Written evidence submitted by
Chief Constable Debbie Simpson, Dorset Police

 

  1. Dorset Police is a force with a rural/urban coastal mix providing Policing to circa 750 000 residents and a much larger transient and seasonal population estimated to equate to 21 million day visits a year.  Our population is ageing with a third of residents aged sixty or over increasing vulnerability demand. Dorset Police is in Strategic alliance with Devon and Cornwall Police sharing services, increasing capability and making joint efficiencies.

 

Dorset Police would like to offer evidence under the following areas from the terms of reference:

 

Reforms which may be necessary to ensure the police service has the ongoing capacity and capability to fulfill its primary task of ensuring public safety, in the face of new and evolving threats and challenges.

 

 

  1. Enabling legislation should not be restricted to the fire service, but should facilitate and encourage all criminal justice agencies and partners, particularly local authorities, to ensure the services provided support the needs of the vulnerable.  Legislation needs to be enacted to hold partners to account for provision of services such as places of safety and mental health response, and could utilise Police and Crime Commissioners to challenge and provide impartiality. We should be working together to ensure we are deploying the correct resources to each incident and delivering the most effective service for the patient/ service user at first point of call.   Funding is tight at present but it is the overall spending on public service that will impact on how we are able with partners to change lives and communities. The impact of the reductions in cost are that we have become more efficient without losing effectiveness. However, the smaller the force the more difficult it becomes. Hence the need for enabling legislation.  In a small force like Dorset it may well be that the only way to ensure all children and young people are adequately protected would be to have one joined up service from early intervention through to enforcement under one governance structure, which could be under a Local Authority in the form of a Protection Directorate.

 

  1. We would welcome a holistic review of the Inspection bodies which hold police, other partners and service providers to account. A well-considered joint inspection function would in our view deliver swifter and more effective joint working. Most importantly the public would be able to see the links between agencies and the progress towards a better public service.

 

  1. If it is not considered appropriate or viable to widen enabling legislation then on-going capacity and capability could be strengthened by a clearer remit of the Police duty of care i.e. where policing begins and ends, and stronger government support to withdraw Policing services post initial crisis phase. Policing, if it remains as a standalone profession without wider enabling legislation to collaborate more formally, should be the last resort in many instances as we are not trained or equipped to provide the most appropriate care. 

 

  1. Enabling legislation would also help where forces such as Dorset and Devon and Cornwall have created strategic alliances. Devon and Cornwall Police and Dorset Police are currently embarking upon such a Strategic Alliance to enable the two Forces to work closely together and share a wide range of operational and support functions. This presents clear opportunities to promote efficiency, resilience and interoperability to realise significant financial savings. The working intention to maintain separate Joint Executive Teams has recently been under review as the Deputy Chief Constable of Devon and Cornwall has recently been appointed Chief Constable of Lincolnshire, leaving Devon and Cornwall without a DCC. In light of this, the Chief Constables have sought legal advice on whether it would be lawful to appoint a single DCC for the two Forces and, if so, which legal mechanism should be adopted.

 

  1. Aligned to that, a series of further questions have been explored such as the legality of two Forces appointing a single Chief Constable, the legality of functions that have traditionally fallen to a DCC being carried out by a Police staff member at Chief Officer level and the legal risks associated with “sharing” Chief Officers across Force jurisdictions.

 

  1. Despite the employ of an eminent QC it has proven impossible to obtain clarity on these issues as there is an absence of case law or guidance to assist decision makers. There are significant risks in creating a Governance Model at Chief Officer level which is flawed legally. Those risks being the possibility of a challenge of the legality of the governance of Forces at the strategic level and also the legality of the decision making of those officers operating at a strategic level.

 

  1. As stated in advising on these issues the QC has stated that the law is “deplorably unclear”. Accordingly it is submitted that it would be a significant step forward if primary legislation could be amended to allow Forces the ability to collaborate more effectively at a Strategic/Chief Officer level. This would require amendments to the Police Act 1996 and the Police Reform and Social Responsibility Act 2011 to simplify the process and provide clarity on what is legally permissible.

 

 

Current and future crime trends and their implications for policing in England and Wales, including emerging or growing categories of crime (such as online crime and child sexual abuse) and under-reported types of crime.

 

 

  1. Examples of potential best practice: Dorset Police has vigorously pursued visioning of future demographics and associated crime patterns within the County to effectively prepare for predicted demand. This is led by focusing on holistic responses to meet individual’s needs, providing tailored and empowering interventions for all generations whilst focusing on those individuals who are vulnerable to harm.

 

  1. Through this focus on identifying and reducing vulnerability we have facilitated an increase in the reporting of previously invisible crime types such as CSE, non-recent sexual abuse and modern slavery etc.  To cope with this increase in current and predicted demand we have developed a problem-solving approach with partners to identify opportunities to prevent and avoid demand, recognising this must be focused on improving service provision. This work has led to a number of outcomes:

 

 

  1. These advances have been achieved by identifying and adapting academic models of demand management in unique and innovative ways that are suitable to be transposed across beats, conurbations and counties.

 

 

  1. Dorset Police has also facilitated and implemented the creation of the first tri-authority Multi-Agency Safeguarding Hub (MASH). Engagement with LSCB partners and executives, to align priorities and reduce the duplication of processes, has streamlined pathways and developed consistent and efficient child-abuse referral pathways to meet the increase in demand. The evaluation and tracking of the MASH is being developed to capture Public Protection demand in line with policing-plan priorities. Furthermore, as reductions in resources are observed across the public sector, the ‘systems-thinking’ analysis will be focused on the source of the demand, to assess how multi-agency working practices impact on joint working. This will ensure community pathways do not become blurred when agency help is required. These shared working practices have identified opportunities for the identification of hidden crimes such as Child Neglect to be highlighted. Future opportunities have been identified to replicate this process with elderly persons who represent a growing area of the community within Dorset’s unique demographics. MASH for both children and young persons and elderly persons should be a transition model to fully joined up and amalgamated working under the aforementioned Protection Directorate, pooled budgets, pooled skills and one employment model with single leadership and governance.

 

  1. Dorset Police has embraced new technology and has moved digital investigation equipment to the front-line with investigators and to specialist departments. This has allowed for the early identification of evidence to better safeguard victims and bring offenders to justice. This has been vital in enabling efficient pro-active online CSE investigations to become ‘business as usual’. An increase in the local government precept allowed for an increase in resources, specifically for Child Abuse and on-line CSE investigations, together with the subsequent management of sex offenders, created by the uplift in demand.

 

  1. Challenges around reducing re-offending in the context of the current CRC contractual arrangements that are seeing significant cuts in both resourcing and service level across IOM teams.  The current MOJ contract is a payment by results initiative (so there are financial penalties for recalling someone to prison for example - when it may be the right thing to do to protect the public), The fundamental question is one of ‘outsourcing’ to the CRC in the first place – a private company has a different mind-set to public service, and thus, if you do it, local accountability enabling a focus on real outcomes, delivery and shared ownership as opposed to a focus on finance, is key. Devon and Cornwall were successful in bidding for transformation funding to develop an alternative model and solution.

 

  1. The development and integration of Evidence Base Policing (EBP) into the policing landscape is slowly developing across the service, with a number of Forces taking the lead to drive innovative practices and academic partnerships.  This work is exciting in its potential and critically important for policing if we are to deliver the Policing Vision 2025 and so ensure all our processes and practices within policing from management, to leadership, to prevention and crime fighting is firmly grounded in evidence. However, the development of EBP so far appears to be uncoordinated and ad-hoc in delivery across the service and as such lacks consistency or a clear strategy with minimum expected standards.  We would suggest that the CoP and NPCC could work towards developing a stronger governance and EBP and a commission a thematic HMIC inspection regime (such as they delivered for HBV) to focus Forces to deliver on EBP and so driving this core agenda nationally.  This focus and measurement of delivery will enable the CoP, NPCC and HMIC to have an understanding of what is actually being delivered across Forces and academic partners, and maybe cut through some of the apparent ‘marketing’ being exhibited by competing academic institutions for police ‘business’.

 

The extent to which the police are sufficiently equipped to deal with these changing patterns of crime and other operational demands, such as mental health crisis work, and where gaps in capacity and capability are likely to lie.

 

 

  1. The service has started to attract young and capable individuals to look at issues such as cyber; however, given changes in the way in which IS is being trained (people foregoing degrees as they are too slow in terms of the dynamic changes in the industry) we need to utilise the skills in a more creative way.  Working much more closely with industry is really the only way of getting access to the best individuals.  A public service levy similar to the construction industry, where the highest performing IS companies have to invest time, effort or people in safety and policing may be one way of picking up the preventative pace whilst recognising that youth alone does not enable automatic digital proficiency. 

 

  1. The ownership and responsibility for managing cyber enabled and cyber dependant crime is still unclear as the current Governance relies on geographic boundaries that are not relevant to this transient crime type. There is a need to increase resourcing and funding across partners to build skill sets that focus on crime prevention and enable the sharing of information and best practice.

 

  1. We must also accept however that the perception of the police service as a long term vocational career has changed, due in part to the enforced changes to police pay and conditions. We should anticipate that future staff retention may be limited to periods of single digit service and specialist qualities in staff are therefore quickly identified and maximised, potentially via direct recruitment and nimble workforce modelling.

 

  1. A focus and potential investment in wellbeing and wellness for all staff involved in policing is vital to ensure the resilience of the service; as people deal with more complexity, increased risks and safeguarding requirements they need better support.  We are already seeing MH, PTSD and depression related to work and we need to ensure we provide coping mechanisms with an ethos of prevention and catching people before they fall. 

 

  1. We should focus on increased training and understanding of Mental Health throughout the police and partners to insist that our collective processes recognise and respect Mental Health difficulties. Consideration should be given to developing an independent Mental Health Commissioner with the weight and responsibility for galvanising collaborative attention to Mental Health across all public agencies and bodies.

 

The relationship between public expectations of the police, including desired visibility and perceived priorities, and the operational realities of policing within the current financial context.

 

 

  1. Public perceptions remain a challenge at the first point of contact, as citizen expectations rise.  Some of this is linked to demographics however for non-emergency matters call handlers have to give realistic explanations to callers who expect a certain level of service.  For example, parking issues, minor crime reporting, drug dealing is unlikely to result in the deployment of a police officer or PCSO, however for the older generation in particular there is an expectation they will deploy.  We need to deliver clear messages that deployment is not necessary for the investigation of the crime/incident rather than because we do not have the resources.

 

  1. Public Perception of a lack of traditional visibility will need strong ethical leadership combined with bespoke communication strategies to reassure the future public as to Policing’s continued presence and effectiveness.  It is also significant that the next generation of police officers may well be tarred by the public enquiries of the past (our present) eg. Pitchford and in this context it is difficult to predict how society will view policing of the future when all they will hear is tales of the past.

 

  1. We must acknowledge that the role of police is blurred within society and has migrated significantly away from the sole pursuance of criminal justice outcomes. It is unrealistic to attempt to resolve this by educating the public on current police responsibilities as they are legacy portfolios developed through trial and error for the historic expectations of society. It is important that we pursue mature discussions between police forces and partner agencies regarding the sharing of demand and the financial requirements of meeting these burdens through collective and equitable contribution.

 

  1. Police funding levels, efficiency and cost-effectiveness, including the role of the Police & Crime Commissioners (PCCs) in driving innovation and reform

 

  1. The Dorset Police and Crime Commissioner has expressed his disappointment in the settlement provided for policing in Dorset for 2017/18. The settlement represents a cash reduction in funding and will directly impact the delivery of policing services across the county. The expectation placed on the Dorset PCC is to increase the precept by the maximum available simply to maintain funding at flat cash levels compared to 2015/16. This reduces the local control that the PCC has, whilst still resulting in a real terms reduction in resources once inflationary factors are accounted for.

 

  1. The settlement presents continuing challenges for the Dorset PCC and Dorset Police to deliver policing to the County through a balanced budget. Part of the calculations presented to deliver a flat cash settlement are an assumed increase in the tax base. Whilst this will increase the funding available from the precept it is as a direct result of the increase in number of properties in the county and therefore an increase in the demand placed on the police service.

 

  1. The decision to increase the amount of the government grant that is reallocated to specific areas further erodes local accountability. The top slicing to Police Transformation Fund also leads to forces investing resources in a competitive bidding process for short term projects rather than having the local control to direct to the PCC’s priorities.

 

  1. Whilst appreciating the work on the new formula, the absence of any indication of funding beyond 12 months is disappointing. The ability to formulate a realistic medium term financial plan is significantly compromised and places the police at a disadvantage and out of step with the rest of local government who received a four year deal.

 

  1. Whilst there is evidence of individual PCCs across the country driving innovation and reform their hands are tied to a large extent by some of the funding and resourcing issues set out above. This is further exacerbated by the financial challenges being faced by public sector partners where a number of key priorities relating to crime and community safety are shared.

 

 

The role of digital technology in policing, including take-up, risks and barriers to use.

 

 

  1. The continued focus on procurement within IT with an objective of moving forces to the same applications to enhance interoperability and leverage economies of scale is to be commended. However, this in itself will not lead to the required step change. Five forces independently procuring and implementing the same system of the same framework will result in 5 different look and feel with different architecture.

 

  1. If we want to transform and enhance capability, then a move to a common platform with national hosting and support has to be the right path.  A national crime and Intel could be delivered but would take the agreement of each force to accept a national approach which would restrict their local discretion.  The Police IT company is currently working with PWC to identify spend and application data over a six-year period which will tell us what we already know and have attempted to do many times already.

 

  1. Despite the many issues associated with airwave and ESN it is absolutely the right approach and one that should be replicated. The current work on Minerva could provide the basis for a National system both providing direct financial savings together with greater access at a greater level of granularity to support all forces and negate the need and cost of PND.

 

  1. A move to a clear focus and directing the resources of Police IT combined with those of the Home Office rather than the current approach of more procurement frameworks and local interpretation would provide the required focus.

 

  1. The concept could be delivered within the back office through a single ERP platform as this model already exists in both the public sector (health) and is the normal approach across the private sector where organisations have multi company structure operating internationally but see it as essential to have one common system for their management information.  However, I would prefer to see an operational focus, hence crime and intel, as this has the capability to transform the wider service whilst delivering direct efficiencies) One mobile data interface rather than 43 and one presentation of that data to operational officers. Alternatively, a National Police Force may provide the solution.

 

  1. In terms of barriers - conflict between the digital age of access to internet, uploading etc. and IS security restrictions–  is only set to become more challenging – new IS innovation to circumnavigate conflicting issues needs to be started now so we don’t compromise investigations and capability.

 

  1. We must maintain our focus that people are always the most important part of policing but only when effectively enabled through the best, most current and up-to-date equipment. We should identify and predict emerging demands more effectively - such as the current development of Body Worn Video - and mandate a requirement for a cohesive national response to developing solutions.

 

 

 

International best practice examples of innovation in policing, and the extent to which they could be replicated in England and Wales.

 

 

  1. In relation to academic partnerships there is a strong argument to be made that the CoP needs to encourage or mandate the identification of ‘preferred partners’ who will be commissioned to deliver the tools, qualifications and support to the service to develop in all aspects of policing from EBP, to training, accreditation and leadership development.  At this time the landscape is confusing for Forces with grass root partnerships being developed (and sometimes failing) across the UK.  Instead, preferred Universities based in the geographic regions across the UK who can provide local support and knowledge, and also a mix of themed institutions to provide specialist expertise, for example the Open University in relation to distance or blended learning products from Open Learn/Access through to PhD.

 

  1. Consideration should be given to examining the model used in some parts of Europe, where victims have their own lawyer. That lawyer will adopt an advocate role on behalf of the victim, representing them during cross examination, reading out the Victim Personal Statement to the court, and helping to fight for compensation. The Dorset Police and Crime Commissioner has lobbied the Home Secretary and Lord Chancellor to sponsor a pilot scheme in Dorset and continues to do so.

 

CC Debbie Simpson QPM