prioritise areas for improvement.

3 28 12 0 59 STATE OF POLICING Police officers and Many forces were able officers and staff are to provide examples of complying with integrity staff abusing their improvements they had policies. Forces are also authority for sexual made to their services in good at assessing and gain is a serious form response to feedback from developing intelligence of corruption and it individuals. However, forces about corruption once they sometimes struggled to receive it. However, many PART OUR INSPECTIONS 2: needs to be show clear and consistent completely eradicated. forces need to improve links between identifying a their ability to seek out problem, making effective intelligence and intervene improvements, and early, rather than waiting for demonstrating to the public problems to be reported. that they had done so. This need for improvement Overall, most police forces is particularly serious in in England and Wales are relation to forces’ ability to good at ensuring their tackle the abuse of authority workforces act ethically and for sexual gain. lawfully, but improvement is still required in more than a Police officers and staff third of forces. abusing their authority for We are concerned that sexual gain is a serious a significant number of form of corruption and it forces are failing to comply needs to be completely with national vetting eradicated. It exploits some policy,34 in particular with of the most vulnerable the requirements to re-vet people who come into individuals after ten years of contact with the police service, and to undertake and it violates public trust. vetting reviews before Despite this, some forces promotion or posting to are still failing to recognise high-risk units. These forces it as a form of serious are vulnerable to corruption corruption, so cases are among their officers and not always being referred staff. to the Independent Police Forces are generally good Complaints Commission at monitoring whether (IPCC).

60 The abuse of authority for sexual gain very where it is needed. However, STATE OF POLICING for sexual gain is not an seriously and there can be many forces could do more isolated problem that no excuse for forces failing to demonstrate this action to only affects a few forces. to ensure that this happens. their workforces, and should Data provided by forces in More positively, nearly all seek more involvement from 35 England and Wales show forces now communicate officers and staff in making that, in the 24 months to the outcomes of gross improvements. 31 March 2016, all but misconduct and corruption We found that most forces PART OUR INSPECTIONS 2: one force had at least one cases to the public, as well recognise the importance reported allegation of abuse as to officers and staff. of workforce well-being, of authority for sexual gain. Some forces need to do including psychological Over a third (39 percent) more than just fulfil basic well-being and mental of the allegations involved requirements of openness, health, and take steps to 36 victims of domestic abuse. so that the consequences of improve it. However, the Since 2012, the IPCC, misconduct and corruption provision of occupational ACPO and HMIC have all are clear to everyone. health services is shrinking examined and reported on Overall, the police forces and there is an increasing the problem of abuse of of England and Wales dependence on supervisors 37 authority for sexual gain. are good at treating their to identify and support The fact that forces have workforces with fairness and the well-being needs of made such limited progress respect. We were pleased individuals. We remain towards eradicating this to find that most forces use concerned that supervisors problem suggests that a range of communication do not always have the we need a coherent and channels, such as workforce knowledge and confidence comprehensive national surveys (see figure 5), for to recognise and respond policing response. Police seeking feedback from their to mental health problems. officers and staff need to workforces and can provide We were disappointed to take the abuse of authority evidence of taking action find that most forces do not have fair and effective Figure 5: processes for managing Proportion of police forces in England and Wales that the individual performance conducted a workforce survey between 1 January 2015 and of officers and staff. In 1 April 2016 many cases, reliance on the diligence of individual supervisors has resulted 16 Conducted a workforce in processes – or lack survey between 1 January of processes – that may 2015 and 1 April 2016 be unfair and ineffective. Did not conduct a This is an area that needs workforce survey to improve significantly, between 1 January 2015 particularly given that it and 1 April 2016 27 has wider implications for the integrity, efficiency and leadership capability within policing. Source: HMIC legitimacy data collection

61 STATE OF POLICING Police leaders need to have the flexibility and PEEL: leadership skills to meet not just In our PEEL inspections, we examine the degree current demands, but to which leadership is understood within policing, to respond to future how forces work to develop leadership capability and how well leadership is displayed by each

PART OUR INSPECTIONS 2: challenges. force.

The inspection considered Policing. We have inspected the following three leadership at all ranks and questions: grades, not just at the most • How well does the force senior levels in each force. understand leadership? The leadership element • How well does the force of PEEL is ungraded, as develop leadership? leadership is a theme which cuts across the • How well does the force other three pillars of the display leadership? PEEL programme. HMIC Our approach is aligned acknowledges that there is with the principles set out no single definition of good in the Guiding Principles for leadership in policing; this Organisational Leadership,38 inspection does not aim which was published to provide or promote a recently by the College of single model.

62 Police leaders carry Understanding Developing STATE OF POLICING substantial levels of leadership leadership responsibility, and effective In this year’s inspection, HMIC expects forces leadership is a critical part we found that most forces to use an open and of ensuring that forces accessible system to maintain the trust of the have set out what they expect of their leaders, identify and select talented public that they serve. individuals and prepare although the extent to PART OUR INSPECTIONS 2: Police leaders need to them for promotion through have the flexibility and skills which these expectations are understood by high-potential or talent not only to meet current schemes. Very few forces the workforce varies demands, but also to were able to demonstrate considerably. Generally, they deal with future problems. this, or provide a robust are linked to the objectives In an increasingly complex assessment of the potential that each chief officer policing environment that barriers to any member of includes the significant team has for the force. The the workforce seeking to financial cuts of recent best-performing forces turn access these schemes, years, rapid advances in these expectations into a despite the fact that some technology and shifting strong common purpose for forces recognised this as a demographics, it has never all members of the force, problem. The development been more important for the and explain clearly how this of the workforce more police service to identify and should affect actions, types widely (particularly in the develop capable leaders. of behaviour and values. case of police staff) also Most of the chief officer remains inconsistent. The best forces are teams that have not yet able to demonstrate a High-performing forces set clear expectations are sophisticated understanding have well-publicised working to develop them in of the effectiveness of development schemes, close consultation with their leadership in different areas with clear application workforces. and use this understanding processes. High-performing forces also encourage to support and improve Effective communication personal responsibility for leadership skills throughout of leadership expectations professional development. the force. These forces also to all ranks and grades is In most forces, the show the outward signs of important, so that each system for identifying member of the workforce good leadership: openness and developing leaders knows how these to new ideas, an ability is still being developed. to react quickly to new expectations affect their role Consequently, many trends and a willingness to and day-to-day actions. forces cannot be confident challenge constructively the This is an area where we that they are identifying way things are done. There have observed progress and developing talented is a growing consensus from last year, though more individuals whose among senior leaders should be done to include leadership styles and within policing that the police staff, constables approaches are different development of leadership and sergeants, not just the from those of their peers is an area that requires middle-ranking officers who or managers. Last year, we more attention. lead them. recommended that forces

63 STATE OF POLICING invested in this area; we are As well as developing concerned that not enough talented officers and staff forces have done so. within the workforce, better- Self-assessment and performing forces know mentoring are fairly well how to attract talented established in most forces people from outside the as a way of developing force, and will understand PART OUR INSPECTIONS 2: future leaders. In many how to make best use of forces, senior officers act as the people they attract. mentors, but only a small Although many forces are number of forces were able making use of programmes to demonstrate a coherent such as Police Now,39 Direct process for identifying Entry40 and Fast Track41 people who would benefit to improve the diversity from being mentored. It is of their leadership teams, therefore likely that many only a minority of forces senior officers are only are evaluating the way that mentoring people who have different leadership styles directly approached them can improve effectiveness. or have been referred to Displaying leadership them by colleagues. Understanding and developing good leadership is important. All forces can demonstrate some form of innovation and challenge, but high-performing forces seek out new ways of working from a range of sectors, and are much more open to internal and external questions. One area in which we seek evidence of positive leadership is the extent to which a force identifies and implements better ways of working, especially through the use of technology. The strongest forces are fostering innovation, encouraging challenges from officers and staff and allowing them to suggest © Sussex Police and test new ways of

64 working. Strong forces All forces are aware of the we found that too many STATE OF POLICING also identify practices that need to increase the skills, forces focused on work well across the police background and experience ensuring vacancies are service and from outside of their workforces. filled, rather than making policing. Higher-performing forces a considered judgment We found many examples understand that leadership about the person with the of forces working closely teams that vary in their best skills and leadership PART OUR INSPECTIONS 2: with academia, industry style, approach and style for a particular role. and the voluntary sector experience can be more We recognise that in many to develop and implement effective at questioning cases the options available better ways of working. existing processes and to forces will be limited and The forces that do this coming up with new ideas. we do not want forces to most effectively are not only However, many forces put bureaucratic processes implementing change within were not able to in place. However, even their own force areas, but demonstrate an ability to a relatively light-touch are working closely with understand or influence the approach supported by other forces to encourage composition of individual improved performance change at a regional or leadership teams to this assessment processes even national level; Durham level of detail. In previous would allow forces to Constabulary is a notable efficiency inspection make better-informed example of a force that is reports, and the State of decisions about individual doing this well. Policing 2015 report,42 appointments.

65 STATE OF POLICING Forces are still failing to record many reports Our specialist of crimes and those failings are depriving inspections victims of the services

PART OUR INSPECTIONS 2: to which they are Crime data integrity “Even more importantly, entitled. In 2014, HMIC inspected failures in accurate crime- all 43 forces in England recording can also increase and Wales to establish the the risks to victims and the extent to which police- community of the denial recorded crime information of justice, and may imperil could be trusted. In our public safety. The police report43 of this inspection therefore need to take this 44 we said: subject very seriously.” “Reliable crime-recording These statements are as is essential if police valid today as they were are to be able to make in 2014. sound decisions on In 2014, our inspection the deployment of their found that, at a national resources, and to operate level, the police were failing with the highest practicable to record 19 percent of levels of efficiency. They crimes reported to them. need to know what are We found the problem was the patterns of criminal greatest for violent crimes behaviour in their force and sexual offences, where areas, and the intensity and the under-recording rates severity of that offending. were 33 percent and 26 “Police and crime percent respectively. In commissioners need this addition, we found failings information too because in the recording of rape, they hold their chief although it is worth noting constables to account, that some forces had and they in turn are held exemplary records in this to account by the public. respect. The public’s right to know We recognise that police- is important; none should recorded crime does be misled, whether through not represent the whole negligence or otherwise. picture of crime in this Trust in what the police tell country. Other government people about crime is part agencies and departments, of the essential trust which financial institutions and the public must have in organisations also have the police. crimes reported to them

66 and work with victims of to be particularly poorly officers and staff to achieve STATE OF POLICING crime. Not all of this is recorded in 2014: those of crime-recording accuracy, reported to the police. violence against the person deficiencies remain. For In addition, the Crime and sexual offences. In the seven forces inspected Survey of England and addition, the programme so far, we have produced Wales45 reports trends includes: dip-sampling weighted estimates of in relation to crime reports directly received overall crime-recording experienced by victims, by departments that deal accuracy. The combined PART OUR INSPECTIONS 2: again not necessarily all with vulnerable victims; recording accuracy46 for all reported to the police. a test of the accuracy of reported crime was 87.8 However, none of this recording of reports of rape; percent (with a confidence absolves the police of the how well modern slavery interval47 of +/– 0.7 responsibility to record crimes are recorded; and percent), for violent offences accurately the crime which an examination of decisions it was 82.5 percent (with a is reported to them. made to amend crime confidence interval of +/– Given the importance reports to show that no 1.4 percent) and for sexual of the subject, in April crime had been committed. offences 91.5 percent 2016 we started a new To date, we have completed (with a confidence interval programme to inspect all and published the findings of +/–1.0 percent). In 43 forces in England and of crime data integrity terms of their crime data- Wales on a rolling basis inspections of seven police recording, the seven forces and over a number of forces. inspected so far are not years. We are auditing and Inspections in these seven necessarily representative reporting on their overall forces have shown that, of all police forces. The recording accuracy, as well despite the commitment reasons for this include as accuracy for the two and dedication of senior the fact that each audit categories of crime found police leaders and many covers a different recording

67 STATE OF POLICING period and the forces justice and, in some cases, audited are not selected the safety to which it is completely at random, in entitled. order to avoid unnecessary This spread illustrates that repetition. However, the some – but not all – forces results for these seven achieve good levels of forces do provide evidence recording accuracy. There PART OUR INSPECTIONS 2: of the need for further is no single factor which improvements. results in forces consistently As figure 6 shows, there making good crime- remains a wide variation recording decisions, but in the quality of decision- the factors that have the making associated with most effect are: leadership; crime-recording. Some intrusive and proportionate improvement has been supervision and quality made, but more needs assurance of crime- to be done. Forces are recording decisions; and still failing to record many skilled people – particularly reports of crimes and a force crime registrar who those failings are depriving is scrupulously objective victims of the services to and has strong influence which they are entitled, and over local crime-recording denying the community the decisions.

Figure 6: Overall crime-recording accuracy by force48 100%

95%

90%

85%

80%

75% Sussex Greater Cornwall Somerset Avon and Devon and Merseyside Manchester Northumbria Staffordshire Overall crime recording accuracy – range Seven force average – range

Note: Forces are displayed in the order the inspections were undertaken. Note: The overall crime-recording accuracy is displayed as a range for each force. The middle line is the central estimate within this range.

68 to ensure that crimes are STATE OF POLICING recorded properly and victims receive the level of service they deserve. Worryingly, not all forces accurately record all reported allegations of rape, and in some cases there PART OUR INSPECTIONS 2: is no investigation into the reports. Reporting a rape is very often an extremely difficult step for a victim, and when such allegations are made it is imperative that crime records are created and thorough investigations are carried out in order to bring offenders to justice. All forces need to take urgent action to ensure that this is the case. Encouragingly, since our © Devon and Cornwall Police 2014 report, we have found that the vast majority of Where a combination of We have found problems officers and staff have made solutions is put in place, with the recording of appreciable progress in standards improve. crime in forces that use placing the victim at the Both Sussex Police and appointment systems. forefront of their crime- Northumbria Police have Where there is a delay recording decisions. small teams of staff to between the original report Nevertheless, on some check that reports of and an officer speaking occasions this is still not crime are being identified to the victim, it is not happening and victims of and recorded. This acts uncommon for the report to crime are not always being as a safety measure to go unrecorded. Moreover, treated in the way they ensure that reported crime delaying attendance by deserve when they report is recorded, but can be an officer can often cause crimes to the police. Also, a costly solution to the the victim to become we have found a belief alternative of ensuring that disillusioned with the among some senior officers correct recording decisions process and distance that unrecorded crimes are taken at the outset. himself or herself from are merely ‘administrative Where forces record crime it, meaning the original failures’ and that victims at the time it is reported to report is filed without any receive the usual standards them, rather than recording further contact with the of care and safeguarding it later, standards of crime- victim. Forces that use even when a crime has not recording are better. appointment systems need been formally recorded.

69 STATE OF POLICING Children are still being Some victims of unrecorded inspection report have been reports of crime receive implemented. detained unnecessarily a good service from the National child protection at police stations police, but many receive inspections when they have been no service at all. The formal Between April 2014 and recording of every crime is a charged with a December 2016, 16 very important step towards

PART OUR INSPECTIONS 2: criminal offence forces were inspected as protecting victims and part of the National Child and denied bail. ensuring that they receive Protection Inspection the service to which they programme. A further ten are entitled. forces were revisited to In 2014, there was assess what progress had widespread public concern been made to implement that performance pressures the recommendations were affecting the quality of we made in previous police-recorded crime data, inspections. including suggestions that Senior leaders and staff performance pressure was in these forces have a affecting crime-recording clear and unambiguous decisions. In our 2014 commitment to improving report, we found that “there the protection of vulnerable remains an undercurrent children. In the forces we of pressure not to record revisited, it was evident that a crime across some at least some progress had 49 forces.” In our latest round been made to improve the of inspections, we noted outcomes for children at a welcome improvement: risk of harm. officers and staff are clear There have been some that they no longer feel improvements in the under any pressure to help arrangements for meet performance targets children suspected of by minimising the number being mentally ill, with a of crimes they record. significant decrease in the Looking ahead, we intend number of children being to inspect the remaining brought to a police station 36 forces. We will build a as a ‘place of safety’50 better understanding of rather than being taken the factors that affect the to a hospital. However, accuracy with which forces despite some progress, record crimes, identify what children are still being works well, and we will detained unnecessarily assess the extent to which at police stations when recommendations from they have been charged our 2014 crime-recording with a criminal offence

70 and denied bail. In such the necessary skills and police counter-terrorism STATE OF POLICING circumstances, the local experience to carry out an work and, for the first time, authority is responsible effective investigation. counter-terrorism also for providing appropriate We found that although formed part of our PEEL accommodation. the initial response to inspection programme. In all but the most locate missing children The thematic inspection exceptional circumstances, was often given a high examined the role of the it is not in a child’s best priority, opportunities for police counter-terrorism PART OUR INSPECTIONS 2: interests to remain in a early intervention and (CT) commander. We police station. Although long-term inter-agency visited 17 police forces forces are using alternatives planning to protect children and interviewed all the to detention (such as bail) were not sufficiently well chief officers who make up more effectively, children considered. Officers did the national cadre of CT are still being detained for not always recognise that commanders. It is these too long, largely because children who regularly go officers who will be called of a lack of alternative missing from home may be on by the Senior National accommodation. at risk of being groomed Co-ordinator51 to lead the for sexual abuse. This is Straightforward cases of response of the police indicative of a wider failure child abuse and neglect and other agencies in a to understand the full are almost always dealt terrorist attack. nature and extent of the with promptly and Over the last decade, the risks of sexual exploitation efficiently. However, more police in England and Wales that children face. complex investigations have developed a set of are often beset by delay. Counter-terrorism command arrangements Some complex cases are During 2016, we undertook and capabilities that allocated to staff who lack a thematic inspection of are world class. The CT

71 STATE OF POLICING PART OUR INSPECTIONS 2:

commanders play a central development (CPD) and role in these arrangements a programme of training and, when deployed, unify exercises all provide realistic command arrangements scenarios that enable CT for local police, national commanders to test and CT police and other update their skills and organisations to deal with experience. All current deadly terrorist attacks. CT commanders meet a We found there were sensible and pragmatic sufficient CT commanders set of role requirements, available to respond and but there are opportunities sustain the command and to improve the continuing control arrangements that development of CT would be necessary to deal commanders through the with a series of simultaneous CPD programme. terrorist attacks. Among officers we spoke The level of responsibility to, there was generally a ascribed to CT good level of understanding commanders is very high, about the role of the CT and it is important that commander, but we think they are able to carry out more can be done to their duties to a very high increase knowledge of the standard. Initial training, role within forces and within continuous professional the national CT network.52

72 Because of the sensitive publishing, introduction and 13 forces were not STATE OF POLICING nature of CT work and of lay observation complying with three or legal constraints on HMIC policies, introduction of more features. that are in place to protect a community complaints In our 2015 report, we national security, we did not trigger, reducing the use committed to revisiting the publish the full report. of ‘no-suspicion’ stop and 13 forces not complying 54 Best Use of Stop and search encounters, and with three or more of Search (BUSS) scheme monitoring the impact of the features. In February PART OUR INSPECTIONS 2: In 2014, the Home stop and search, particularly 2016, the Home Secretary Office and the College on young people and suspended these 13 forces of Policing launched the people from black and from the scheme.55 minority ethnic groups. Best Use of Stop and Findings of our revisit to Search (BUSS) scheme, In 2015, as part of our 13 forces which aims to “achieve PEEL legitimacy inspection, Between 24 June 2016 greater transparency, HMIC assessed the 43 and 5 August 2016, HMIC community involvement in forces’ compliance with reviewed the 13 force the use of stop and search each feature of the BUSS websites, the police.uk powers and to support scheme. We found that only website and documents a more intelligence-led 11 forces were complying submitted to us by the 13 approach, leading to better with all five features of the forces, to reassess each 53 outcomes.” scheme, 19 forces were force’s compliance with The features of the scheme not complying with one or each of the five features of are data-recording and two features of the scheme the scheme.

73 STATE OF POLICING We intend to revisit them to consider as part of their current review of the the subject of stop and scheme. search powers as part Findings of our revisit to of our PEEL inspection 7 19 forces programme in 2017. 6 In November 2016, following a commission PART OUR INSPECTIONS 2: from the Home Secretary, we revisited the 19 forces that we had assessed in 2015 as not complying with Compliant Not compliant one or two features of the BUSS scheme.56 We found that six of the 13 forces were compliant with all 4 features of the BUSS scheme: Cambridgeshire Constabulary, Cheshire Constabulary, Lancashire Constabulary, Northumbria Police, Warwickshire Police 15 and West Mercia Police. We were disappointed to find that six forces were Compliant Not compliant not compliant with one feature of the scheme and We found that 15 of the one force – Gloucestershire 19 forces were complying Constabulary – was not with the feature(s) with compliant with two features which they had not been of the scheme. However, previously complying. improvements made since However, the remaining our revisit mean that we four forces were still not are now satisfied that all complying with one feature 13 forces have achieved of the scheme. compliance with all features Derbyshire Constabulary, of the scheme. Northamptonshire Police We believe that the and South Yorkshire Police scheme would benefit were not complying with from clarification or the feature relating to amendment in some areas recording and publishing and we have, therefore, outcomes, including the made recommendations number of stop and search to the Home Office and encounters in which the the College of Policing for outcome was connected

74 to finding the item that was We intend to revisit the and a representative of STATE OF POLICING being searched for. Since subject of stop and the Chief Fire and Rescue our revisit, South Yorkshire search powers as part Adviser. Police has published the of our PEEL inspection We found that required information on programme in 2017. understanding of JESIP its website and we are Joint Emergency Services among commanders was satisfied that the force is Interoperability good, but it was poor now compliant. In times of emergency among frontline operational PART OUR INSPECTIONS 2: Greater Manchester Police the ‘blue light’ services staff. In all of the emergency was not complying with of ambulance, police and services, the majority the feature which requires fire and rescue must work of middle and senior that ‘no-suspicion’ stop together to protect the managers were aware that and search encounters are public and save lives. their service had adopted authorised by an officer In April 2016, HMIC the JESIP joint doctrine; above the rank of chief published a review into however, the same was only superintendent. Additionally, how effectively the Joint true among 48 percent of the form used to record Emergency Services operational police officers authorisations had not been Interoperability Principles – (see figure 7). amended to be compliant known as JESIP – had been We found a similar picture with the scheme. Since embedded into the work in relation to training: the our revisit, the force has of the three emergency majority of operational level amended its policy, updated services. The review staff, particularly in the its authorisation forms team was made up of police, had not received and communicated the representatives from HMIC, any JESIP training. Only 37 amendments to relevant the police service, the percent of operational staff officers. We are satisfied Association of Ambulance across the three emergency that the force is now Chief Executives, the Chief services had received some compliant. Fire Officers’ Association, form of JESIP training,

Figure 7: The proportion of respondents within the three services who were aware that their service had adopted JESIP joint doctrine, by level of seniority

ire mbulance Police

iddle and senior 35 16 422 management

perational 342 108 1501

0 20 40 60 80 100 0 20 40 60 80 100 0 20 40 60 80 100

Aare EIP adopted Not aare EIP adopted

Source: Joint Emergency Services Interoperability Principles (JESIP): HMIC survey 2015

75 Figure 8: STATE OF POLICING The proportion of survey respondents from the three blue light services who have received some form of JESIP training, by level of seniority

enior management 205 PART OUR INSPECTIONS 2: iddle management 6

perational 1383

0 10 20 30 40 50 60 0 80 90100 Trained Not trained

Source: Joint Emergency Services Interoperability Principles (JESIP): HMIC survey 2015

compared with 85 percent services to work together. of middle managers and 88 One of its successes percent of senior managers has been the ministerial (see figure 8). oversight of the programme. JESIP’s development has With a centrally-funded provided a structure and team due to complete its framework for the three work in the next two years,

76 this strong oversight needs recommendations (which Overall, we found that STATE OF POLICING to continue. Overall, there concerned the lack of is a nationally consistent detail in strategic action the NCA has been commitment to joint plans and the lack of a improving gradually working but this needs to process for monitoring since our 2014 be fully incorporated into progress against those inspection. the culture of each service. plans) had not progressed PART OUR INSPECTIONS 2: National Crime Agency sufficiently and therefore In 2016, we published two could not be discharged. inspection reports on the However, work to address National Crime Agency these recommendations (NCA). We inspected: was under way, and in December 2016 we • the progress57 made by judged that sufficient the NCA in response to progress had been made the recommendations also to discharge these and areas of improvement recommendations. we identified in our 2015 inspection;58 and In addition to making four recommendations, • the efficiency and our 2015 inspection effectiveness of the report listed 19 areas for UK International Crime improvement, aligned Bureau (UKICB) and its with four thematic areas 59 management of risk. (technology and intelligence Progress in relation analysis, information to the findings of our management processes, leading the national 2015 inspection response, and internal We found that two out of communication and the four recommendations engagement). We found made in our 2015 inspection that appreciable progress report had been addressed. had been made in all four These were that efforts thematic areas since our had been made to improve last inspection, and good sharing of communications progress had been made data capacity, and defining against many of the 19 roles and responsibilities areas that we identified as for strategic governance needing improvement. groups and co-ordinating Overall, we found that the committees. NCA has been improving At the time of our fieldwork, gradually since our 2014 the remaining two inspection.

STATE OF POLICING The UKICB report The Police Service of Our UKICB report Northern Ireland concluded that, in The Northern Ireland general, the efficiency and Minister of Justice effectiveness of the UKICB commissioned HMIC to is good and improving. carry out an efficiency and

PART OUR INSPECTIONS 2: We also concluded that effectiveness (vulnerability) the efficiency of some inspection of the Police aspects of the United Service of Northern Ireland Kingdom’s extradition (PSNI) in 2015/16, based arrangements requires upon the relevant aspects improvement. of PEEL methodology. Our report highlighted Efficiency some areas of general The demands on policing in Northern Ireland are more concern and made wide-ranging than those recommendations for experienced by most forces improvement in 13 specific in England and Wales. areas. Of these, the areas Nonetheless, we found that of greatest concern related the PSNI understood most to the UKICB’s limited of the demands it faced. The use of the Police National PSNI had more work to do Database and inefficiencies with other organisations to in extradition processes understand hidden demands which involve the NCA, from people in local police forces and other communities, in particular organisations. those who are vulnerable.

78 On the whole, the PSNI’s Effectiveness Arrest rates for STATE OF POLICING operating model matched (vulnerability) resources to demand. The The PSNI chief officer team domestic abuse PSNI assessed demand has made the protection incidents were much and aimed to deploy its of vulnerable people a lower for the PSNI resources accordingly, in clear priority. Police officers than they were in line with its organisational and staff understood and priority to keep people safe. shared this commitment. England and Wales. PART OUR INSPECTIONS 2: However, the workforce To translate this priority model in place at the time into practice, the PSNI of the inspection was has invested in the parts unsustainable and relied of its organisation which heavily on overtime to support vulnerable people, meet short-term demands creating a dedicated public associated with security, protection branch. However, and longer-term demands the PSNI’s response to resulting from high missing children was not sickness levels. consistently good, nor was The service recognised its response to domestic this in its 2013 review of abuse. capability and resilience. Arrest rates for domestic Over the next three years, abuse incidents were much the PSNI’s resilience will lower for the PSNI than they weaken; more than 20 were in England and Wales percent of police officers (see figure 9). The PSNI has will become eligible to retire identified tackling domestic and the PSNI is unclear abuse as a strategic priority, about the skills that will be and officers and staff lost, and those that will be throughout the organisation required from its workforce recognised its importance. in the future. However, the PSNI needed

Figure 9: Arrest rates for domestic abuse incidents in the 12 months to 31 March 2015 in England and Wales and Northern Ireland

England and Wales

PNI

0 10 20 30 40 50 60 0 omestic abuse arrest rate

79 STATE OF POLICING to improve in a number Royal Gibraltar Police of important respects, HMIC was invited by the including: clarifying who has Gibraltar Police Authority to responsibility for making inspect the Royal Gibraltar referrals to other agencies; Police. Our terms of improving partnership reference were to conduct: working in multi-agency risk

PART OUR INSPECTIONS 2: assessment conferences for a) a review of leadership high-risk domestic abuse and associated human victims; and establishing resources working clear responsibility for practices including the safeguarding duties in complaints procedure, relation to medium and provision for the well- standard-risk victims. being of staff and an Despite efforts that ethical culture; the PSNI has made to b) a review of crime understand child sexual prevention and exploitation, we found that investigation more work was required. performance, an audit Work was needed to train of crime-recording, and specialists and frontline an assessment of victim staff, and to develop care and support; and links with private sector companies including hotels, c) an assessment of fast-food outlets and taxi demand, of resource drivers; all have a part to capacity and capability, play in gathering intelligence and how resource and preventing child sexual is matched to meet exploitation. demand.

80 We found that the Royal growing rapidly and where it There were five areas STATE OF POLICING Gibraltar Police was can reasonably be expected generally well led. Senior that demand for policing will in which we found officers were visible and also grow, we found several scope for the Royal had good oversight of constraints on how the Gibraltar Police to policing activity. There was Royal Gibraltar Police can make improvements. a committed workforce, use its budget. The force

actively engaged with the needs guidance that sets PART OUR INSPECTIONS 2: public, with a strong sense out the funding formula, of pride, a clear direction including the associated and, as it was described to criteria, thresholds and us, a ‘one-team’ culture. conditions that need to be Also, we found that, met for the force to receive generally, the prevention the resources it needs. and investigation of crime Royal Navy Police and care for victims was This inspection focused on effective. However, there three areas: the strategic were five areas in which we leadership and direction found scope for the force of the Royal Navy Police to make improvements. (RNP); oversight to ensure These areas were: auditing that investigations are of crime records; recording kept free from improper practice for detected interference; and how well crime; supervision of the RNP uses the National investigations; identification Intelligence Model.60 of vulnerable and repeat We found that the role of the victims; and the extent of RNP was comprehensively partnership working. and consistently defined We found that the Royal in various documents. We Gibraltar Police was spoke to RNP personnel © HJ Mitchell/Wikimedia Commons committed to meeting all who understood their demands, which led to high role. The Provost Marshal levels of public confidence (Navy) had circulated and satisfaction but placed to RNP personnel major pressures on the comprehensive guidance workforce. on his expectations for the The force was not well quality of investigations. placed to understand the However, we found demands it faced due to limitations in the command the limitations created by arrangements because paper-based systems and the Provost Marshal (Navy) computer databases that did not have control of were not integrated. In most RNP personnel. We addition, in an environment found some evidence where the economy is that supported concerns

81 STATE OF POLICING raised by RNP personnel in introduction of a structured In October 2016 alone, relation to a lack of clarity process by which the 11.3 million PNC checks and understanding of their independence and overall were carried out. role across the wider Royal quality of its investigations Navy; the Royal Navy needs are reviewed by other to understand the full extent relevant professionals. of tasks RNP personnel RNP meetings were well PART OUR INSPECTIONS 2: undertake. structured and complied We found that the RNP with the National Intelligence had an in-house training Model Code of Practice.61 programme in which the Personnel had a good identification and care of understanding of the victims featured strongly, National Intelligence Model although we did not find and they had ready access any evidence of the RNP to policies and documents. seeking to obtain feedback The RNP’s analytical from victims on the quality products provided clear of service provided. The direction and guidance in range of training courses relation to force priorities, provided by the RNP was but the force strategic sufficient, although the assessment did not identify courses would benefit from future demands adequately. accreditation. The Strategic Tasking We considered that and Co-ordination Group succession planning was identified priorities that not always adequate and influenced planning and that extended tenure resourcing in the short term arrangements should apply but not the long term. to certain posts that require Use of the PNC by considerable investment non‑police organisations in training. The Police National The RNP has well- Computer (PNC) is an established management essential law enforcement structures and effective tool. It is used by all police reporting systems. RNP forces and various non- personnel and commanding police organisations, giving officers elsewhere in the them access to records Royal Navy understood their for six million people and responsibilities. The Provost 46 million vehicles. In Marshal (Navy) made good October 2016 alone, 11.3 use of various internal million PNC checks were and external governance carried out. arrangements to provide Following a 2011 review him with assurance, but the by the Government’s RNP would benefit from the independent adviser on

82 62 criminality information, we • Scottish Society for the By December 2016, STATE OF POLICING included in our inspection Prevention of Cruelty to programme the non-police Animals (SSPCA) eight forces had been organisations which also • Environment Agency inspected, focusing use the PNC. In May 2016, • Financial Conduct on child sexual we published reports on Authority exploitation and those • Thurrock Council. our inspections in ten such children living with PART OUR INSPECTIONS 2: organisations: These inspections domestic abuse. revealed that the supply • Royal Mail Group Ltd agreements63 were out of (pilot inspection only) date and in urgent need • Post Office Ltd of review. We advised the • National Air Traffic Home Office, which has Control Service taken remedial action. (NATS Holdings Ltd) Overall, we found that the • Gangmasters Licensing organisations we inspected Authority have good security in place to protect the PNC • Natural Resources data and that most – but Wales not all – have strong audit • Children and Family procedures to check that Court Advisory Support their staff are accessing the Service (Cafcass) PNC for legitimate purposes.

83 STATE OF POLICING In all our inspections, we observed Our joint inspections respectful and positive interactions Joint targeted area help and protection in local between custody inspections authority areas in England. In 2015, a programme of PART OUR INSPECTIONS 2: staff and detainees. By December 2016, eight joint targeted area child forces had been inspected, protection inspections was with a focus on child sexual launched by Ofsted, the exploitation and those Care Quality Commission children living with domestic (CQC), HMIC and Her abuse. Findings from the Majesty’s Inspectorate of inspections have shown Probation (HMI Probation). that effective joint work These short, targeted to support children at risk inspections are carried of sexual exploitation and out on a multi-agency domestic violence is possible basis. The inspections but more needs to be done test the effectiveness of to ensure that all children arrangements and services and young people receive for children in need of consistently good support from all agencies and in © Cambridgeshire Constabulary all areas. Poor practice by some professionals and agencies means that some children at risk of exploitation and abuse still do not get the response they need quickly enough. Youth Offending Services inspections We have continued our joint inspections of Youth Offending Services, led by Her Majesty’s Inspectorate of Probation.64 Youth Offending Services are multi-agency teams, co-ordinated by local authorities, with the aim of reducing re-offending by young people. Police forces have a statutory responsibility to provide

84 resources to the teams. standards by which we the Mental Health Act 1983, STATE OF POLICING By its very nature, a Youth inspect outcomes for although reducing, was still Offending Service will deal detainees in police custody. too high in some forces. with some of the most Our inspections now have Furthermore, people were vulnerable young people. an increased focus on waiting too long for transfer In our inspections of the the use of force and the to beds in healthcare police contribution to response to vulnerable facilities. Also, we found the work of the Youth people and children. that people detained for PART OUR INSPECTIONS 2: Offending Services in six A number of police forces committing offences but force areas, we found we inspected had invested who also displayed signs that in general there was in, or reduced and replaced, of mental health problems a good understanding their custody suites, spent too long in custody of the importance of the resulting in an improved waiting for mental health commitment to provide environment for detainees. assessments. resources. However, we continued to Forces demonstrated a 66 Our recurring concerns find ligature points in many strong focus on avoiding include the lack of cells and communal areas, children entering custody, systems for making police which forces were not making good use of intelligence available to always aware of. alternatives such as partner organisations, which In all our inspections, voluntary attendance or often leads to important we observed respectful community resolutions. errors and omissions. We and positive interactions However, despite some are also concerned that between custody staff and positive joint working with in some Youth Offending detainees. We found an local authorities, alternative Services, the police officers increased understanding accommodation was rarely had not received training in of how to meet the needs available for those children MAPPA (described earlier of children and vulnerable who were taken into in this report; see PEEL adults, although further custody, leading to children effectiveness section), improvement is needed to spending the night in a cell. and the most dangerous translate this into consistent One of our principal offenders were not practice. In general, concerns, resulting in necessarily being referred the approach to risk recommendations for to MAPPAs when they assessment for detainees improvement in all but one should have been. had improved and was of the forces we inspected, Custody leading to a good standard was the continuing lack Since March 2016, we of detainee care. of effective management have published ten reports We found that appreciable systems for the scrutiny as part of our rolling progress continued to be and oversight of the use programme of police made in working with other of force. There was no, or custody inspections with organisations to deal with very limited, monitoring of Her Majesty’s Inspectorate detainees with mental health this to demonstrate to the of Prisons. In April 2016, problems. However, the forces’ senior management we introduced a revised number of people detained teams, police and crime version of Expectations in custody as a place of commissioners or the wider for police custody65 – the safety under section 136 of community whether the use

85 STATE OF POLICING of force was justified and There have been a number proportionate. of very positive benefits Achieving justice in a as a result of digitisation, digital age such as the installation of Wi-Fi in magistrates’ courts, The digitisation of the an online charging facility criminal justice system that allows the police and

PART OUR INSPECTIONS 2: is intended to result in a more modern, efficient and the Crown Prosecution effective system. The aim is Service (CPS) to prioritise that the information about workloads, and an app for an offence recorded by an prosecutors which enables officer at the scene of a cases to be updated online crime can flow through the from the court in real time. system without any need However, multiple ICT for it to be rekeyed, copied, systems are still in use pasted or reworked. by the police, which This joint inspection67 means that information is involved fieldwork in six transferred to the CPS in forces to test how well different ways. Digital media digitisation is working, such as photographs, which included interviews CCTV and body-worn video with interested parties and footage, and recordings of observation of court cases. interviews and 999 calls are A number of improvements still having to be transferred have been made in these using discs rather than forces, and the criminal online, leading to significant justice system has been security risks. Furthermore, modernised to some extent, agencies still have to input but there remains a lot of some paper documents work to be done to make manually, creating a the system fully digital. duplication of effort.

86 HMIC’s monitoring STATE OF POLICING arrangements

In addition to our representatives of monitoring and those who programme of inspections, organisations that include are subject to monitoring. PART OUR INSPECTIONS 2: HMIC routinely monitors the National Police Chiefs’ The new arrangements will police forces in order to Council (NPCC), the remain a tiered approach. promote improvements in College of Policing, the Decisions about the level police practice. We use Association of Police and of scrutiny required for a performance information Crime Commissioners particular force will be taken from a variety of different (APCC) and the Home by the responsible HMI, sources to do this. These Office. Representatives of drawing on input from the include our time spent in these organisations meet to members of the crime and police forces, documents consider those forces that policing monitoring group. and data provided by are of the greatest concern police forces, media to HMIC; this group is called HMIs will broker support stories, research and the crime and policing and advice for both the assessments made by monitoring group. chief constables and police other organisations. During 2016, we undertook and crime commissioners On occasion, analysis of a detailed review of our of those forces that become this information will identify monitoring arrangements, subject to the higher levels a concern about a force’s which identified several of scrutiny. HMIC is working performance. Should this opportunities for with the College of Policing, happen, one of the HMIs improvement. We have the NPCC and the APCC to develop this support will raise the concern with therefore started work and incorporate it into the the relevant chief constable to refine our monitoring monitoring arrangements. and the police and crime arrangements and align 68 commissioner. If the them more closely with our This work will help ensure concern about performance inspections, including the that our monitoring persists or deepens, the PEEL programme. As part arrangements remain HMI may apply a greater of this work, we will clarify open and clear and that level of scrutiny. the roles and responsibilities they continue to serve The HMIs are supported of those who operate the HMIC’s purpose: promoting in the monitoring monitoring arrangements, improvements in policing to arrangements by those who participate in make everyone safer.

87 STATE OF POLICING PART 3: HMIC REPORTS

89 STATE OF POLICING HMIC reports During the reporting period, HMIC published 439 reports, all

PART 3: HMIC REPORTS 439 of which are available on our reports published website.

In addition to our work with these reports were placed the 43 Home Office forces, on the HMIC website and the other inspectorates, www.justiceinspectorates. HMIC carried out various gov.uk/hmic/ other inspections. These HMIC also carried out a formed part of our statutory non-statutory inspection of duties to inspect non- the Royal Gibraltar Police. Home Office police forces We provided this report and certain other law to the Gibraltar Police enforcement agencies. We Authority, which published it. provided our reports to Subsequently, we placed it the relevant Secretaries of on the HMIC website State, who laid them before www.justiceinspectorates. Parliament. Subsequently, gov.uk/hmic/

90 In the pages that follow, we assessments and • 19 assessments of the STATE OF POLICING have set out the following reviews: forces that were not details of the reports: • two reviews of complying with one or • the title of each applications made two features of the inspection report; by police and crime BUSS scheme. commissioners for Home • a short description of the The reports in respect Office Special Grant inspection’s focus; of these reviews and PART 3: HMIC REPORTS funding. Provisions for assessments have been • the names of the other such funding exist to given to the commissioning inspectorates, for help forces to meet bodies and feedback inspections carried out additional costs that has been provided to the with other inspectorates; would be incurred from relevant forces. • publication date of the policing unexpected and exceptional events within report; and HMIC also sat on the their areas; board which makes • the name of the Inspector • 13 assessments of the the recommendation to of Constabulary forces that were not Ministers about the level responsible for the complying with three or of resources that should inspection. more features of the Best be agreed for eight forces In addition, HMIC Use of Stop and Search under Home Office Special carried out the following (BUSS) scheme; and Grant funding.

91 Key STATESTAT OF POLICING E O F P LICING PEEL inspection Reports published Specialist inspection Joint inspections 24 February 2016 Commission Non-inspection publication to 23 March 2017 PART 3: HMIC REPORTS

PEEL inspections

PEEL: Police effectiveness PEEL: Police effectiveness 2015 (vulnerability) revisit (vulnerability) – Police Service A revisit inspection to four forces of Northern Ireland that were graded as inadequate An inspection to look at PSNI’s during the PEEL effectiveness effectiveness at protecting from 2015 (vulnerability) inspection: harm those who are vulnerable, Published: and how it supports victims. Published: Essex Police, Bedfordshire 4 August 2016 7 July 2016 Police, Staffordshire Police and HMIC looked at how the service Surrey Police. responds to and supports missing children and victims of PEEL inspection domestic abuse. Lead HMI: Zoë Billingham PEEL inspection Lead HMI: Mike Cunningham

PEEL: Police efficiency – Best Use of Stop and Search Police Service of Northern (BUSS) scheme Ireland The findings of an HMIC revisit An inspection to assess how to the 13 forces that were not the force makes the best use of complying with three or more its available resources with the features of the Best Use of Stop Published: overall question: How efficient is Published: and Search scheme during 4 August 2016 the force at keeping people safe 22 September 2016 PEEL: Police legitimacy 2015. and reducing crime? PEEL inspection PEEL inspection Lead HMI: Mike Cunningham Lead HMI: Mike Cunningham

92 STAT E O F P LICING STATE OF POLICING PART 3: HMIC REPORTS

PEEL: Police efficiency 2016 Best Use of Stop and Search An inspection of 43 forces (BUSS) scheme to examine how well forces The findings of an HMIC revisit understand the demand for of the additional 19 forces that their service and how well they were not complying with one or match their resources to that two features of the Best Use of Published: demand; and an assessment of Published: Stop and Search scheme during 3 November 2016 their efficiency. 2 February 2017 PEEL: Police legitimacy 2015. PEEL inspection PEEL inspection Lead HMI: Mike Cunningham Lead HMI: Mike Cunningham

PEEL: Police legitimacy 2016 PEEL: Police effectiveness An inspection of 43 forces to 2016 look at the extent to which An inspection of 43 forces forces treat people with fairness to assess the effectiveness and respect; ensure their of police forces in relation workforces act ethically and to how they carry out their Published: lawfully; and whether those Published: responsibilities including cutting 8 December 2016 workforces feel they have 2 March 2017 crime, protecting vulnerable been treated with fairness and people, tackling anti-social respect by forces. behaviour, and dealing with emergencies and other calls PEEL inspection for service. Lead HMI: Mike Cunningham PEEL inspection Lead HMI: Zoë Billingham PEEL: Police leadership 2016 An inspection of 43 forces to explore the degree to which leadership, at all ranks and grades, is understood within policing, how forces work to Published: develop leadership capability 8 December 2016 and how well leadership is displayed by each force. PEEL inspection Lead HMI: Mike Cunningham

93 STATE OF POLICING Specialist inspections

National Child Protection Post- National Child Protection Inspection Review Inspection Inspections to review the progress Three inspections into child made in three forces (West protection work in Essex Police, Yorkshire Police, South Wales the Metropolitan Police Service Published: and Cumbria Constabulary. Published: Police and Devon and Cornwall PART 3: HMIC REPORTS 24 March 2016 – 8 March 2016 – These are part of a rolling Police) since publication of 26 January 2017 20 July 2016 their National Child Protection programme of inspections to Inspection reports. examine child protection in police forces in England and Wales. Specialist inspection Lead HMI: Wendy Williams, Specialist inspection Mike Cunningham Lead HMI: Wendy Williams, Zoë Billingham, Matt Parr, Mike Cunningham Missing children: who cares? – The police response to missing and absent children The tri-service review of the As part of the PEEL: Police Joint Emergency Services effectiveness 2015 inspection, Interoperability Principles (JESIP) we assessed the police response An inspection of the extent to Published: to missing and absent children. which the three emergency 23 March 2016 In addition, we looked at forces’ services have incorporated the preparedness to tackle child Published: principles of joint working into their sexual exploitation, because 12 April 2016 preparation for responding to major children who go missing are at incidents. The JESIP Ministerial greater risk of becoming a victim Board commissioned an HMIC-led of this kind of offending. tri-service review across the three Specialist inspection emergency services. Lead HMI: Wendy Williams Commission Lead HMI: Mike Cunningham

Children’s voices research report – Children and young Use of the Police National people’s perspectives on the Computer by non-police police’s role in safeguarding organisations Results of a research project An inspection into the use of the commissioned by HMIC, Police National Computer (PNC) Published: carried out by the University by 10 non-police organisations 23 March 2016 of Bedfordshire, exploring the Published: which have access to the PNC. experiences of 45 children who 10 May 2016 HMIC assessed whether the level had come into contact with the of PNC access was appropriate police because of concerns about for each organisation’s needs, their safety or wellbeing. whether they were complying Non-inspection publication with the security operating Lead HMI: Wendy Williams procedures and whether they were making efficient and effective use of the PNC. Specialist inspection Lead HMI: Stephen Otter

94 STATE OF POLICING

Royal Gibraltar Police: An Royal Navy Police – An inspection of leadership, crime inspection of the leadership of management, demand and the Royal Navy Police in relation resources to its investigations An inspection of the force An inspection of the effectiveness leadership, vision, values and of strategic leadership, direction,

Published: culture; an assessment of crime Published: oversight and governance to PART 3: HMIC REPORTS 15 July 2016 prevention, investigation and 15 September 2016 ensure investigations are kept victim care, and also a review of free from improper interference, the demand on its services and arrangements for monitoring resources. investigations, and the use of the National Intelligence Model to Specialist inspection identify strategic priorities. Lead HMI: Stephen Otter Specialist inspection Lead HMI: Dru Sharpling An inspection of the National Crime Agency An inspection of the National Royal Air Force Police – Crime Agency’s progress against An inspection of the leadership the recommendations made of the Royal Air Force Police in by HMIC in its 2015 report and relation to its investigations Published: the 19 areas for improvement An inspection of the effectiveness 21 July 2016 described in the 2015 report. of strategic leadership, direction, Published: oversight and governance to Specialist inspection 30 January 2017 Lead HMI: Mike Cunningham ensure investigations are kept free from improper interference, arrangements for monitoring An inspection of the UK investigations, and the use of the International Crime Bureau National Intelligence Model to An inspection of the UK identify strategic priorities. International Crime Bureau (UKICB) Specialist inspection – a function of the National Crime Lead HMI: Dru Sharpling Agency. HMIC looked at whether Published: risks are identified and mitigated in 21 July 2016 a timely and prioritised manner, and National Child Protection the efficiency and effectiveness of Inspection Re-Inspection the UKICB. Re-inspections of Surrey Police Specialist inspection and Essex Police following Lead HMI: Mike Cunningham their National Child Protection Published: Inspection reports, published in 9 February 2017 – December 2015. These assessed Crime data integrity 23 February 2017 the progress made by the forces. inspection 2016 A rolling programme of inspections Specialist inspection to assess the progress made by Lead HMI: Wendy Williams, forces against recommendations Zoë Billingham

Published: set out in HMIC reports following a 25 August 2016 – 2014 inspection of crime-recording 9 February 2017 in all police forces in England and Wales. Findings from seven forces have been published. Specialist inspection Lead HMI: Dru Sharpling, Matt Parr 95 STATE OF POLICING Joint inspections

Report on an unannounced Full joint inspections of youth inspection visit to police offending work custody suites A series of joint inspections A rolling programme of police carried out with HMI Probation custody inspections carried out into youth offending teams that jointly with HMI Prisons to evaluate Published: Published: are considered to have causes of PART 3: HMIC REPORTS 23 March 2016 – strategy, treatment and conditions, 12 May 2016 – concern. Youth offending teams in 1 March 2017 individual rights and healthcare of 23 February 2017 seven force areas were inspected. people in custody. Joint inspection by HMIC and Joint inspection by HMI HMI Probation Prisons and HMIC Lead HMI: Wendy Williams Lead HMI: Dru Sharpling

‘Time to listen’ – a joined Joint targeted area inspection up response to child sexual of the multi-agency response to exploitation and missing abuse and neglect children A series of joint inspections of the An overview of five joint targeted multi-agency response to abuse area inspections into child sexual Published: and neglect in eight local authority Published: exploitation and missing children, 5 April 2016 – areas carried out by Ofsted, the 29 September 2016 1 February 2017 published from February to August Care Quality Commission (CQC), 2016. HMIC and HMI Probation. These inspections included a ‘deep dive’ Joint inspection by Ofsted, focus on the responses to child CQC, HMIC, HMI Probation sexual exploitation and children Lead HMI: Wendy Williams missing from home, care or education. Joint inspection by Ofsted, CQC, HMIC, HMI Probation Lead HMI: Wendy Williams

Delivering justice in a digital age A joint inspection undertaken by Her Majesty’s Crown Prosecution Service Inspectorate (HMCPSI) and HMIC to assess the progress made to date in the introduction of Published: digitised case file information. 13 April 2016 Joint inspection by HMCPSI and HMIC Lead HMI: Wendy Williams

96 Non-inspection publications STATE OF POLICING

Inspection Programme and HMIC Summary Value for Money Framework 2016/17 Profile 2016 HM Chief Inspector of A set of 43 summary profiles Constabulary’s 2016/17 Inspection based on data provided by the Programme and Framework – forces of England and Wales, prepared under Schedule 4A to which provides comparative PART 3: HMIC REPORTS Published: the Police Act 1996. Published: data on a wide range of policing 22 March 2016 17 November 2016 Inspection Programme and activities and highlights differences Framework in expenditure and performance. Lead HMI: Sir Thomas Winsor Data profiles Lead HMI: Mike Cunningham

Public views of policing in England and Wales HMI assessment of forces Results of the Ipsos MORI survey The overall assessments of commissioned by HMIC covering 43 forces drawing together the the public’s views and experiences assessments of effectiveness, of local policing. efficiency and legitimacy with other Published: 31 August 2016 Survey insights gained during 2016. Also Lead HMI: Mike Cunningham Published: considers the operating context 23 March 2017 of each force and sets out each HMI’s expectations for 2017 and Rape Monitoring Group Local beyond. Area Data for 2015/16 PEEL inspection A total of 42 local area digests that Lead HMI: Zoë Billingham, provide datasets which enable Mike Cunningham, Matt Parr, thorough analysis of how rape is Wendy Williams dealt with in particular areas of Published: England and Wales. 13 October 2016 Data digest State of Policing: The Annual Lead HMI: Wendy Williams Assessment of Policing in England and Wales 2016 A report on the carrying out HMIC Value for Money of inspections under section Profile 2016 54(4A) of the Police Act 1996 (as A set of 43 full profiles based Published: amended by the Police Reform on data provided by the forces 23 March 2017 and Social Responsibility Act of England and Wales, which 2011), including Her Majesty’s offers comparative analysis of a Chief Inspector of Constabulary’s Published: wide range of policing activities assessment of the efficiency and 17 November 2016 and highlights differences in effectiveness of policing in England expenditure and performance and Wales for the year 2016. between forces. Annual assessment Data profiles Lead HMI: Sir Thomas Winsor Lead HMI: Mike Cunningham

97 STATE OF POLICING References 1. HMIC website www.justiceinspectorates.gov.uk/hmic/ 2. Organisational Strategy 2016–2020, HMIC, November 2016. Available from: www.justiceinspectorates.gov.uk/hmic/wp-content/uploads/hmic-organisational- strategy-2016.pdf PART 3: HMIC REPORTS 3. PEEL: Police effectiveness, efficiency and legitimacy. 4. State of Policing: The Annual Assessment of Policing in England and Wales 2015, HMIC, London, February 2016, page 64. Available from: www.justiceinspectorates.gov.uk/hmic/publications/state-of-policing-the-annual- assessment-of-policing-in-england-and-wales-2015/ 5. Public Views of Policing in England and Wales, Survey conducted for HMIC by Ipsos MORI, July–August 2016. 6. Police Service Strength England and Wales, 30 September 2010, Home Office, London, January 2011 and Police Workforce, England and Wales: 30 September 2016, Home Office, London, January 2017. Both available from: www.gov.uk/government/collections/ police-workforce-england-and-wales 7. State of Policing: The Annual Assessment of Policing in England and Wales 2015, HMIC, London, February 2016. Available from: www.justiceinspectorates.gov.uk/hmic/publications/state-of-policing-the-annual- assessment-of-policing-in-england-and-wales-2015/ 8. Police Use of Firearms Statistics, England and Wales: April 2015 to March 2016, Home Office, London, July 2016. Available from: www.gov.uk/government/publications/police- use-of-firearms-statistics-england-and-wales-april-2015-to-march-2016/police-use-of- firearms-statistics-england-and-wales-april-2015-to-march-2016 9. Figures for December 2016, provided to HMIC by the Metropolitan Police Service. 10. State of Policing: The Annual Assessment of Policing in England and Wales 2015, HMIC, London, February 2016, page 64. Available from: www.justiceinspectorates.gov.uk/ hmic/publications/state-of-policing-the-annual-assessment-of-policing-in-england-and- wales-2015/ 11. Protecting Vulnerable People, College of Policing. Available from: www.college.police.uk/ What-we-do/Learning/Curriculum/Pages/Protecting-Vulnerable-People.aspx 12. Consumer Harm Report 2015–2016, National Trading Standards, Basildon, 2016. Available from: www.nationaltradingstandards.uk/site_assets/files/NTS%20 Consumer%20Harm%20Report%202016.pdf 13. New approach to vulnerability for policing announced, College of Policing, 30 November 2016. Available from: www.college.police.uk/News/College-news/Pages/New_ approach_to_vulnerability_for_policing_announced.aspx 14. Home Secretary’s College of Policing speech on vulnerability, Home Office, 30 November 2016. Available from: www.gov.uk/government/speeches/home-secretarys-college-of- policing-speech-on-vulnerability

98 15. Growing Up Digital: A Report of the Growing Up Digital Taskforce, Children’s STATE OF POLICING Commissioner for England, London, January 2017. Available from: www.childrenscommissioner.gov.uk/sites/default/files/publications/Growing%20Up%20 Digital%20Taskforce%20Report%20January%202017_0.pdf 16. Serious and Organised Crime Protection: Public Interventions Model, Home Office, London. Available from: www.gov.uk/government/uploads/system/uploads/attachment_ data/file/502960/Gov.uk_Serious_Organised_Crime_deck_vF.pdf PART 3: HMIC REPORTS 17. NSPCC website www.nspcc.org.uk 18. Section 81 of the Policing and Crime Act 2017 amends the Mental Health Act 1983 to place restrictions on places (including police stations) that may be used as a place of safety; see also CentreForum Commission on Children and Young People’s Mental Health: State of the Nation, Emily Frith, London, April 2016, page 26. Available from: http://centreforum.org/live/wp-content/uploads/2016/04/State-of-the-Nation-report- web.pdf 19. Op cit., page 5. 20. The Bichard Inquiry Report, HC 653, June 2004. Available from: http://library.college.police.uk/docs/homeoffice/bichard-inquiry-report.pdf 21. “Mistakes Were Made”. HMIC’s Review into Allegations and Intelligence Material Concerning Jimmy Savile Between 1964 and 2012, HMIC, London, March 2013. Available from: http://www.justiceinspectorates.gov.uk/hmic/publications/mistakes-were- made/ 22. The Police ICT Company is a private company established by police and crime commissioners to support policing to make the public safer through better IT. 23. It is not uncommon for legislation to require public bodies to “have regard to” guidance, codes of practice or other material. The effect is that the PCC and chief constable should follow the SPR unless they are satisfied that, in the particular circumstances, there are good reasons not to. The Strategic Policing Requirement is available from: www.gov.uk/government/uploads/system/uploads/attachment_data/file/417116/The_ Strategic_Policing_Requirement.pdf 24. HMI assessments www.justiceinspectorates.gov.uk/hmic/peel-assessments/peel-2016/ 25. HMIC website www.justiceinspectorates.gov.uk/hmic/ 26. Crime in England and Wales: year ending June 2016, Office for National Statistics, June 2016. Available from: www.ons.gov.uk/peoplepopulationandcommunity/crimeandjustice/ bulletins/crimeinenglandandwales/yearendingjune2016 27. In April 2015, it became mandatory for all forces to return quarterly information to the Home Office on the number of crimes identified as being committed online (in full or in part). There are large variations in the proportion of offences identified by each force and there is anecdotal evidence to suggest that the electronic marker for identifying online crimes is currently underused. Work is continuing to improve the quality of the data submitted. It is likely that the proportion of offences committed online will increase. 28. Crime in England and Wales: Year ending June 2016, Table E15: Offences recorded by the police in England and Wales which were flagged as online crime, year ending June 2016. These are experimental statistics undergoing testing and are not yet fully developed.

99 STATE OF POLICING 29. Public Views of Policing in England and Wales, survey conducted for HMIC by Ipsos MORI, July–August 2016. 30. Op cit. 31. Multi-agency public protection arrangements: a process through which the police, probation and prison services work together with other agencies to manage the risks posed by violent and sexual offenders living in the community in order to protect the

PART 3: HMIC REPORTS public. Available from: https://mappa.justice.gov.uk/connect.ti/MAPPA/groupHome 32. The Police ICT Company is a private company established by police and crime commissioners to support policing to make the public safer through better IT. 33. Code of Ethics: A Code of Practice for the Principles and Standards of Professional Behaviour for the Policing Profession of England and Wales, College of Policing, July 2014. Available from: http://www.college.police.uk/What-we-do/Ethics/Documents/Code_of_Ethics.pdf 34. ACPO/ACPOS National Vetting Policy for the Police Community. Available from: www.northants.police.uk/files/documents/Freedom%20Of%20Information/ ac%5EACPO%20National%20Vetting%20Policy.pdf 35. Excluding British Transport Police. 36. ‘Incidents involving victims of domestic abuse’ does not mean allegations that resulted from domestic abuse incidents, but that one or more of those involved other than the perpetrator was a victim of domestic abuse. 37. The abuse of police powers to perpetrate sexual violence, jointly published by IPCC and ACPO (now the National Police Chiefs’ Council), September 2012. Available from: www.ipcc.gov.uk/sites/default/files/Documents/research_stats/abuse_of_police_powers_ to_perpetrate_sexual_violence.PDF and Integrity matters: An inspection of arrangements to ensure integrity and to provide the capability to tackle corruption in policing, HMIC, January 2015. Available from: www.justiceinspectorates.gov.uk/hmic/publications/integrity-matters/ 38. Guiding principles for organisational leadership, College of Policing, HMIC, NPCC, February 2017. Available from: www.college.police.uk/What-we-do/Development/ Promotion/police-leadership-guiding-principles/Pages/Police-leadership-guiding- principles.aspx 39. Available from: www.policenow.org.uk/ 40. Available from: http://recruit.college.police.uk/Officer/leadership-programmes/Direct- Entry-Programme/Pages/Direct-Entry-Programme.aspx 41. Available from: http://recruit.college.police.uk/Officer/leadership-programmes/Fast-Track- Programme/Pages/Fast-Track-Programme.aspx 42. State of Policing: The Annual Assessment of Policing in England and Wales 2015, HMIC, February 2016. Available from: www.justiceinspectorates.gov.uk/hmic/ publications/state-of-policing-the-annual-assessment-of-policing-in-england-and- wales-2015/

100 43. Crime-recording: making the victim count, HMIC, London, November 2014. Available at: STATE OF POLICING www.justiceinspectorates.gov.uk/hmic/wp-content/uploads/crime-recording-making-the- victim-count.pdf 44. Op cit, paragraphs 1.24 and 1.25. 45. Crime Survey in England and Wales: year ending Sept 2016, Office for National Statistics, September 2016. Available from: www.ons.gov.uk/peoplepopulationandcommunity/

crimeandjustice/bulletins/crimeinenglandandwales/yearendingsept2016 PART 3: HMIC REPORTS 46. To produce the seven force figures, simple weighting was applied to the individual force-recorded crime figures. 47. The confidence interval provides an estimated range of values within which the given population being examined is likely to fall. For example, if an audit found that 85 percent of crimes were correctly recorded with a confidence interval of +/– 3 percent, then we could be confident that between 82 percent and 88 percent of crimes were correctly recorded for the period being examined. 48. Direct comparisons cannot be made with the 2014 inspection findings at this stage, as these were not completed to a statistically robust level in each force, but for England and Wales only. The 2016 methodology provides for a statistically robust recording accuracy rate by force, but not for England and Wales. 49. Crime-recording: making the victim count, HMIC, November 2014, paragraph 7.92. Available at: www.justiceinspectorates.gov.uk/hmic/wp-content/uploads/crime- recording-making-the-victim-count.pdf 50. Section 136A of the Mental Health Act 1983 (inserted by the Policing and Crime Act 2017) allows a police officer toemove r an apparently mentally disordered adult (but not a child) from a public place to a police station as a place of safety. Police stations should only be used in exceptional circumstances and it is preferable for the person to be taken directly to healthcare facilities such as a hospital; Code of Practice: Mental Health Act 1983, Department of Health, 2008, paragraph 10.21. Available from: http://webarchive.nationalarchives.gov.uk/20130123193537/http://www.dh.gov.uk/en/ Publicationsandstatistics/Publications/PublicationsPolicyAndGuidance/DH_084597 51. There are national policing arrangements in England and Wales to counter the threat of terrorism. Chief constables have agreed, under certain circumstances, to cede control of their resources to a police commander working on their behalf: the Senior National Co- ordinator for counter-terrorism (‘the SNC’). The SNC in turn appoints a police counter- terrorism commander to lead the response by police and counter-terrorism agencies. 52. A series of regional counter-terrorism policing units that have been established across England and Wales. Their role includes gathering intelligence and evidence to help prevent, disrupt and prosecute terrorist activities. 53. Best Use of Stop and Search Scheme, Home Office and College of Policing, 2014, page 2. Available from: www.gov.uk/government/uploads/system/uploads/attachment_data/ file/346922/Best_Use_of_Stop_and_Search_Scheme_v3.0_v2.pdf

101 STATE OF POLICING 54. Section 60 of the Criminal Justice and Public Order Act 1994 allows a police officer, in places authorised by an officer of inspector rank, to stop and search people without having reasonable grounds to suspect the person to be searched is in possession of a stolen or prohibited item. 55. The 13 forces: Cambridgeshire Constabulary, Cheshire Constabulary, Cumbria Constabulary, Gloucestershire Constabulary, Lancashire Constabulary, Leicestershire Police, Lincolnshire Police, Northumbria Police, Staffordshire Police, South Wales Police, PART 3: HMIC REPORTS Warwickshire Police, West Mercia Police and Wiltshire Police. 56. The 19 forces: City of London Police, Cleveland Police, Derbyshire Constabulary, Devon and Cornwall Police, Dorset Police, Durham Constabulary, Essex Police, Greater Manchester Police, Hertfordshire Constabulary, Humberside Police, Kent Police, Merseyside Police, Metropolitan Police Service, Northamptonshire Police, North Wales Police, North Yorkshire Police, South Yorkshire Police, Surrey Police and West Midlands Police. 57. An inspection of the National Crime Agency’s progress against outstanding recommendations made by HMIC and areas for improvement, HMIC, July 2016. Available at: www.justiceinspectorates.gov.uk/hmic/wp-content/uploads/progress- report-of-national-crime-agency.pdf 58. An inspection of the National Crime Agency, HMIC, March 2015. Available at: www.justiceinspectorates.gov.uk/hmic/wp-content/uploads/an-inspection-of-the- national-crime-agency.pdf 59. An inspection of the UK International Crime Bureau: A function of the National Crime Agency, HMIC, July 2016. Available at: www.justiceinspectorates.gov.uk/hmic/wp- content/uploads/inspection-of-the-uk-international-crime-bureau.pdf 60. The National Intelligence Model is a well-established and recognised model within policing that managers use for setting strategic direction and various other purposes. Available at: https://ict.police.uk/national-standards/intel/ 61. National Intelligence Model Code of Practice, Home Office and National Centre for Policing Excellence, 2005. Available at: http://library.college.police.uk/docs/npia/NIM- Code-of-Practice.pdf 62. A Common Sense Approach: a review of the criminal records regime in England and Wales, Report on Phase 2, Sunita Mason, 30 November 2011, page 35: “... once access has been granted, it is vital to have effective auditing arrangements to check it is being used appropriately and in line with the agreed conditions. HMIC has strong expertise in this area and their audit role should be extended to cover all PNC users, with the users agreeing to meet the cost of the audit.” 63. A supply agreement is a document signed by the Home Office and each individual organisation agreeing to PNC access. The document includes the responsibilities of each party to ensure that access to the PNC continues. There is a review date included in each supply agreement. 64. Other inspectorates covering health, children’s social care, education and training are also involved.

102 65. Expectations for police custody: Criteria for assessing the treatment of and conditions for STATE OF POLICING detainees in police custody, HMIC, April 2012. Available from: www.justiceinspectorates. gov.uk/hmic/publications/expectations-police-custody-criteria/ 66. A ligature point is a point which could be used to support a noose or other strangulation device. Such points represent major risks to suicidal detainees. 67. Delivering justice in a digital age: a joint inspection of a digital case preparation and presentation in the criminal justice system, HM Crown Prosecution Service Inspectorate PART 3: HMIC REPORTS and HMIC, April 2016. Available at: www.justiceinspectorates.gov.uk/hmic/wp-content/ uploads/delivering-justice-in-a-digital-age.pdf 68. Different arrangements apply concerning the leadership and oversight of the two London police forces. Should concerns be identified in respect of the Metropolitan Police Service, they will be raised with the Commissioner of Police of the Metropolis and the Mayor’s Office for Policing and Crime. Should concerns be raised in respect of the City of London Police, they will be raised with the Commissioner of City of London Police and the City of London Police Committee.

103 STATE OF POLICING ANNEXES

105 STATE OF POLICING ANNEXES

107 STATE OF POLICING HMIC was :established in ANNEX B About HMIC History HMIC is independent of

A b o ut HMIC both the police service Her Majesty’s Inspectorate 1856 and the Government. of Constabulary was Both its independence and established in 1856, under inspection rights are vested the same statute that in Her Majesty’s Inspectors, required every county and who are Crown appointees borough which had not (section 54(1), Police Act already done so to establish 1996). and maintain a permanent salaried police force (the Statutory County and Borough Police responsibilities Act 1856). Inspection of territorial The 1856 Act authorised police forces in England the appointment of three and Wales Inspectors of Constabulary HMIC has statutory powers in England and Wales, to inspect and can be whose duty it was to commissioned to inspect “inquire into the state as follows: and efficiency of the police” (section 15). It also • HMIC must inspect and introduced the concept of report on the efficiency annual inspection. and effectiveness of every police force maintained The first Chief Inspector for a police area (section of Constabulary was 54(2), Police Act 1996). appointed in 1962, as part of a major package of • The Secretary of State reforms to improve police may at any time require governance and expand the the Inspectors of role of the Inspectorate. Constabulary to carry out The Inspectorate’s role and an inspection of a police influence have evolved over force maintained for the last century and a half. any police area (section Most of its current functions 54(2B), Police Act 1996). are set out in the Police Act • The Home Secretary may 1996 (as amended by the also from time to time Police Reform and Social direct the Inspectors of Responsibility Act 2011 Constabulary to carry and the Policing and Crime out such other duties for Act 2017). the purpose of furthering

108 police efficiency and they police specific areas of STATE OF POLICING effectiveness as she may infrastructure or particular Police Act specify (section 54(3), types of crime. In these Police Act 1996). cases, HMIC’s report • The local policing body is given to whichever for a police area may government body is at any time request responsible for the activity

1996 A b o ut HMIC the Inspectors of in question. Constabulary to carry out HMIC has a duty to inspect an inspection of a police the following: force maintained for the police area in question • Armed Forces Police – (section 54(2BA), Police Royal Navy, Royal Military, Act 1996). Royal Air Force Police (section 321A, Armed Inspection of other police Forces Act 2006 inserted forces and agencies by section 4 of the Armed HMIC also has statutory Forces Act 2011); duties to inspect other police forces and agencies, • British Transport Police whose remits are not (section 63, Railways limited to a particular and Transport Safety territorial area. Instead, Act 2003);

109 STATE OF POLICING • Civil Nuclear • National Crime Agency Constabulary (section 62, (section 11, Crime and Energy Act 2004); Courts Act 2013); and • HM Revenue and • Customs functions Customs (section 27, (section 29, Borders, Commissioners for Citizenship and Immigration Act 2009,

A b o ut HMIC Revenue and Customs and the Customs Act 2005, and the (Inspections by Her Revenue and Customs Majesty’s Inspectors of (Inspections) Regulations Constabulary and the 2005 (SI 2005/1133)); Scottish Inspectors) • Ministry of Defence Police Regulations 2012 (SI (section 4B, Ministry of 2012/2840)). Defence Police Act 1987); The Policing and Crime Act 2017 which received • Police Service of Northern Royal Assent on 31 January Ireland (section 41, 2017 will enhance the Police (Northern Ireland) democratic accountability Act 1998, subject to of police forces and fire appointment by the and rescue services, Department of Justice, improve the efficiency and Northern Ireland); effectiveness of emergency

110 services through closer STATE OF POLICING collaboration, and build public confidence in policing. Provisions have been included in the Act to strengthen powers to inspect fire and rescue A b o ut HMIC services currently contained in the Fire and Rescue Services Act 2004. HMIC was asked to develop options for how it would take on the inspection of © West Midlands Police fire and rescue services. A detailed proposal has been submitted to the Home manner (paragraph 3 of • may draw up a joint Office. This contemplates Schedule 4A to the Police inspection programme a risk-based and Act 1996). with other specified proportionate programme Collaborative working inspectorates (paragraph of inspections focusing on The long history of 5); and the effectiveness, efficiency collaborative working • may give notice to other and leadership of fire between the criminal specified inspectorates and rescue services. We justice inspectorates – of not to carry out an expect Ministers to make Constabulary, the Crown inspection, or not to a decision in 2017 as to Prosecution Service, do so in a specified whether HMIC should be Prisons and the National manner, where HMCIC asked to assume and Probation Service – was considers that such discharge this additional placed on a statutory inspection would impose responsibility. footing through the Police an unreasonable burden Powers in relation to Act 1996 (as amended (paragraph 3). inspections by others by the Police Reform and Where HM Chief Inspector Publication of reports Social Responsibility Act HMIC must arrange for all of Constabulary (HMCIC) 2011). considers that a proposed reports prepared under inspection by another Schedule 4A to the 1996 section 54 of the Police Act specified inspectorate, Act provides that the 1996 to be published in relating to matters within Inspectors of Constabulary: such a manner as appears HMCIC’s remit, would • must cooperate to the Inspectors to be impose an unreasonable with other specified appropriate (section 55(1), burden on the body to be inspectorates where it is Police Act 1996). inspected, he may require appropriate to do so for HMIC must exclude from the other body not to carry the efficient and effective publication anything that out that inspection, or not discharge of their the Inspectors consider to do so in a particular functions (paragraph 4); would be against the

111 STATE OF POLICING interests of national security copy of this report before or might jeopardise the Parliament (section 54(4), safety of any person Police Act 1996). The report (section 55(2), Police Act must include HMCIC’s 1996). assessment of the efficiency HMIC must send a copy and effectiveness of policing of every published report in England and Wales for A b o ut HMIC to the Secretary of State, that year (section 54(4A), the local policing body Police Act 1996). maintaining the police force Production of the HMIC to which the report relates, inspection framework the chief officer for that HMCIC has a duty from police force and the police time to time to prepare, and crime panel for that consult on and publish police area (section 55(3), an inspection framework Police Act 1996). (paragraph 2 of Schedule HMCIC must in each year 4A to the Police Act 1996). submit to the Secretary HMCIC must obtain the of State a report on the approval of the Home carrying out of inspections Secretary to the inspection and (HMCIC) must lay a framework, and then lay

112 this framework before STATE OF POLICING Parliament (paragraphs 2(2A) – (2B) of Schedule 4A to the Police Act 1996). Monitoring complaints It is the duty of every

Inspector of Constabulary, A b o ut HMIC carrying out his functions in relation to a police force, to ensure that he is kept informed about all matters concerning complaints and misconduct in relation to © West Midlands Police that police force (section 15(1), Police Reform Act A super-complaint is super-complaints must 2002). a complaint made to be made first to HMIC, The Policing and Crime Act HMCIC that a feature, or there will be a process – to 2017 contains provisions combination of features, be set out in regulations for the establishment of a of policing in England and – specifying how super- system of super-complaints. Wales by one or more complaints are to be dealt than one police force is, or with and who will deal with appears to be, significantly © Northumbria Police harming the interests of the them. public. The regime will also Misconduct proceedings apply to the National Crime In misconduct proceedings Agency. for chief constables and Only a body designated by other senior officers the Home Secretary may above the rank of chief make a super-complaint. superintendent, HMCIC The Act provides for the or an HMI nominated by Home Secretary to make him will sit on the panel for regulations about which misconduct meetings and bodies may be designated, misconduct hearings (Police and the criteria to be applied in making such (Conduct) Regulations decisions. 2012 (SI 2012/2632), regulation 26). For all chief The Act also makes officer ranks (including chief provision for the involvement of the constables), HMCIC or an College of Policing and HMI nominated by him will the Independent Police sit on any police appeals Complaints Commission in tribunal – Police Act 1996, super-complaints. Although Schedule 6, paragraph 1.

113 STATE OF POLICING A b o ut HMIC

Removal of senior officers commissioner on the If a police and crime dismissal of a chief commissioner is proposing constable (Police Reform to call upon a chief and Social Responsibility constable or other senior Act 2011, Schedule 8, officer to retire or resign, paragraph 15). he is required to invite HMCIC to provide (who HMIC’s powers must then provide) written Amendments made by the views on the proposed Police Reform and Social removal and the police and Responsibility Act 2011 crime commissioner must to the Police Act 1996 have regard to those views have strengthened the (Police Regulations 2003 (SI inspectorate’s role as a 2003/527), regulations 11A policing body independent and 11B). of both the Government The police and crime panel and the police, making may consult HMCIC before it more fully accountable making a recommendation to the public and to to the police and crime Parliament.

114 Access to documents and access to police premises Power to provide STATE OF POLICING premises are created by section 36 assistance to any other The chief officer of police of the Policing and Crime public authority is required to provide Act 2017. HMCIC may, if he thinks Inspectors with information, it appropriate, provide documents, evidence Power to delegate assistance to any other or other things that the functions public authority for the

Inspector may specify An Inspector of purpose of the exercise by A b o ut HMIC as are required for the Constabulary has the power that authority of its functions. purposes of inspection to delegate any of his Such assistance may be (paragraph 6A of Schedule functions to another public provided under such terms 4A to the Police Act 1996). authority (paragraph 1 of (including terms as to The chief officer is also Schedule 4A to the Police payment) as HMCIC sees fit required for the purposes Act 1996). (paragraph 6 of Schedule 4A of inspection to secure to the Police Act 1996). Power to act jointly with access for Inspectors to Staffing another public body premises occupied for the HMIC’s workforce purposes of that force and HMIC can act jointly with comprises the Inspectors of to documents and other another public body where Constabulary, civil servants, things on those premises it is appropriate to do so for police officers and staff (paragraph 6B of Schedule the efficient and effective secondees. In addition 4B to the Police Act 1996). discharge of its functions to these staff, HMIC has Further powers for HMIC (paragraph 5(1) of Schedule a register of associate to obtain information and 4A to the Police Act 1996). inspectors.

115 STATE OF POLICING T he biography for each of the Inspectors of Who we are Constabulary can be Her Majesty’s Chief Inspector found on HMIC’s of Constabulary website: Sir Thomas Winsor

About HMIC www.justiceinspectorates. In October 2012, Sir Thomas was appointed as gov.uk/hmic/about-us/who- Her Majesty’s Chief Inspector of Constabulary. we-are/ He is the first holder of that office to come from a non-policing background.

Her Majesty’s Inspectors of Constabulary Zoë Billingham Zoë Billingham is Her Majesty’s Inspector for the Eastern Region.

Michael Cunningham Michael Cunningham QPM is Her Majesty’s Inspector for the Northern Region.

Matt Parr Matt Parr CB is Her Majesty’s Inspector for the National and London Regions.

Dru Sharpling Dru Sharpling CBE is Her Majesty’s Inspector and also sits on the panel of the Independent Inquiry into Child Sexual Abuse.

Wendy Williams Wendy Williams is Her Majesty’s Inspector for the Wales and Western Region.

116 Independence does STATE OF POLICING Accountability not mean that there is The County and Borough Police Act 1856 provided a lack of accountability for the appointment of the first Inspectors of Constabulary, and required them to inspect and report on the efficiency and effectiveness of most of the police forces in England and Wales. HMIC’s A b o ut HMIC principal role has not changed materially since then, except that its remit now covers the 43 forces in England and Wales, and a number of other forces and agencies, either automatically or on request. Its principal empowering statute is now the Police Act 1996. There are currently six commissioners (and their Inspectors of Constabulary; London equivalents), other they are neither civil agencies in the criminal servants nor police officers. justice system and all They are appointed by the outside parties. However, Crown for a fixed term of independence does not up to five years. HMIC is mean that there is a lack therefore independent of of accountability. HMIC is the police, Government, accountable in the following police and crime ways:

• its statutory duties, • its obligation to give written enforceable through and oral evidence to judicial review or by action Committees of Parliament, for breach of statutory including the Home duty; Affairs Select Committee, • its obligation to submit an the Public Accounts annual report to the Home Committee and any other Secretary under section select committee which 54 of the Police Act 1996; may require HMIC to give each report must be evidence; published and laid before • its obligation to carry out Parliament: section 54(4), other duties as the Home Police Act 1996; Secretary may direct: • its obligation to lay before section 54 (3), Police Act Parliament a copy of each 1996; inspection programme • its obligation to comply and inspection framework: with the rules of Police Act 1996, schedule administrative law and 4A, paragraph 2(2A)(a)); the rules of good public • written Parliamentary administration, enforceable questions; in the High Court by judicial review. 117 STATE OF POLICING As a public body, HMIC is • a concordat with the In addition, HMIC has a also subject to the legal Home Office which statutory duty to co-operate obligations imposed on explains the material with the other criminal public authorities, including: parts of the relationship justice inspectorates, between the two namely those concerned • Official Secrets Acts with the Crown Prosecution 1911 and 1989; organisations. The concordat specifies at Service and the probation A b o ut HMIC • Health and Safety at a high level the role of and prisons services, Work etc. Act 1974; each organisation in and the other named • Data Protection Act relation to the other, inspectorates set out in 1998; and the responsibilities paragraph 4, Schedule of the principal 4A, Police and Justice Act • Human Rights Act 2006. Our obligations with 1998; individuals involved in running, sponsoring regard to joint inspections • Freedom of Information and overseeing HMIC’s are set out in paragraphs Act 2000; affairs. The concordat 2–5 of that schedule • Equality Act 2010. is published on HMIC’s and those inspections website; are reported on earlier in this assessment. HMIC receives funding from • a concordat with the Home Office and is the College of accountable to the Home Policing. As both Office for its expenditure have complementary even though it is neither a purposes and different subsidiary nor a part of the powers by which those Home Office. purposes are to be HMIC has established a achieved, the concordat number of concordats specifies the common with others which set out understanding and the relationship or working intended approach arrangements between of each body in its them. These are: relations with the other in respect of their roles and responsibilities; • a concordat with the College of Policing and the Independent Police Complaints Commission. The concordat specifies the common understanding and intended approach of each body in its relations with the other in respect of their roles and responsibilities.

118 The National and STATE OF POLICING ’HMIC regions London regions responsibilities include: Metropolitan Police Service City of London Police

National Crime Agency A b o ut HMIC British Transport Police Civil Nuclear Constabulary Ministry of Defence Police Armed Forces Police Northern Ireland Guernsey Police Royal Gibraltar Police States of Jersey Police Isle of Man Constabulary HM Revenue and Customs others by invitation.

Northern region Eastern region National and London regions Wales and Western region

119 STATE OF POLICING HMIC purpose, values and objectives Strong, clear values heart of how we operate; provide the foundation for they act as a touchstone to A b o ut HMIC a strong organisation. Our help both individuals and values of respect, honesty, HMIC as a whole to make independence, integrity decisions. and fairness are at the

Demonstrate our alues in eerthing e do

Ensure that our Conduct informed staff hae the independent and sills noledge eidence-based and support to do inspections their jobs esect Honest

Integrit Promoting Indeendence improements in policing to mae eerone safer

eport our Fairness Proide inspection alue for ﬁndings/analsis mone in a clear and compelling a

Wor ith others to promote improements in policing

120 ANNEX C: STATE OF POLICING Peelian Principles

The basic mission for which the police exist is to Pee lian Pr incipl e s 1 prevent crime and disorder.

The ability of the police to perform their duties 2 is dependent upon public approval of police actions. Sir Robert Peel became Home Police must secure the willing co-operation of 3 the public in voluntary observance of the law to Secretary in 1822 and in be able to secure and maintain the respect of the 1829 established the public. first full-time, professional and The degree of co-operation of the public that 4 can be secured diminishes proportionately to the centrally-organised necessity of the use of physical force. police force in England and Wales, for the Police seek and preserve public favour not by pandering to public opinion but by constantly Greater London area. 5 demonstrating absolute impartial service to The reforms were the law. based on a philosophy Police use physical force to the extent necessary that the power of the 6 to secure observance of the law or to restore police comes from the order only when the exercise of persuasion, common consent of advice and warning is found to be insufficient. the public, as opposed Police, at all times, should maintain a relationship to the power of the 7 with the public that gives reality to the historic state. This philosophy tradition that the police are the public and the public is underpinned by nine are the police; the police being only members of the public who are paid to give full-time attention to principles which have duties which are incumbent on every citizen in the shaped HMIC’s interests of community welfare and existence. approach when assessing forces. Police should always direct their action strictly towards their functions and never appear to 8 usurp the powers of the judiciary.

The test of police efficiency is the absence of crime and disorder, not the visible evidence of 9 police action in dealing with it.

121 STATE OF POLICING ANNEX D: % Finances HMIC is funded principally HMIC spends 82 by the Home Office. In percent of its funding F inanc e s 82 of HMIC’s funding is addition, HMIC receives on its workforce, with spent on its workforce funds for inspections the remainder spent commissioned by others on travel, subsistence, (such as the Police Service accommodation and of Northern Ireland). other expenses.

Expenditure breakdown 2015/16

20 1.m 18 82

8 Expenditure in millions Expenditure 6

4 1.8m 8 0.8m 2 0.6m 0.4m 0.3m 4 3 2 1 0 IT and serices telephon Trael and Trael associates subsistence and other costs ffice expenses ffice Accommodation taff costs including taff ures and inspection

122 STATE OF POLICING Staffing HMIC’s workforce comprises the Inspectors of 231 F inanc e s Constabulary, civil servants, members of staff police officers and staff secondees. In addition to these staff, HMIC has a register of associate inspectors.

Staffing breakdown 2015/16

120 113

100

80 5

60 Numbers of staff

40 28

20 10 5

0 staff staff Police Police ixed-term Permanent secondees departments appointments ther goernment

123 ANNEX E: Inspections by force February 2016 to 24 23 March 2017 police forces Territorial of England and Wales and Somerset Avon Bedfordshire Cambridgeshire Cheshire City of London Cleveland Cumbria Derbyshire Devon and Cornwall Dorset Durham Dyfed-Powys Essex Gloucestershire Manchester Greater Gwent Hampshire Hertfordshire Humberside Kent Lancashire Leicestershire Lincolnshire Merseyside Metropolitan Norfolk Northamptonshire Northumbria North Wales North Yorkshire Nottinghamshire South Wales South Yorkshire Staffordshire Suffolk Surrey Sussex Thames Valley Warwickshire Mercia West Midlands West Yorkshire West Wiltshire and agencies Other police forces Force Border Police British Transport Civil Nuclear Constabulary National Crime Agency Police Service of Northern Ireland Royal Gibraltar Police Royal Navy Police Police Royal Air Force Thematic and other reports police forces/agencies Various Non-inspection reports police forces/agencies Various

PEEL: Police effectiveness 2015 (vulnerability) revisit l l l l PEEL: Police effectiveness (vulnerability) – l

PEEL inspections Police Service of Northern Ireland PEEL: Police efficiency – l Police Service of Northern Ireland Best Use of Stop and Search revisits l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l PEEL: Police efficiency 2016 l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l PEEL: Police legitimacy 2016 l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l PEEL: Police leadership 2016 l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l PEEL: Police effectiveness 2016 l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l HMCIC Annual Assessment of Policing in England l and Wales 2016 (State of Policing) HMIs' force assessments l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l l Missing children: who cares? – The police response l to missing and absent children Children's voices research report l National Child Protection Inspection l l l l l National Child Protection Inspection Post-Inspection l l l Review National Child Protection Re-Inspection l l The tri-service review of the Joint Emergency l l l l l l l l l l l Services Interoperability Principles (JESIP) Specialistinspections Use of the Police National Computer (PNC) by l non-police organisations Royal Gibraltar Police: An inspection of leadership, l crime management, demand and resources An inspection of the UK International Crime Bureau – l A function of the National Crime Agency An inspection of the National Crime Agency's progress against outstanding recommendations l made by HMIC and areas for improvement Crime data integrity inspection l l l l l l l Public views of policing in England and Wales l

An inspection of the Royal Navy Police in respect l of its investigations Best Use of Stop and Search revisit l l l l l l l l l l l l l Royal Air Force Police – An inspection of the leadership of the Royal Air Force Police in relation l to its investigations ‘Time to listen' – a joined up response to child sexual l l l l l l exploitation and missing children

An inspection of HMRC's case selection processes l for criminal and civil investigation of tax evasion

inspections Joint inspection of police custody l l l l l l l l l l l l l l l

Joint Joint targeted area inspection of the multi-agency l l l l l l l l l response to abuse and neglect Joint inspection of youth offending work l l l l l l

Delivering justice in a digital age l l l l l l

124 police forces Territorial of England and Wales and Somerset Avon Bedfordshire Cambridgeshire Cheshire City of London Cleveland Cumbria Derbyshire Devon and Cornwall Dorset Durham Dyfed-Powys Essex Gloucestershire Manchester Greater Gwent Hampshire Hertfordshire Humberside Kent Lancashire Leicestershire Lincolnshire Merseyside Metropolitan Norfolk Northamptonshire Northumbria North Wales North Yorkshire Nottinghamshire South Wales South Yorkshire Staffordshire Suffolk Surrey Sussex Thames Valley Warwickshire Mercia West Midlands West Yorkshire West Wiltshire and agencies Other police forces Force Border Police British Transport Civil Nuclear Constabulary National Crime Agency Police Service of Northern Ireland Royal Gibraltar Police Royal Navy Police Police Royal Air Force Thematic and other reports police forces/agencies Various Non-inspection reports police forces/agencies Various

PEEL: Police effectiveness 2015 (vulnerability) revisit l l l l PEEL: Police effectiveness (vulnerability) – l

An inspection of HMRC's case selection processes l for criminal and civil investigation of tax evasion inspections Joint inspection of police custody l l l l l l l l l l l l l l l

Joint Joint targeted area inspection of the multi-agency l l l l l l l l l response to abuse and neglect Joint inspection of youth offending work l l l l l l

Delivering justice in a digital age l l l l l l

125 Promoting improvements in policing to make everyone safer

Her Majesty’s Inspectorate of Constabulary (HMIC) independently assesses police forces and policing across activity from neighbourhood teams to serious crime and the fight against terrorism – in the public interest. In preparing our reports, we ask the questions which citizens would ask, and publish the answers in accessible form, using our expertise to interpret the evidence. We provide authoritative information to allow the public to compare the performance of their force against others, and our evidence is used to bring about improvements in the service to the public. Promoting improvements in policing to make everyone safer

Her Majesty’s Inspectorate of Constabulary 6th floor Globe House 89 Eccleston Square London SW1V 1PN www.justiceinspectorates.gov.uk/hmic/