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5. NATIONAL AND FORCE ISSUES EXAMINED DURING THE FIRST REVIEW INSPECTION

5.1 As part of our revised review inspection process, the force was asked during our 2004 review inspection to provide information on a range of issues that had come to prominence nationally or locally since its primary inspection. The following section provides an update on the areas outstanding from that review.

Force response to the Race Relations (Amendment) Act 2000

5.2 At the time of our 2004 review inspection the force had established a Diversity steering group, chaired by the chief constable, to drive forward the diversity agenda. This was subsequently supplemented by the Diversity Implementation group ( DIG), chaired by the functional ACC and responsible for implementing Steering Group decisions. HMIC is pleased that the force continues to provide the highest levels of strategic oversight in this area, and will follow with ken interest the recent proposal to merge both groups.

5.3 We also commend the approach taken by Lothian and Borders Police in producing its multi-equality scheme in November 2005. Produced by the force Diversity unit, it drew upon the wide-ranging experiences of departmental personnel as well as taking cognisance of the rapidly changing legislative and social landscape. By merging the six strands of diversity inclusively within the content of the scheme, the force has made good progress towards tackling diversity issues in a cohesive manner.

5.4 Previously the force had produced separate action plans to cover the various aspects of the diversity arena. With the development of a multi-equality scheme, it has now created one inclusive multi-equality scheme action plan. HMIC is pleased to note that the force is now reviewing the actions contained in the scheme and that it is actively considering the option of developing a computer application to help co-ordinate associated plans.

5.5 The introduction of the multi-equality scheme has also refocused attention on the impact assessment of policies and procedures throughout the force's business areas, across all six diversity strands. The force has confirmed that all Chief Constable memoranda and General Orders were assessed for impact when the racial equality scheme was introduced. HMIC understands that the force hr department has committed itself to reviewing the process of impact-assessing all policies for the six strands over the next few months. It will then continue to assess policies, procedures and appropriate events on a systematic and cyclical basis. Moreover, it has been proposed that the force undertake a full-scale review of impact- assessment processes at the same time that the Corporate Development branch conducts a comprehensive review of force policies. HMIC will continue to take a keen interest in this area.

5.6 We note that there has been a slow but steady increase over the last five years in the number of police officers drawn from black and minority ethnic communities ( B&ME). In 2001-02, the force employed 21 police officers from B&ME communities (0.7% of police officer staff). By March 2007 this had risen to 43, or 1.5 % of police officer staff. The number of B&ME support staff has also increased, from four or 0.3% of all support staff in 2001-02, to 17 or 1.2 % of support staff by March 2007. The force continues to support the practice of mentoring police officer applicants from B&ME communities and is developing a new initiative with linknet, an online recruitment site that works with B&ME final year students and new graduates. At this time the force is also developing trainee opportunities for up to two young people from B&ME communities. This will consist of a training contract that will last for between three to six months. At a later stage this initiative may be expanded to include people with disabilities.

5.7 In the report of our 2004 review inspection, we said that we would review the force's use of small recruiting teams at the next review inspection. The force has told us that its recruitment continues to be managed centrally and that it is making strenuous efforts to improve its performance in this area. It has tried to collaborate with other forces in the east of Scotland, but this has proved unproductive. The force is now considering involvement along the lines of the Uniformed Services Partnership recruitment portal, which is currently supported by the West of Scotland Racial Equality Council. The portal is used by Strathclyde Police and other uniformed services as part of their approach to promoting diversity in recruitment.

5.8 HMIC understands that a human resource advisor is responsible not just for monitoring support staff recruitment, but also for working with the Diversity unit and others on a marketing and co-ordination strategy for community events such as the Edinburgh Mela. Nevertheless, given the slow growth in B&ME recruitment we believe that even more effort must be made. Additionally, HMIC is disappointed to note that the Equal Opportunities and Diversity advisor still does not see the results of exit interviews. However, a protocol and forms have now been approved, and the force has intimated that by the summer of 2007 a system will be in place to rectify this omission.

5.9 Due to the amount of work still under way, we will continue to take an interest in how this important area develops.

Force commitment to Best Value

5.10 This area is fully explored under Section 3, Recommendation 10

Force approach to people with learning disabilities

5.11 The last four years have seen significant developments in the way that public bodies respond to the needs of people with learning difficulties. This has culminated in the introduction of the Adult Support and Protection (Scotland) Bill, passed by Parliament on February 15th 2007 and currently awaiting Royal Assent.

5.12 During this review inspection we found that Lothian and Borders Police, in conjunction with its key partners, has developed inter-agency structures to deal effectively with people with learning difficulties. The arrangements in 'G' Division (covering the Borders) seem to have been particularly successful and appear well suited to the operational environment of the area. The experiences of 'G' Division have helped to shape practice elsewhere in the force. Vulnerable adult protection committees have either been or are being established in the other four council areas, and each now has its own Protection of Vulnerable Adults advisory group. In addition, within 'E' Division a Chief Officer Critical Oversight group has been established for both East and Mid Lothian Council areas.

5.13 The Edinburgh, Lothians and Borders Executive group ( ELBEG) is chaired by the Chief Constable and comprises the chief executives of nhs Lothian and nhs Borders, the five local authorities and Lothian and Borders police. It exercises multi-agency leadership and oversight of arrangements for protecting vulnerable persons, and has proved pivotal in driving forward both adult and child protection matters across the force. One outcome has been the appointment of a Protection of Vulnerable Adults development officer. Part of this role is chairing the multi-agency Protection of Vulnerable Adults advisory group, a body that will oversee the Lothian and Borders Vulnerable Adult Protection committees.

5.14 In light of the commitment shown by the force both to ELBEG and to protection issues in general, it is clearly well placed to influence developments in vulnerable adult protection policy. In particular the force would wish to champion a standardised approach to protection issues. It also believes that effective reporting mechanisms for sharing meaningful analytical information with ELBEG would be useful when examining processes, particularly those involved in critical or significant case reviews.

5.15 Overall responsibility for vulnerable adult protection policy was transferred to 'X' Division (criminal investigation department) in September 2006. This followed an executive level agreement to bring together all the constituent disciplines of family protection. The detective superintendent (crime support) is now responsible for the strategic development of policy on vulnerable adult protection. In addition the force has created a new position within Crime Policy for a detective sergeant (vulnerable adult protection/victims co-ordinator) to support the portfolio-holder and divisional heads. This, HMIC notes, is part of a wider force investment in protection issues that has led to the appointment of a further two detective sergeants in this field. Thus a total of four dedicated detective sergeants now cover the full range of protection issues:

• offender management;
• child protection;
• domestic violence / sexual offences;
• vulnerable people.

5.16 We are also pleased to note that, for the first time, public protection has been included as a major theme in the force strategic assessment and the force Annual Service Plan 2006-07 clearly highlights its commitment to protecting vulnerable adults. Moreover, the force goal of reducing crimes of violence refers specifically to focusing on vulnerable victims, including vulnerable adults.

5.17 In terms of the daily management of vulnerable adults, the 2003 report, Lothians and Scottish Borders Protecting Vulnerable Adults: Ensuring Rights and Preventing Abuse, recommended that where there is evidence of abuse of a vulnerable adult, there must be an initial referral discussion ( IRD) between the police, the social work department and, if appropriate, the health service. The force considers it essential that responsibility for IRDs lies locally with divisional detective chief inspectors. On a day-to-day basis, IRDs are routinely delegated to IRD detective sergeants based in divisional family protection units. These detective sergeants also deal with child protection IRDs. Given the potential crossovers in information sharing, risk assessment and multi-agency liaison, HMIC considers this to be good practice.

5.18 It is clear, therefore that Lothian and Borders Police has invested heavily in terms of partnership working and resourcing, in this field and HMIC believes that the force will be well positioned when the Adult Support and Protection (Scotland) Bill receives Royal Assent. However, there was one area that did give HMIC cause for concern and that was in terms of training in respect of vulnerable adults. While the force has invested heavily in Protection issues, creating 3 additional detective sergeants posts in crime policy branch, it transpires that due to a historical anomaly these officers have some responsibility for training delivery as well as the organisation and administration of some of the training inputs. It is only recently that a comprehensive training needs analysis for X Division has been conducted. HMIC is concerned that specialist officers should be tied up with routine administrative duties that could be better undertaken elsewhere and would expect the force to review this issue as soon as possible.

Force approach to the use of firearms

5.19 The force now runs an enhanced armed response vehicle ( ARV) capability with 25 constables capable of providing a round-the-clock firearms response. However, with only two sergeants the unit is unable to provide constant supervision. Given the concerns about the Force Communication Centre (see Area for Review 3) we are pleased to note that work is under way to resolve this situation and are supportive of the plan to provide permanent supervision for the ARV resource.

5.20 The force has responded positively to the recommendations made by Strathclyde Police, following its independent inquiry into a firearms incident at Harper Rigg, West Lothian in August 2003. Only the following two issues require further comment from us here, though requiring no further action by the force:

• Recommendation 10 - the circulation of separate aides-memoire to officers involved in developing and approving pre-planned and spontaneous firearms incidents has been addressed, by including them in the log books of silver and gold commanders.
• Recommendation 15 - the suggestion to recognise formally the professionalism and dedication of the Lothian and Borders officers engaged in the firearms incident, is a decision for the force alone.

5.21 Responsibility for maintaining the force's approach to firearms lies with 'O' Division. The division is also responsible for producing and publishing internal policy documents for the mounted branch, marine unit, public order unit, search teams, technical support unit ( TSU), dog section and, from a national perspective, CBRN (chemical, biological, radiological and nuclear) matters. The increasing volume of work generated by these growth areas alone makes this a considerable portfolio. And yet the same officer is also responsible for developing and implementing training, tasking and co-ordinating and taking the operational lead for these resources within the force.

5.22 These will continue to be important areas of responsibility in the foreseeable future and the force will want to make sure that these functions do not develop in isolation. From this brief examination HMIC sees potential in reviewing staff levels, considering the value that could accrue from combining the TSU with 'X' Division's technical resources, and harnessing the synergy that exists between 'O' Division's intelligence resource and the force's intelligence bureau to better inform Level 1 and 2 tasking and co-ordinating.

5.23 HMIC did not examine these matters in depth at this time and therefore makes no further recommendations here. We are aware that a new divisional commander has recently been appointed and that she is contemplating a review of the division's responsibilities. We would support such a review and believe that the matters outlined above are worthy of consideration.

Force participation in Multi-Agency Threat and Risk Assessment (MATRA)

5.24 A national independent review of airport policing, headed by Stephen Boys Smith, was completed in July 2006. Examining the police role at airports the review proposed that future structures and funding mechanisms contain component parts that could provide the following:

• a unified view at national and local level;
• a national approach to standards;
• a transparent and fair funding system;
• an independent inspection process; and
• an efficient review and revision structure.

5.25 If implemented these recommendations could reduce existing segmentation within and between the various partner agencies involved in policing UK airports. They would also address a number of the issues raised by staff during recent reviews.

5.26 The review was discussed with the force during our review inspection at Edinburgh airport, as were issues outstanding from the previous primary and review inspections.

5.27 As Edinburgh Airport's programme of development and construction continues, so too the numbers of flights and passenger movements have risen. The expansion has also increased the number of short- and long-term parking facilities in and around the airport. With this, and the recently launched 'park and ride' commuter facility, police staff at the airport have correctly identified the need to give particular consideration to the potential for vehicle crime.

5.28 Since our 2004 review inspection, the MATRA group has added four sub-groups to the original executive forum. With one each focusing on airside, landside, cargo and general aviation, the aim of the sub-groups is to invert the previously reactive nature of the original MATRA structure in favour of a proactive and practical response to potential problems.

5.29 The airport policing unit is also keen to introduce an intelligence sub-group to the MATRA structure. Its role would be to make sure that information is shared between the MATRA partners, and to carry out a collective risk assessment of problems perceived and identified. By applying National Intelligence Model ( NIM) principles, the intelligence sub-group could also establish efficient and effective meeting structures and encourage relevant partners to attend the tasking and co-ordination group forum. HMIC observed a willingness to adopt a more intelligence-led and proactive stance to tackle crime at Edinburgh airport, supported by the intelligence sub group.

5.30 As proposed during the 2004 inspection, the Airlines Operators Committee is now represented on the MATRA group. The force is also keen to include representatives from the various car hire companies based at the airport.

5.31 In our 2004 review we referred to the practice of deploying armed officers in and around the terminal during the hours of aircraft activity. A recent review of staffing has increased the level of full-time police cover, while the force's armed response vehicle ( ARV) is also available to provide extra support. This is an improvement on the situation before, and is significantly better than the police presence at some other UK airports.

5.32 Because there are no custodial facilities at the airport, persons arrested or detained must be escorted to Wester Hailes police station. In these circumstances, officers will obviously have to leave the airport grounds. In addition, airport police are occasionally called upon to escort persons detained at the airport by the United Kingdom Immigration Service. While at present this is not a significant commitment, the force is rightly concerned about the potential increase in persons detained through the introduction of 'e-borders'. HMIC does not support the use of police staff to transport immigration service prisoners and would suggest that the force and the immigration service discuss what alternative arrangements could be introduced.

5.33 One of the force's assistant chief constables is involved in matters relating to airport policing at the ACPOS level, allowing the force to contribute to national debates. HMIC is pleased to observe the force using this opportunity productively to address funding, partner participation and national standards, alongside discussions around the recommendations from the Boys Smith review.

5.34 Given the progress made to date, we are content to conclude our interest in this area.

Force performance in relation to sickness absence

5.35 HMIC is pleased to note substantial improvements in processes and support mechanisms for managing sickness absence since our 2004 review inspection. That said, the force's rates continue to exceed the Scottish average for proportion of working time lost through sickness for both police and support staff, as can be seen in the table below. (We are aware of the limitations of comparing one force against a national average but find it useful for indicating a direction of travel.)

5.36 The force set itself a target, for 2005-06, of reducing the proportion of staff days lost to sickness absence to below 5%. As the table above shows, it met this target for police officers but not for support staff. Nonetheless, the longer term trend appears to be downward for both categories of staff.

5.37 Acutely aware of the need for improvement, in 2006 the force began a review of the absence management policy that it had first published in 2000. The review has already brought about some changes, including a more effective process for monitoring absence levels in divisions and departments, links with the force's capability policy and better support mechanisms. The final draft is now with the force executive for approval. In the meantime we are pleased to note that, as part of the review, training in the new policy and its processes is to be arranged for all first line managers.

5.38 Absence management figures are included in the force's performance and activity management ( PAM) framework and discussed at the PAM meetings. HMIC considers this a positive development.

5.39 In 2004 the force introduced a Mental Wellbeing at Work policy. In support of this, risk assessed stress management ( RASM) has been provided for certain designated posts, with the option of referring other members of staff as needed. This is provided independently of the force, by the nhs' Rivers Centre. The process of critical incident stress management ( CISM) is also well established in the force, and offers support immediately following an incident, then again within 72 hours, with follow-up provided by the Rivers Centre. This service is managed by the force's Wellbeing Unit, which was established in October 2006 following a Best Value review by external consultants in May 2005. The unit brings together the departments of occupational health, welfare, and health and safety, the former once again being provided by the force rather than being outsourced. The force also offers an employee assistance programme ( EAP) which, despite vigorous advertising, has enjoyed only moderate take-up so far.

5.40 The force is making strenuous efforts to reduce sickness absence. And yet, as the local Federation and some staff members are concerned to point out, the number of force welfare officers has fallen. The force, however, believes that with all the services it can offer, the Wellbeing unit (including the EAP) provides a much better and more comprehensive service.

5.41 In view of the work the force has carried out, the inclusion of absence information in the PAM framework and the imminent introduction of a revised absence management policy, we are content to conclude our interest in the area.

'A' Division performance

5.42 We have examined 'A' Division (see 5.1 above) and commented on improvements and its ambitious plans to adapt the division to the forthcoming local authority boundary changes.

5.43 At the 2004 review inspection, we said that we would examine 'A' Division's performance at the next inspection. The multigraph overleaf shows the division's performance and crime trends for 2006 compared with 2005. (The blue circle of the multigraph represents the previous year, 2005, the red points representing 2006. Red points falling inside the blue circle indicate positive trends and performance.)

5.44 As the multigraph below shows, the number of group 1 and 2 crimes (non-sexual crimes of violence and sexual offences respectively) and vandalisms per 10,000 population all increased between 2005 and 2006. Overall though, the rate of group 1 to 4 crimes as a whole has fallen considerably. So too have incidence rates for housebreaking and theft of motor vehicles. Turning to detection rates, those for group 1 to 4 crimes combined, vandalism and theft of motor vehicles have all improved, while those for group 1 crimes and housebreaking have remained static. The only fall has been in the detection rate for group 2 crime. Finally, the rates of proactive detections for offensive weapons and drug offences have risen.

Fig 2: 'A' Division Crime Trends and Detection Activity - 2006 compared with 2005

5.45 These results should be considered in the context of improvements that the force has made, particularly to performance management. Examples include the development of its performance and activity management ( PAM) framework and the efforts of 'A' Division to make this performance management culture an integral part of its divisional processes. The division has also substantially enhanced the way in which it applies the National Intelligence Model to its business and shows improved performance in the priorities areas of the divisional control strategy (see section 4, Area for Review 1). HMIC is content to conclude its interest in this area.

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