Written evidence submitted by Police Service of Northern Ireland,
relating to Policing and Security in Northern Ireland inquiry
[PSNI0022]

Introduction

The Northern Ireland Affairs Committee has issued a call for evidence and is currently accepting written submissions for a new inquiry on “Policing and Security in Northern Ireland”. This submission has been provided in line with those terms of reference.

This submission provides an opening summary and sets out the key Policing and Security challenges identified by the Police Service of Northern Ireland (PSNI). We then address each of the committee’s questions in more detail.

The committee will hopefully understand that we have not passed significant comment on areas where it would not be appropriate for us to do so, such as the effectiveness of key criminal justice partners.

The Police Service of Northern Ireland wish to thank the Committee for their continued interest in Policing in Northern Ireland.  The Chief Constable, Jon Boutcher, welcomed this inquiry at the November 2025 meeting of the Northern Ireland Policing Board. He told the Board, “As we approach the 25th Anniversary of the PSNI, I believe this inquiry is a welcome chance to take stock, scrutinise how far policing has come, and where it still needs to go. It is also a crucial opportunity to challenge aspects of how policing is funded here”.

Executive Summary

The remarkable transformation of Policing in Northern Ireland has been one of the major success stories of Northern Ireland’s peace process. Nearly 25 years on, the Patten report – now substantially realised - still underpins and sets the strategy for policing today. The PSNI operates within the robust governance, accountability, and human-rights framework envisaged by Patten.

However, critical failures in funding decisions taken since 2010 have driven policing from an era of optimism, hopefulness and proactivity in policing a society emerging from conflict, to a police service that is shrinking, increasingly reactive and with a workforce that is exhausted.

The principle challenge facing the Police Service of Northern Ireland is therefore one of underfunding by both the Stormont and Westminster governments. The overall budget position is precarious, with significant funding gaps, record low officer and staff numbers, overstretched services, annual rather than multi-year budgets and ongoing uncertainty over funding in future years. The stark reality is that the PSNI is now structurally underfunded and officer numbers are dangerously low. 

The consequences of reduced officer numbers are already visible across the Service. In short, less police means less policing. The Police Service’s capacity to deliver services at the level expected by the public and required to maintain confidence and reassurance across Northern Ireland’s communities has been significantly undermined.

In some ways the PSNI has been a victim of its own success. In successfully transforming itself, driving down the terrorist threat, consistently doing more with less to keep Northern Ireland safe, it is no longer seen as a resourcing priority by political leaders. The Chief Constable has repeatedly voiced his serious concerns but these have largely gone unheeded.

Other policing challenges are closely interlinked with the issue of funding. Twenty-four years on from the Patten reforms, a failure to resolve issues of legacy continue to impact policing. The significant investigative and legal cost of legacy investigations, inquiries and inquests falls on the PSNI to the detriment of policing today. Successive plans by successive Westminster governments have failed to understand or address this key issue.

PSNI officers and staff continue to live and work under the Substantial threat posed by small groups of violent dissident republicans. The trajectory of the residual terrorist threat in Northern Ireland is undoubtedly positive but challenges for PSNI, unique on these Islands, remain. These will require constant vigilance, significant operational activity and additional security funding for some years to come.

This ever-present terrorist threat, alongside society’s failure to provide answers to those families who lost loved ones during the “Troubles”, remain significant barriers to the PSNI’s ability to attract officers from all communities. Consequently, the PSNI is struggling to build a workforce representative of the communities it serves.

Taken together, these challenges create a risk that some of that incredible progress of Patten could be undone in the coming years. It remains world class but the Police Service which Northern Ireland relies on to tackle today’s threats - violence against women and girls and hate crime - is smaller, less responsive and less accessible than at any time in its history.

Headlines and main challenges

Q. What are the main challenges facing policing and security in Northern Ireland today? 

Challenge 1: Funding and Officer Numbers

The foremost challenge facing policing in Northern Ireland today is that of insufficient funding. Since the devolution of Policing and Justice in 2010, chronic underfunding by the Northern Ireland Executive, and by Westminster in respect of legacy matters, has left the PSNI in a precarious situation.

Since 2010, the Northern Ireland Executive has consistently prioritised funding Health and Education, with Policing and Justice left behind.  Funding levels for the PSNI have largely remained static over this 15-year period, with funding for Health almost doubling to £8.4bn and Education up by 25% to £3.3bn. Data from the Office of National Statistics shows that in 2010 Police funding accounted for 3.8% of total NI Public Expenditure, this fell to just 2.4% in 2023.

As a result, in real terms, the impact of inflation means that PSNI has now 40% less resources than at the point of devolution. This is at a time when policing is facing increased demand (including in non-crime areas such as mental health), more complex crime, and an enduring terrorist and paramilitary threat to our officers and communities.

Officer numbers, recruitment and the recovery business case

Because of shrinking budgets, the PSNI had previously been forced to slow and pause recruitment of officers and staff. Police officer numbers are now at their lowest level since the Police Service was established 24 years ago. At circa 6,250 officers, this is substantially lower than the 7,500 officers set out in the Patten Report[1]. The Chief Constable has been very clear with the public that the current level is inadequate and dangerously low.

Recruitment recommenced in 2025 but police officer numbers remain well below the level required to deliver the policing service Northern Ireland communities’ need. Recruitment has increased to 51 Student Officers each month; however, it will take time for students to complete training and join frontline duties. Rebuilding capacity and resilience will progress gradually and is barely keeping pace with numbers leaving the Service.

To address this PSNI has developed a Workforce Recovery Plan to increase officer numbers towards 7,000 and police staff to 2,572 over the next three years. There have been positive indications of financial support in the forthcoming Monitoring Round towards the Recovery Business Case of £7m for year one, but for now even this recruitment continues at risk.

Structural issues with funding

There are also significant structural weaknesses with how PSNI is funded. In Northern Ireland Policing continues to be allocated an annual settlement only, often notified after the start of the financial year.

Indeed, in the last financial year, PSNI could only break even with 15% or £121m additional funding secured by way of in-year Monitoring Rounds and again entered this year with a projected deficit of £21m.  This lack a consolidated and multi-year settlement has a negative impact on long-term planning, reform and transformation.

Unlike their counterparts in England and Wales, the PSNI has no ability to raise revenue (it does not have access to a policing precept), the ability to maintain reserves, carry forward or borrow to invest. This latter situation is not suitable for a demand led emergency service. PSNI has consistently lobbied for a review of its financial structures.

In addition to the main grant settlement, the Police Service is reliant on a disparate range of distinct funding streams, a number of which are time limited. These include Additional Security Funding and Paramilitary Crime Task Force Funding. This is not a sustainable way to fund the Police Service.

The Impact of funding pressures

The Chief Constable has been candid with the public and politicians about the precarious nature of the PSNI funding position. His concerns about the impact of these pressures have been borne out by recent independent reports from various oversight bodies.

The consequences of reduced officer numbers are already visible across the Service. In short, less police means less policing. Resourcing challenges are significantly affecting the Police Service’s capacity to deliver services at the level expected by the public and required to maintain confidence and reassurance across Northern Ireland’s communities.

The April 2025 Police Effectiveness and Efficiency inspection[2] of PSNI by His Majesty’s Inspectorate of Constabulary, Fire & Rescue Services (HMRCFRS) confirmed the harsh realities of long term underfunding. It highlighted particular concerns about reduced neighbourhood visibility, degraded offender management capacity, delayed safeguarding interventions and unacceptable backlogs in areas critical to public protection. These findings were deeply concerning but not unexpected.

The Patten reforms made clear the need to put policing with the Community at the heart of the Police Service and the importance of Neighbourhood Policing in building trust and confidence in communities is acutely understood by the PSNI. Unfortunately, the PSNI’s Neighbourhood policing function, central to community confidence, crime prevention and the flow of local intelligence is shrinking.

Under its previous Neighbourhood Police Team (NPT) model the Police Service had planned for 952 neighbourhood officers; it currently has c450. NPTs have been amalgamated and a commitment to provide 16-hour daily NPT coverage has had to be removed. In some parts of Northern Ireland neighbourhood policing exists in name only.

Reduced staffing levels mean that non-emergency calls to the PSNI are taking longer to answer and at times the public waiting longer for officers to attend non-emergency incidents.

Other crucial specialist roles have been affected. Despite increasing numbers of road deaths, there is a reduced proactive police presence on Northern Ireland’s roads. A reduction in the number of PSNI Tactical Support Groups from 13 to 11 has had a significant impact on the PSNI’s ability to respond to sustained protest and public disorder. Consequently, PSNI has been increasingly reliant on mutual aid from GB Police services as was the case with serious racially motivated disorder in August 2024 and June 2025.

The PSNI’s ability to investigate crime is being reduced and slowed. Investigations are taking longer to conclude, delaying justice for victims and reducing satisfaction, particularly in cases involving vulnerability and high harm. National guidance from the College of Policing recommends a major incident team (MIT) should carry a maximum of six investigations at any time. Resourcing pressures have caused a reduction in the number of MITs leading to a PSNI average of approximately 20 cases per MIT.

Demand related to the management of dangerous offenders has seen a substantial year‑on‑year increase; our officer to offender ratio remains below recommended levels[3], increasing workloads and reducing our ability to monitor some of the most dangerous individuals, heightening the risk of reoffending.

The serious harm that can occur when the Police Service lack sufficient investigative resource to meet demand was also made clear in a recent Police Ombudsman of Northern Ireland (PONI) report into the investigation into prolific child sex offender Alexander McCartney[4].  PONI said it was clear that “PSNI teams tasked with detecting and investigating online child sexual abuse were under-resourced and under pressure, significantly compromising their ability to detect and prosecute offenders and keep children safe”. PONI also found that there were insufficient police resources to effectively manage McCartney’s bail conditions. The PSNI self-referred this case to PONI.

Impact on PSNI workforce

The PSNI’s workforce is its greatest asset. In the face of relentless resource pressure and an ever-present terrorist threat, PSNI officers and staff continue to deliver strong results for the public. They continue to tackle terrorism, disrupt organised crime, bring dangerous offenders before the courts and safeguard vulnerable victims. They continue to respond to hate crime and, all too often, investigate fatal collisions on our roads.

However, the Chief Constable has told the Northern Ireland Policing Board that as a result of trying to do more with less, the PSNI workforce is exhausted. PSNI sickness levels are significantly higher than other Police Services in the UK and increasing numbers of officers are being forced to retire each year on grounds of ill health. There is a clear correlation between the reduction in workforce numbers and rising levels of sickness among those left.

Increasing welfare challenges arising from increasing complexity of demand and a reducing headcount has inevitably led to heightened stress and fatigue among staff. This situation not only affects physical health but has also manifested in a significant increase in psychological and stress-related conditions. 

Challenge 2: Dealing with the legacy of the past

Legacy is connected to a multitude of issues today in Northern Ireland including societal wellbeing, economic strength and opportunity, UK and Irish governmental relationships and the trust and confidence of the public towards both governments, the devolved assembly in NI and the PSNI.

The New Beginning to Policing, as set out in the Patten report, did not foresee the PSNI being required to reinvestigate, account for, and make disclosure on thousands of very serious crimes that occurred from 1968 to 1998. The new police service was to be forward looking, reform based, community policing centered, and representative of the entire community.

However, with no other mechanism available, and as the succeeding organisation to the Royal Ulster Constabulary, the PSNI has had to deal with those legacy issues relating to the ‘Troubles’. Not only did the new beginning for policing in Northern Ireland inherit the Legacy of the ‘Troubles’, but it was never properly structured or funded to address it. The Patten funding did not extend to the creation of any architecture to support any of the legacy processes that have evolved post peace process and no dedicated and sustained funding has been provided.

The PSNI deliver operational and organisational activity relating to a number of statutory obligations within our Legacy related responsibilities. Failure to meet any of these obligations results in loss of public and stakeholder confidence, significant reputational damage, and further litigation with associated financial costs.

During regular engagement with communities and in particular the Catholic, Nationalist and Republican (CNR) community it is made clear that the failure to satisfactorily address the legacy of the past is a significant factor undermining community support for policing. Alongside the remaining threat from terrorism, perceptions about the PSNI’s role in Legacy likely represent one of the most significant barriers to attracting increased numbers of officers from a Catholic background.

The cost of legacy

Following the announcement of the formation of the Legacy Commission in the Northern Ireland Troubles Bill, PSNI publicly welcomed any progress that effectively addresses legacy related issues. We are all too aware of the hurt and suffering felt by families of those murdered and injured during the Troubles. Through personal experience of investigating such matters, the Chief Constable knows all too well that past failures to address legacy has resulted in transgenerational trauma and significant damage in public trust and confidence towards the police.

Whilst welcoming appropriate measures to address the past, we have significant concerns about how such legislation will potentially affect the PSNI. Currently, legacy investigations cost the PSNI £24m a year. This cost includes the additional demand of servicing requests from the Independent Commission for Reconciliation and Information Recovery (ICRIR), for which we receive no funding.

The proposed changes associated with the reformed Legacy Commission will inevitably increase demand and require further resources on the part of the PSNI. Legacy costs come out of the core policing budget which is provided for policing Northern Ireland today. It is not right that PSNI have to use that budget for legacy but despite requests no additional funding has been provided.

For the proposed changes to work, and to achieve the central goal of reconciliation, additional funding and resources for policing are essential. In the absence of support being provided to the PSNI to disclose information to the Legacy Commission, the entire process is likely to fail. 

We are strongly of the view that the Legacy Commission should have direct and unfettered access to records without any requirement for the organisation holding the records assessing the material. The overriding priority should be the proper disclosure of information in these cases to families of victims.

Litigation, inquiries and inquests

The PSNI still maintains a legal requirement to review all murder cases that do not fall within the definitions of ‘Troubles’ related deaths. We continue to review 195 cases[5] and at current rates this work is estimated to take a further 10 years.

PSNI currently faces in the region of 1,000 legacy related claims[6] and repeal of Section 43 of the Legacy Act likely means further claims are likely.

Since 2018, the PSNI has resolved around 30 high value claims to the value of approximately £25m, £7.3m in compensation claims awards and £17.7m in plaintiff legal fees. There has never been any specific funding provided to PSNI to manage and pay compensation relating to the ‘Troubles’ and liabilities of the RUC GC. The current approach in managing these claims is not cost effective. It would not be possible for PSNI to take a different approach without an effective funding stream to adequately resource the research capability followed by an ability to make sensible offers of compensation at the earliest opportunity.

Major concurrent public inquiries (The Omagh Bomb, Pat Finucane, and potentially Sean Brown) will carry substantial costs to PSNI with no additional funding. The Omagh Bomb inquiry is estimated to cost in the region of £15M and Pat Finucane inquiry over £20M. Changes allowing previously halted inquests to proceed and expanded disclosure/inquisitorial powers will not reduce PSNI resource needs; the Bill provides no funding for these changes.

Challenge 3: The Security Situation

The overall responsibility for national security and Northern Ireland-related Terrorism (NIRT) remains with the UK Government. The PSNI works collaboratively with the Government, intelligence agencies and other statutory partners to address this threat.

Although the number of terrorist attacks in Northern Ireland has decreased in recent years, the threat level in Northern Ireland remains Substantial, which means an attack is currently likely. Police officers remain the primary target of the violent dissident republican groups who comprise this threat. Dissident republicans continue to demonstrate the intent and the capability to target PSNI personnel and premises.  

The ongoing Substantial threat has a significant impact on how the PSNI carries out every day policing. It also requires the retention of a specialist counter terrorist capability in order to suppress the threat. Extra vigilance and measures unique to Northern Ireland bring additional burdens to staff, infrastructure and resources. For example, all PSNI officers are armed with personal protection firearms (bringing requirements for training and equipment) and much of the PSNI estate and vehicle fleet is still fortified or armoured driving additional spend and staffing requirements.

In March 2024, the Northern Irish Related Terrorism (NIRT) Threat Level in Northern Ireland was reduced from Severe (an attack is highly likely) to Substantial. It had previously been lowered to Substantial in March 2022, having been Severe since threat levels were first published in 2010. It was increased again for a short period following the attempted murder of Detective Chief Inspector John Caldwell in Omagh in February 2023[7].

Any reduction in the threat is wholeheartedly welcomed by PSNI but in practical terms, there is no difference in the operational policing response during periods of Severe or Substantial threat. It will take years of continued progress in driving down the threat and degrading terrorist capabilities before the threat reduces to an extent where the Police Service is able to make significant changes to how it operates to keep people in Northern Ireland safe.

Challenge 4: Workforce representativeness

Closely linked to chronic underfunding, legacy of the past and the security situation is the ability of the PSNI to attract and retain student officers and staff from all communities in Northern Ireland.

It is vital to the legitimacy of policing that the staff and officers who comprise any police service are representative of the communities they serve. This was a key driver of the Patten reforms and remains a key element of the PSNI’s Policing Plan today.

Many of the Patten reforms focused on encouraging those of Catholic community background to join the Police Service. Officers from that community still face very real and significant barriers to joining the PSNI today. Despite significant outreach and engagement, the percentage of applicants from a Catholic community background has remained stubbornly at an average of approximately 30%.

The demographics of Northern Ireland are also changing. It is crucial for confidence among new and ethnic minority communities that the Police Service reflects this diversity and addresses disproportionality in recruitment from those communities. Our Race and Ethnicity Action Plan (published in August 2025) includes a commitment to improve recruitment, retention and progression of people from ethnic minority communities within policing.

There has been some marginal progress in attracting female applicants and more notable increases when considering the sexual orientation, ethnicity and disabilities of applicant. However, we continue to see a drop in the number applicants in these categories who are successfully appointed.

We therefore have significant ongoing concerns that a range of factors some of which are outside of PSNI control including resource pressures, the ongoing security threat and the generational impact of legacy issues are negatively affecting our ability to attract and retain staff from all communities.

Progress and Community perception of Policing

Q. To what extent have the objectives and aspirations of the Patten Review on policing been realised? 

In spite of the growing challenges facing policing it is important to reflect that the objectives and aspirations of the Patten Review have been substantially realised. The ethos, culture and operational practice of modern policing in Northern Ireland now reflect Patten’s vision: a rights-based, representative, accountable and community-focused police service. The PSNI operates within the robust governance, accountability, and human-rights framework envisaged by Patten, and is recognised as one of the most transparent and externally scrutinised police services in the UK.

The Patten reforms established a rights-based, community-focused and representative service accountable to independent oversight through the Northern Ireland Policing Board and the Police Ombudsman for Northern Ireland. These bodies, together with internal ethics, audit and inspection mechanisms, provide policing with a transparent, devolved governance model.

Whilst the Patten report is now 26 years old, its recommendations still resonate strongly with policing in Northern Ireland. It has, and continues to underpin policing today and informs transformative reviews including Service First, the Review of Public Administration (RPA), Priority Based Resourcing (PBR) as well as the current Transformation Programme Strategies and the Recovery Business Case.

An assessment of the status of the Patten Recommendations shows significant implementation and embedding. Of the 175 recommendations, the vast majority (over 90%) are complete or fully embedded within current legislation, structures, and operating practice. However, resource constraints are impacting services, sustainability and placing some of the recommendations previously achieved such as the Neighbourhood Model or Community Based Policing, at risk.

Annex 1 to this report sets out those recommendations that are ongoing or not yet fully complete. These relate mainly to infrastructure, training, and resource-dependent initiatives rather than gaps in governance or accountability.

Q. What are the current community perceptions of policing in Northern Ireland and how have these evolved since 2001? 

Several Northern Ireland agencies conduct regular public surveys[8] assessing the attitudes and experiences of people in Northern Ireland concerning policing, crime and the wider criminal justice system. These provide a broad view of public confidence in policing, perceptions of safety and the experience of victims in Northern Ireland.

Taken together, the most recent surveys suggest that a majority of people in Northern Ireland generally feel safe in their communities, confident in policing and treated fairly by the PSNI.

Recorded crime statistics regularly show that Northern ireland is one of the safest parts of the UK in which to live. This is reflected in survey results with nine out of ten people feeling safe in their homes and eight out of ten feeling safe in their town centre.  92% of people responding to the 2025 Policing Plan survey felt confident in contacting PSNI and 66% felt Police treated the public fairly.

 

In general, survey results suggest overall confidence in Policing has increased since the early 2000s and has remained broadly stable (around 80% of respondants) since the mid 2010s.

While this broad picture is a positive one, we are not complacent. It is clear that opinions on policing diminish when looking solely at victims of crime[9] and concerningly, fewer people are reporting crimes now than in previous years.

There are also clear differences in perceptions among people from different community backgrounds. In general, those from a Catholic / Nationalist / Republican (CNR) background consistantly have less positive views of PSNI performance engagement and representativeness than those from a Protestant / Unionist / Loyalist (PUL) background.

The apparent stability in public confidence levels in recent years, also masks frequent challenges with how some of Northern Ireland’s communities perceive policing. One of the persistant challenges of policing a post conflict society is the frequent, often strongly felt, perception in both unionist and nationalist communities, that PSNI activity is biased against their communities. The accusation of “two tier” policing is one regularly leveled at the PSNI by political and community leaders following contentious policing operations.

Confidence among Northern Ireland’s Ethnic Minority community was badly damaged by how the Service handled Black Lives Matter protests in June 2020 and decisions not to participate in the Belfast Pride parade in uniform undermined the relationship between PSNI and the LGBTQIA+ community in June 2023.

The PSNI has worked very hard to rebuild trust and confidence with all of these communities. We are also very clear of the importance of challenging any perceptions of two tier policing. The PSNI is apolitical and serves all communities impartially and without fear or favour. Regular engagement with all communities through local officers, senior leaders and our Strategic Community Engagement Team is used to maintain confidence and build understanding.

Q. What are the main challenges in relation to recruitment and support for the PSNI today?

PSNI is a workforce like no other profession or public service.  It is made up of dedicated, selfless and diversely talented people.  As a member of Team PSNI, in choosing to serve others, our workforce has committed themselves and their families to a life of public service in the face of unique challenges and threat.

Within the Northern Ireland Policing Plan[10], it is recognised that a representative police service is more likely to understand the communities it serves and as a result, engage more effectively with members of these communities, enhancing the legitimacy of policing.

Community perceptions of policing and recruitment are mutually reinforcing. Perceptions of bias, under‑representation and high‑profile controversies are all factors which can impact and deter applications from particular communities, while visible shortfalls in workforce representativeness reinforce those same perceptions.

Workforce Representativeness

The Policing Plan focuses on the representativeness of the PSNI across ranks, grades and departments by gender, community background, ethnic origin, disability, sexual orientation and in respect of recruitment, socio-economic background. This indicator aims to achieve a more representative police service, where people can identify with the police officers and police staff working for PSNI and enhance the attractiveness of PSNI as an employer of choice.

The data analysis below shows the representation of police officers and police staff throughout the 10-year period 2015 - 2025.  Catholic representation for police officers and police staff has remained largely static with a notable increase in the percentage of female police officers.

Student Officer Recruitment Campaigns

Throughout the post-Patten Student Officer recruitment campaigns from 2013 – 2025 (data below refers) the percentage of applicants from a Catholic community background has remained at an average of circa 30%, despite significant outreach and engagement activity.

There has been some marginal progress in attracting females, with more notable increases when considering the sexual orientation, ethnicity and disabilities recorded by applicants. 

There is, however, a reduction from applicant rate to appointment rate with an average of c21% Catholic and c30% female appointees. Analysis of each stage of the recruitment process has not highlighted disproportionality at any particular stage, rather a gradual erosion across all stages.

It is also recognised that there are challenges in attracting candidates from across all geographies. In particular, lower than would be statistically expected applications were received from Mid Ulster, Derry City & Strabane and Newry & Mourne council areas within our 2025 recruitment campaign.

Barriers to Recruitment 

In 2016, research was commissioned to examine barriers within our Student Officer recruitment process. Whilst primarily considering barriers within the Catholic community, the research also took account of a range of other factors including gender, age, socio-economic background and nationality. This research informed our understanding of barriers facing under-represented groups and as a result, a number of changes were introduced to our recruitment process. These include: the development of a new advertising strategy; the redesign of the Join PSNI website; the development of an online Initial Selection Test; the review of all stages of the recruitment process in order to reduce timescales and improve the style of communication with applicants; and, the maximisation of opportunities for engagement with under-represented groups. A number of the barriers highlighted within this report continue to have an impact on the applications received from under-represented communities, particularly the Catholic community.

Student Officer Remuneration

In recent years, PSNI achieved approval to increase the starting salary for Student Officers to £29,907 which when combined with the Northern Ireland Transitional Allowance equates to a starting salary of c£34,000. Ensuring that the starting salary continues to reflect the demands of the police officer role and the security implications for policing in Northern Ireland is critically important given ongoing increases in the cost of living and the competitive external job market within Northern Ireland.

Impact of attrition rate / demographic on representativeness

PSNI continues to experience a high level of stability within our workforce with a current attrition rate of 7% for police officers and 8% for police staff.  It should be noted that 37% of police officer leavers were Catholic across the last twelve months which shows that the higher volume of Catholic police officers recruited during the Patten period are reaching the service point where they will start to leave in larger numbers. In the next 5 – 10 years, it is anticipated that this will have a more significant impact on the overall community background representation of the organisation as Catholic appointment rates have not kept pace with the number of leavers. The main reason recorded for leaving is ill health retirement followed by age retirement.

Improving representativeness across grades and ranks in service

PSNI is also committed to improving representativeness at our various grades and ranks and within our specialist departments through our programme of internal selection and promotion.  Whilst there continues to be representation challenges at our senior ranks and grades, there has been significant improvements within the last five years. For example, when considering our Chief Inspector rank, 34% are now female and 32% are Catholic. We continue to invest in our leadership strategy to facilitate learning and development, coaching and mentoring opportunities, particularly focused on those from under-represented groups.

Wider impacts on perception of / attractiveness of PSNI as an Employer of Choice

• Northern Ireland employment rate – similar to the challenges facing all employers, PSNI is seeking to attract and appoint high quality candidates within a very competitive external job market. Department for the Economy labour market statistics for October 2025 show a Northern Ireland unemployment rate of 2.6%. PSNI is therefore competing against a variety of other professions contributing to a reduction in the number of applications received and an increase in withdrawals from our recent recruitment campaigns.

• Level of scrutiny on policing in Northern Ireland – whilst it is accepted that policing must be held to a high standard of public account, the intense focus and scrutiny on policing often leads to a negative perception within Northern Ireland society. Continued media attention regarding application and appointment rates from under-represented groups, sickness and morale of police officers, legacy cases and the data breach of 2023 inevitably have a negative impact on the positioning of policing as a career opportunity, particularly within under-represented communities.

• Continuing security threat level – police officers and police staff continue to operate within the context of a ‘substantial’ threat level. This threat has an ongoing impact on the perception of PSNI as an employer of choice, particularly with potential applicants unfamiliar with policing.

• Financial constraints – budgetary pressures in recent years have resulted in a reduced / paused programme of recruitment. External appointments are the primary mechanism for increasing the overall representation of the organisation; therefore, there has been a reduced opportunity to make significant progress in improving our representativeness in recent years. 

Finance issues and oversight

Q. Are the PSNI’s funding arrangements, accountability mechanisms, and relationship with the Department of Justice fit for purpose? 

Policing accounts for approximately 65% of the Department for Justice (DOJ) budget.  The same funding restrictions which have impacted PSNI budgets since 2010 have also impacted DOJ.  The Justice Minister has repeatedly made clear her support for policing and the Department has approved our Recovery Business Case to regrow police officer and staff numbers. However, as with another recently approved business case to settle a significant Data Breach claim, the Department cannot confirm affordability and is not in a position to provide the funding. This is an invidious position for both the Department and PSNI.

The financial pressures on DOJ and Police are reflected across the whole criminal justice system, which is in need of modernisation and reform. Current timescales for criminal cases moving through the system are too long. Delays in the system are unsustainable and are failing victims, witnesses and the accused as well as damaging the confidence of the wider community. 

The Policing Board

A recent review of the Northern Ireland Policing Board concluded that there was scope to improve its effectiveness and standing and that it could do more to be more strategic and corporate – including focusing on providing greater advocacy and support for policing alongside its accountability responsibilities. The Chief Constable welcomed the review and remains committed to working alongside the Policing Board to address relevant recommendations.

Q. What is the purpose and impact of the UK Government’s ring-fenced Additional Security Funding for Northern Ireland? 

Since 2011, Additional Security Funding (ASF) has been provided to PSNI to mitigate the national security threat in Northern Ireland.  Between 2011 and 2024, ASF use was specific to the threat posed by Northern Ireland-Related Terrorism (NIRT), however from 2025/26 ASF will be broadened to address all national security threats.  This reflects the changing nature of the national security threat in Northern Ireland which now includes mitigating against, preparing for and countering Extreme Right Wing Terrorism (ERWT), Extreme Islamic Terrorism (EIT) and lone actor / self-initiated terrorists (LASIT). 

Whilst ASF was previously unique within UK policing, this broadening of its use brings it closer to the Home Office Counter-Terrorism grant which funds Counter-Terrorism Policing (CTP) in England & Wales.  The Home Office Counter-Terrorism grant is not currently accessible to the Police Service of Northern Ireland.

ASF is currently used to fund the following:

1. PSNI’s Operational Capability

Operational Capability is a major area of ASF spending, it enhances the ability of the PSNI to undertake overt security patrolling, intelligence gathering, terrorism investigations, and to conduct search and specialist national security operations.

2. Close Protection

Close Protection is the provision of Authorised Firearm Officers (AFOs) assigned to protected persons; typically senior politicians, judiciary and members of the UK Government and Northern Ireland Executive.  Close Protection is demand-led and based on a threat and risk assessment for each individual. This assessment is carried out by PSNI but informed by the Joint Terrorism Analysis Centre (JTAC).  During the financial year 2024/25, there was a requirement for the PSNI to provide close protection to 74 protected persons, and close protection support to 47 visits in Northern Ireland by protected persons.

Close Protection is a significant drain on PSNI resources and we have concerns about our ability to deliver these services on a daily basis and for future planned events including VIP visits. A new Close Protection Policy is in the process of being finalised. 

3. Police Service site security

The PSNI estate remains a key target for violent dissident republicans, and there continues to be a substantial threat to police buildings.  To mitigate the threat, ASF provides for additional security measures at sites across Northern Ireland, including providing armed police officers or security guards at some locations, enhanced technical security measures at many stations and mobile police patrols at times of heightened risk.  ASF has been essential in enhancing the ability of the Police Service to respond to the continued threat from terrorism by enabling critical investments in station security and frontline policing deployment.

4. Covert policing and specialist capabilities

ASF enhances the capability of the PSNI’s Specialist Operations Branch (SOB) to provide conventional surveillance for all national security operations in Northern Ireland. In 2024/25, there were over 3,200 deployments by SOB to support national security operations in Northern Ireland.

These operations frequently require short-notice, prolonged deployment of specialist officers in significant numbers.  In 2024, this incurred £1.7m in police overtime alone.  SOB is also responsible for facilitating technical and aerial surveillance operations in support of partners (notably HMRC and NCA), including the provision of firearms support.  ASF supports interoperability with wider CT Policing in the UK through funding for training, exercising and ongoing engagement with national CT structures.

5. Terrorism Investigations

ASF continues to underpin the investigative response, offender management, forensics and intelligence gathering in relation to terrorism.  Approximately two thirds of posts within the Police Service’s Terrorism Investigation Unit (TIU) are funded by ASF.  These investigations have a crucial suppressive effect on the capability and intent of terrorists, producing short-term disruption and long-term degradation of terrorist capability.  At the same time, this provides opportunities to increase the ‘cost of association’ with proscribed organisations and to discredit their activities in the wider community.

A number of significant investigations are currently before the courts in Northern Ireland including the attempted murder of police with an Improvised Explosive Device (IED) in 2022 at Strabane.  Court cases are also underway in relation possession of parts of the PSNI data breach material and the attempted murder of DCI John Caldwell.

In 2024/25, the investigations led by TIU have led to 102 searches, 60 people arrested under terrorism legislation, the recovery of 18 firearms, approximately 1,000 rounds of ammunition and more than 20 explosive devices.

The Terrorist Offender Management Unit (TOMU) manages over 50 terrorist offenders and has expanded into the supervision of a number of asset freeze case in partnership with HM Treasury for the first time in Northern Ireland, with other cases anticipated to follow.

Working with others and across borders

Q. How effective is the National Crime Agency in tackling organised crime and paramilitary activity in Northern Ireland, working in cooperation with the PSNI and other agencies?

The National Crime Agency (NCA) works in close partnership with the Police Service, targeting the highest level of Organised Crime Groups (OCGs) and paramilitary groups within Northern Ireland.  The NCA brings a range of benefits which enhance policing operations, in particular additional capability and capacity of asset denial powers.  Sustained significant disruptions in this area have drawn positive media coverage and improved public confidence in law enforcement. 

The NCA has lowered its tasking thresholds to enable more collaborative working with the Police Service and HM Revenue & Customs within the Paramilitary Crime Task Force (PCTF).  A major focus of both the NCA and the Police Service cooperation is the targeting of transnational drug related criminality, as both paramilitary and conventional organised crime groups are heavily involved in both importation and distribution of drugs.

There are, however, some limitations to the effectiveness of the relationship. Currently powers contained in the Terrorism Act 2000 do not extend to the NCA. Additionally due to the discreet nature of some NCA investigations, there is requirement for significant PSNI investigative and logistical support to progress operations and executive action.

Q. How effective is PSNI and Garda cooperation on cross-border policing and security matters?  

An Garda Síochána (AGS) regularly work in partnership with the PSNI.  There is strong cross-border cooperation through formal and informal working relationships.  Formally, the 2015 Fresh Start Agreement mandated the formation of the Joint Agency Task Force (JATF), bringing together law enforcement agencies from Northern Ireland and Ireland, concentrating operational activity in six thematic areas (drugs, modern slavery and human trafficking, rural crime, financial crime, excise fraud, organised immigration crime).

JATF activity is overseen by an operations coordination group and a strategic oversight group, producing a biannual report of operational activity.  There is bilateral Ministerial oversight of the JATF from respective governments.

In December 2024 the Chief Constable and AGS Commissioner launched the third Cross Border Policing Strategy. The strategy serves as an overarching statement of intent by both Services to deliver upon shared policing objectives to keeping people safe on the island of Ireland. Its strategic focus is: tackling crime and preventing harm; roads policing and safety; community policing; and major emergency management.

The limitations of cross-border cooperation are the distinct legislative jurisdictions, which are similar in some areas but entirely separate in others.  This makes consolidated performance data extremely difficult to obtain since each jurisdiction has separate and incompatible recording metrics. 

At the organisational level, AGS are unique in their tripartite function (policing, border security, national crime) which in Northern Ireland are responsibilities across four law enforcement agencies, namely, the Police Service, UK Border Force, Home Office Immigration Enforcement and the National Crime Agency.  This creates both challenges and opportunities for law enforcement and criminals alike.  Despite these differences, there is close operational and strategic cooperation across the relevant agencies and across the border.

Q. How effective is PSNI co-ordination with the Home Office and other agencies in policing the Common Travel Area? 

Home Office (specifically Home Office Immigration Enforcement - HOIE) work in partnership with the PSNI.  HOIE is supported by UK Border Force under the Organised Crime Task Force (OCTF) arrangements.  OCTF provides a close working relationship for all three agencies to address strategic trends and tactical operations. 

The Police Service recently tasked the National Police Chiefs’ Council (NPCC) to carry out a peer review of the PSNI on the subject of Organised Immigration Crime, which is currently ongoing.

Regarding abuse of the Common Travel Area (CTA) more broadly, the lack of any border infrastructure means that free movement across the Northern Ireland / Ireland border, which is uniquely an international land border between the United Kingdom and the European Union. This is attractive to those who seek to enter either jurisdiction in a clandestine manner. The Common Travel Area is a complex, multijurisdictional area to police and there are unique challenges as a result.

There are clear demarcation lines between the responsibilities of the Police Service and HOIE, some of which may not be readily apparent to communities and some commentators.  The Police Service is duty bound to support victims and ensure that no punitive action is taken in cases where a person is a victim of crime. 

Paramilitaries and transition

Paramilitary activity in Northern Ireland, whilst greatly reduced, continues to cause significant harm to local communities. Paramilitary groups are currently engaged in a wide range of criminality from drug importation, firearms offences, human trafficking and coercive community control. The Police Service is committed to working alongside partners in NCA and HMRC, and with communities to tackle this kind of criminality.

Continuing to build on the significant work of the Paramilitary Crime Task Force, our focus remains on those paramilitary groups and organised crime gangs which pose the most significant threat, risk and harm. Their criminality and community control will not be tolerated and we will continue to ensure that robust enforcement is at the forefront of our approach to dealing with paramilitarism.

Q. What are the risks and opportunities associated with a process for the disbandment of paramilitary groups which the forthcoming independent scoping exercise should consider?  

Fragmentation of groupings

Previous iterations of disbandment by paramilitary groups have led to fragmentation into smaller, hyper-local groupings, which are less cohesive, and as a consequence more difficult to influence externally.  This presents challenges in assessing the success or not of any transition.  Fragmentation has also previously led to instances of internal conflict and serious violence as opposing factions compete for position.

Diversification of criminality

Paramilitary groups are currently and actively engaged in a wide range of criminality from selling drugs, firearms, human trafficking and coercive community control. We judge that disbandment / transition is unlikely to have any significant impact on this activity in the short term. There is a risk that disbandment could result in some diversification or expansion of criminal activity, as individuals involved with paramilitary groups feel free to exploit a wider range of criminality without restriction and wider group control.

Some loss of insight and understanding

Linked to the fragmentation of paramilitary groupings we expect to have a reduced insight and understanding of its memberships’ capability, capacity and intent as a result of transitioning.  The traditional approach to understanding threats within Northern Ireland has been predicated on a ‘grouping’ approach, understanding the group’s intent, capacity and capability and applying that across the individuals associated with or linked to that grouping.  However, as groups’ transition and fragment, this approach will become less effective.

Q. What lessons should be learnt from previous attempts at paramilitary disbandment?

Transition offers the potential for individuals to move away from terrorist and paramilitary organisations and the potential to loosen the grip of terrorist and paramilitary coercive control and fear over communities. Any such progress is to be welcomed.

It also permits society to move away from ‘labelling’ paramilitary activity as being related to a cause. This further delegitimises this activity, breaking the cycle of control and fear.

Given the real potential for groups to become further splintered and fractured, it also provides an opportunity to separate the more dangerous elements from those who are in transition and thereby prioritise police action and activity against those causing most risk and harm in communities. There will be opportunities to focus Police Service enforcement and disruption efforts on those hard-line, intransigent elements.

 

Conclusion

The PSNI welcomes the Committee’s Policing and Security enquiry as an opportunity to take stock of how far policing has come since the Patten report. With the relentless pace of everyday policing it can be easy to take for granted the remarkable transformation and firmly embedded progress which has taken place over the past 24 years. That such progress has been made in the face of the challenges laid out in this report, is remarkable and testament to the efforts of the officers and staff of the PSNI.

We do however have significant concerns that following 15 years of underinvestment, policing in Northern Ireland has reached a tipping point. Staffing levels are now dangerously low and those who remain are increasingly worn out. It is a policing miracle that the PSNI remains a world-class organisation but we are now at the stage where people, including our workforce, are going to come to harm because of the Service’s inability to deliver effective policing.

The PSNI is now smaller, less visible, less accessible and less responsive than at any time in its 24-year existence. It risks becoming an emergency response service only. Without sustained investment and political support, policing in Northern Ireland will continue to operate below safe levels and our ability to respond to calls for service, investigate crime and protect vulnerable people will be increasingly compromised.

Failure to prioritise resources for policing in a way that other services have been and to adequately resource legacy arrangements risks undoing some of the remarkable progress of Patten.

Annex

Annex 1. Patten Recommendations ‘In Progress’ or ‘Not Complete’

November 2025