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Appendix F In-service survey

Response analysis

Service survey responses: Summary of main issues

Introduction and Methodology

In order to elicit the views of individuals working within a policing context in Scotland the review team designed an in-house service survey, aimed at exploring issues central to the four key aims outlined in the review. Following a drafting process, which included consultations with the review's Advisory Group, a small pilot study was conducted. The finalised questionnaire was then made available electronically to staff in all forces and relevant agencies using the commercial internet survey package Survey Monkey.

Data collection took place over a three week period, from 7 to 28 November 2008. In total, 2,524 individuals provided responses to the survey. This equates to an overall response rate of 10.6 per cent of all staff across the service. Although this is a relatively low rate when compared with traditional postal surveys, the fact that many police officers and staff are not always office-based, and that some forces restrict staff access to the internet, the online survey was accessed by a significant number of individuals across Scotland within a relatively short time-frame, indicating a considerable level of interest and concern in the current issues affecting policing.

Whilst acknowledging that the response rate does inhibit our ability to generalise the research findings to the police service as a whole, the data nevertheless highlight the views of a cross-section of individuals working within different forces and roles, and provides useful insights into their thoughts on the themes deemed relevant to the current review.

This summary thus reports the findings from the survey, detailing the main issues to emerge from the 36 closed, quantitative questions under each of the four aims (see Appendix E). It also provides limited qualitative information, drawn from an additional free-text question, which invited respondents to explain their general perspectives and/or to provide their thoughts on any experiences which they believed might usefully inform the review.

Participant data

Table 1 below outlines the number of responses received from all forces and agencies, and illustrates these rates against the overall numbers of available personnel.

Table 1: Respondents by current workplace

As illustrated, the largest share of responses came from Strathclyde Police (33 per cent). However, taking into consideration the relative size and number of all personnel, the Scottish Police Services Authority ( SPSA) had the highest response rate, with 29 per cent of available staff accessing the survey. In contrast, four per cent of staff in Grampian Police and Lothian and Borders Police completed the questionnaire, leading to overall shares of the responses which do not reflect their share of total police personnel. The disproportionate response rates across the forces/agencies provide a further difficulty in extending the findings beyond the survey.

In addition, it is important to note that participants were informed that they could opt out of answering any questions that they deemed irrelevant to their personal situation, or on which they held no opinion. As a result of this there was a 79 per cent completion rate among staff, with many choosing not to answer all 37 questions included in the survey. This inevitably meant that the numbers responding to each question often fell below the 10.6 per cent level.

Tables 2 to 4, below, provide further data on the characteristics of respondents.

Table 2. Breakdown of respondents by role

Table 3. Breakdown of respondents by area of work

Table 4. Breakdown of respondents by rank

The totals above differ because not all respondents answered every question concerning background details.

The sample overwhelmingly comprised police officers (63.4 per cent), with the second largest group, 'police staff members' forming 33 per cent of all respondents. Table 3 illustrates that the vast majority of individuals either worked in a specialist role, or within a territorial division or unit. Taken together, those who worked in the two categories of police officers in territorial divisions/units were the largest group of respondents. In addition, the 171 respondents indicating their work area to be 'other' worked in a number of different occupations, ranging from scenes of crime examination and underwater unit, to control room and human resources. The majority of individuals within this category worked in community policing and intelligence.

In terms of the rank of respondents, Table 4 highlights that individuals across all rank levels took part in the survey. However, as a result of some police officers responding to questions about both 'rank' and level of managerial responsibility (grade), accurate conclusions cannot be drawn from the data provided on police staff grading. Nevertheless, tentative inferences can be made, with the data suggesting that the majority of individual support staff worked in a non-supervisory capacity.

In addition to the information provided on job role and rank, Figure 1, below, highlights that the majority of respondents ( n = 2482) had served within their organisations for a relatively long period of time. Within the largest response category of 'police officers', most individuals had spent 15 years or over in their role. For police staff members, 40 per cent had spent between five and 14 years in their role.

Figure 1. Breakdown of respondents by years of service

AIM 1: That all Scotland's communities have equal access to expert and specialist policing and to the resources necessary to investigate major crime, whenever they need it.

In order to explore participant's views on both access to expert and specialist policing, and their ideas about the resources required across Scotland, a series of seven questions were posed. This section presents the main findings to arise from the responses provided in answer to these questions.

Figure 2. Every police officer and staff member should be supported by the same standard of expert and specialist services

Figure 2 highlights that 92 per cent of individuals believed there to be a need for police personnel to be supported by the same standard of expert and specialist services. However, a degree of caution should be noted when considering this data. It is also apparent that 32 per cent believed that because of different force needs, it should be ' okay' for there to be different standards of availability and expertise. The data suggest that whilst the vast majority of respondents were consistent in their belief that there should be similar standards across the forces, in some instances there was a degree of overlap between answers, with individuals perceiving there to be a need for both similarities and inevitable differences between forces.

To explore the extent to which perspectives on the standards of expert and specialist services varied according to whether individuals identified themselves as a member of a 'specialist' group, responses to the following statement were examined: 'I believe that police officers and staff in my force are supported by the same standard of expert and specialist services as police officers and staff in the rest of Scotland'. Overall, among the 2,257 respondents there were no significant differences. However, of those working within a territorial division or unit, 30 per cent agreed with the statement, whilst 43 per cent disagreed. This compared with a slightly higher 36 per cent of specialist staff who agreed that standards were similar (a further 38 per cent disagreed with the statement). These findings suggest that specialist staff are more likely than other staff to believe that the services they provide are standardised throughout the country, whereas the territorial or divisional staff that call upon specialist staff for support are perhaps less convinced about the standardisation of the service they receive.

In terms of a need for common standards of service delivery across forces, Figure 3, below, illustrates that the vast majority of respondents (81 per cent) felt there to be a need for such standards; 61 per cent also indicated that each force should have its own standards of service delivery (32 per cent strongly agreed). These views were similar across all levels of police rank and across all police board/ SPSA members. Furthermore, there was general support for the need for the public to have access to these standards, with 55 per cent of respondents 'agreeing completely'.

Figure 3. There is no need for shared common standards of service delivery across forces

Whilst there was recognition of the importance of both adequate expert and specialist resources, and the setting of standards for these services, a number of individuals expressed concerns about the need to ensure that any changes would not reduce existing services, or lower standards. The following quotation typifies the responses received:

Where an area is identified that forces are not being supported or do not have access to specialist support …the tendency is to dilute the standard and response for those forces that already have that specialisation. The setting of a common minimum standard usually means those who were exceeding it fall back. Any common standard has to be set at the highest bar. I also have real concerns that whilst other smaller forces may benefit from centralisation of resources my own force, Strathclyde, will end up losing out by supplying those specialists to the centralised body.

Inspector, Strathclyde

AIM 2: That the delivery of such (specialist and expert) policing responsibilities does not divert resources away from visible policing in communities.

The survey sought respondents' views on the extent to which they believed specialist and expert resources may - or might in future - impact upon community policing. Taken together, the findings illustrate overwhelming support for the importance of, and need to maintain, local policing.

A total of 82 per cent of participants ( n = 2186) agreed with the statement: 'I believe that members of the public in my force area like the fact that, on the whole, policing is carried out by local officers' - over half strongly agreed (56 per cent).

The responses further indicate considerable support for the view that local knowledge is vital when investigating both volume and serious crime, as Figure 4 highlights.

Figure 4. Local knowledge is very important in investigating volume crime; local knowledge is very important in investigating serious crime

As evidenced in the above Figure, the vast majority of respondents 'strongly agreed' with the importance of the investigation of volume crime ( e.g. petty assault, breach of the peace, theft by shoplifting, vandalism) being carried out by local officers. This level of agreement was notably consistent across all levels of police ranks. In addition, most individuals (89 per cent) felt that local officers could assist in helping to deal with serious crime ( e.g. murder, rape, sexual assault, robbery, theft of very high value). As one officer explained:

For as long as the Scottish police service operates under the principle of, 'policing with the consent of the public', I believe local policing will continue to be the preferred and recognised style... Clearly, on occasions it is appropriate to make use of the most suitable resources. This may very well mean resources with no local connection being deployed. On such occasions it is imperative that contact is maintained with local resources, as local resources will have the responsibility of maintaining contact with the local community and communicating all available information. Depending on the event or operation undertaken, local resources will play a pivotal role in assisting the community to return to normal.

Superintendent, Lothian and Borders

Moreover, in seeking to explore whether respondents thought that utilising external specialist or expert support might impact in any way upon local policing, participants were asked to consider the statement: 'If some specialist and expert policing were provided from outside my force it would be easier to maintain consistent levels of police officers working in our local communities'. Over half of respondents ( n = 2175) agreed with the statement. The thoughts of one such respondent are presented below:

I believe that when it comes to activities e.g. high value thefts; large scale drug supply; large scale fraud enquiries; and rape or murder, these crimes should be looked at by specialist teams instead of local officers as this would ensure that local officers could continue to provide a service to their communities and not be tied up on long term intricate enquiries.

Police Constable, Tayside

These views are further supported by data in response to the statement: 'Even if a combination of serious incidents or investigations puts a strain on resources in my force, these should nevertheless still be dealt with entirely by the force'. Sixty-two per cent of the 2,182 respondents disagreed that a force should take sole responsibility for dealing with an incident. A number of individuals cited the 2007 incident at Glasgow airport as one occasion when the police forces in Scotland worked together effectively:

It is my belief that the larger Scottish forces will always have a duty to provide specialist resources in support of their smaller neighbouring forces at times of need. As witnessed following the terrorist attack at Glasgow airport, Strathclyde Police, the largest Scottish force, benefited immeasurably from the mutual aid provided by almost all Scottish forces in the provision of specialist resources - ranging from intelligence analysts and assessors to National level 1 surveillance operatives.

Inspector, Strathclyde

There was a statistically significant difference here between those in lower ranking posts (constables, sergeants) and those individuals in mid-higher ranks. Overall, based on the chi-square test, ²³ the latter group were more likely than expected to 'disagree completely' with the statement (p > 0.000). In addition, there was a further statistically significant difference between those staff based in the smallest forces, with those in the largest force. In this instance, the former were more likely than expected to 'disagree completely' with the statement and more likely to 'agree slightly' that issues should not always be entirely dealt with by the force (p > 0.04). However, perhaps unsurprisingly, members of boards/ SPSA were significantly more likely than expected to respond 'don't know' to each of the statements about local policing issues.

AIM 3: To identify policing responsibilities which might more effectively be delivered nationally, regionally, or by collaboration between forces.

Support for the need for police forces to work together to provide specialist and expert services was evident within the series of questions detailed under Aim 3 of the review.

Despite an evident belief in the importance of local knowledge and experience, Figure 5 illustrates that 87 per cent of respondents also agreed to some extent that forces should work together to better provide specialist and expert services.

Figure 5. Some specialist and expert services would be better provided by police forces working together

The qualitative responses provided by respondents also facilitated some insight into individuals' understanding about the need for joint-working. Perhaps inevitably, the main reason given among those officers working within Scotland's smaller forces was a need for areas with fewer resources to enhance their service delivery by drawing upon existing services:

Some of the smaller forces find difficulty in providing the level of specialist support, which may be required in certain circumstances. An arrangement, whereby certain specialist support could be delivered by way of mutual aid or an amalgamation of trained staff from neighbouring forces could eliminate the stress placed on the smaller force.

Sergeant, Central

Additionally, respondents cited that national training can help to standardise quality of service so as to facilitate the sharing of resources, as the following quotation illustrates:

Scotland needs to have the capacity and capability to deal with serious and organised crimes and criminals both at local and national level. Mutual aid between forces in Scotland can and does work well, and on occasions this mutual aid can be sought from south of the border… National training in respect of specialist services gives a confidence that the quality of service should be the same throughout Scotland.

Chief Inspector, Strathclyde

There was also support for the idea that there is a need to develop criteria to decide what services are provided at the different levels of policing. Figure 6 below presents the findings taken from participants' views on this issue.

Figure 6. There is a need to develop criteria to decide what specialist and expert services should be provided at local, force and above force level

As detailed, respondents were strongly in favour of establishing criteria at all three levels of policing. Only four per cent of respondents disagreed that there was a need to develop any criteria.

AIM 4: To make recommendations for the organisation, governance and accountability which best support the delivery of those policing responsibilities.

The final aim of the review concerns issues of organisation, governance and accountability. In relation to the responses provided in previous sections of the survey, participant's views on the thirteen questions in this final section illustrated either a greater degree of indifference, or a lack of knowledge about the subject (as evidenced by the increase in the number of 'don't know' responses). Whilst this also corresponded with a slightly lower response rate to each of the questions, the overall rate nevertheless remained relatively high at between 80 and 90 per cent.

In relation to issues of service delivery, participants were asked to consider the roles of the three elements of tripartite accountability. Over 49 per cent of respondents ( n = 2050) agreed that: ' When acting as members of police authorities and boards, councillors should put the interests of their authority/board above the interests of the local authorities to which they have been elected.' However there was a markedly mixed response in relation to the roles of police authorities and boards/chief constables when considering national interests. Figure 7, below, presents the findings.

Figure 7. Members of police authorities/boards and chief constables should consider the national interests of policing in Scotland, even if this might mean compromising their individual force/service interests

In terms of accountability, respondents were generally positive about the abilities of both the police authorities/boards and the Scottish Government, to hold forces/services to account. Whilst more than a third of all respondents answering the statement outlined in Figure 8, indicated that they 'don't know' about the current level of accountability, over 40 per cent of respondents responded positively to the statement. Interestingly, the chi-square test revealed that members of SPSA were less likely than expected to agree that the Scottish Government is good at holding services to account (p > 0.000).

Figure 8. Police authorities/boards and the Scottish Government are good at holding police forces/ services to account

The data presented in Figure 9, suggest that most respondents were keen to ensure the maintenance of structures of accountability: moreover for many officers a need for both local and national accountability were not mutually exclusive.

Figure 9. Specialist or expert policing does not have to be delivered by local staff, as long as those that do deliver services are held to account through a local/national chain of command

The following quotation typifies the thoughts of officers who answered 'agree' with both of the statements detailed in Figure 9.

The provision of national units to deal with specialist roles would provide greater consistency of delivery of service and force the need to agree national standards. …Any national units should be accountable to a national chain of command, but this has to allow for local command teams to be consulted and informed through clear and effective communication, with clear protocols agreed regarding roles to avoid any misunderstandings. Local command teams would have to accept that national policing concerns may on occasion over ride local concerns, as national command teams would have to accept the need to ensure local concerns were considered as far as possible.

Sergeant, Lothian and Borders

Overall, respondents' views about organisation and accountability were most clear in relation to local policing. As Figures 10 and 11 illustrate:

Figure 10. Respondent views on the need for policing to be locally accountable

Figure 11. Respondent views on the need for policing to be locally commanded

The similarities between the above Figures is immediately apparent. Amongst the 2,037 respondents who elected to respond to the first question and the 2,016 who responded to the second question, there was a common belief that there was a need for most policing to be locally accountable and commanded by local police officers.

Moreover, perhaps predictably, when considering accountability issues in relation to the delivery of operational services, respondents had very definite viewpoints, as Figures 12 and 13 highlight.

Figure 12. Specialist or expert policing does not have to be delivered by local staff, as long as those that do deliver services work with local officers

Indeed, among the 2,036 individuals considering the need for local officers to undertake policing activities, 78 per cent of all respondents agreed that 'most' policing should be undertaken at this level (with a further 14 per cent agreeing that 'all' policing should be carried out at a local level).

Figure 13. Respondent views on the need for policing to be undertaken by local officers

The qualitative data further provided numerous examples of respondent views on the importance of local policing. The following quotation offers one such respondent's thoughts on the issue:

When the public and media look for 'bobbies on the beat', they are not simply meaning numbers. From my interactions with various community organisations it is clear that they want a familiar face that they recognise and trust. Each force should be able to maintain the local interface between community-focused officers and the public.

Inspector, Grampian

However, whilst the vast majority of respondents indicated that they believe most policing should be locally accountable, locally commanded, and undertaken by locally-based officers, participants across all ranks similarly illustrated their support for some level of national command and accountability. Tables 5 and 6 present the findings.

Table 5. Breakdown of respondent views on the need for policing to be nationally accountable

Table 6. Breakdown of respondent views on the need for nationally commanded policing

The qualitative responses of participants across all ranks further support the need for predominantly local policing, supported by additional police work carried out and commanded on a national level. The following quotations illustrate respondents' reasoning:

The public do expect local, visible policing to be delivered by locally accountable and commanded staff. However when it comes to the layer of criminality, such as serious organised crime, which goes for the best part unseen by the public, I believe they expect it to be delivered in a highly professional manner, but I do not believe they are so concerned about local command. They are more concerned with ability and consistency …Nationally delivered high level expertise and locally delivered visible policing.

Chief Superintendent, Tayside

I believe contextual knowledge is essential in gaining proper understanding, and greater understanding surely leads to better judgements and more effective measures. However, criminals don't recognise borders, whether force or national. It is absolutely essential therefore that policing also operates across existing arbitrary, structural borders, particularly specialist services dealing with more serious crime. Wider specialist services working with local forces could take advantage of local knowledge and bring more expansive expertise.

Police staff member, Strathclyde

Our communities demand that policing is locally based, locally accountable, and locally responsible to provide an effective and efficient service in dealing with the issues of concern. This is fundamental to providing public reassurance and community safety. Where national perspectives impinge on that ability there needs to be not only collaboration but consultation with Chief Officers. Such national policing issues must be supported by regional police forces/services and it is important that the lines of accountability for those agencies charged with carrying out these duties are clear, transparent and effective - but most importantly that they are implemented and that where necessary the powers and sanctions are available to rein in errant agencies.

Chief Inspector, Northern

Conclusions

The data outlined above provides valuable insights into the viewpoints of police service personnel on the current and future issues surrounding the delivery of policing in Scotland. Whilst attempts were made to cross-tabulate responses across roles/ranks and between individuals working within different forces and organisations, these comparisons did not generally reveal any significant differences: although it must be borne in mind that numbers were often too small in isolation to establish any reliable conclusions.

It is worth noting here that, although small in numbers compared to police officers and staff, the 54 participating members of police authorities/boards and the number of SPSA staff who responded represent a high proportion of all available members. Looking at the way these participants answered the series of statements in the survey we can say that, overall, they tended to agree with the majority view in 81 per cent of cases.

Despite the small numbers in some of the individual groups of respondents it was possible to draw inferences from the sample as a whole. It was clear from both the quantitative and qualitative responses that the vast majority placed considerable value upon local policing, accountability and governance.

Despite an acknowledged need to maintain this local policing focus, there was recognition of the importance of centralising more specialist and expert services and encouraging co-working with other forces within Scotland. Furthermore, the majority of respondents felt there to be a genuine need to establish criteria to decide upon the provision of services at each level of policing. Whilst participants held less clear ideas about the roles of police authorities/boards and the Scottish Government in managing the police service, they recognised the importance of maintaining local command and involvement in delivering services.

As outlined at the start of this summary, the small sample size limits the extent to which any inferences can be generalised to the wider workforce and agencies. Although the numbers of responses to questions declined towards the end of the survey, and many individuals elected not to respond to a number of questions, nevertheless at least 80 per cent of participants answered every question, with few questions answered by less than 90 per cent of individuals. The overwhelming majority of the respondents thus felt strongly enough to respond to each of the issues raised by the review. Indeed, many participants used the free text response box to state their wish to be consulted further, and felt that any future research would benefit from considering their views. As such, the fact that so many people accessed the survey within the short time scale - and the clear themes emerging from the data - indicate the strength of feeling of many individuals working across the police service and highlights the importance of further scoping work and analysis.

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