NORTHERN CONSTABULARY: Review Inspection 1998

Chapter 5: Human Resources

5.1 The Human Resources (HR) Service Unit deals with the functions of personnel, recruitment, training, employee development, welfare and health and safety. Responsibility for all these issues lies with the Head of Human Resources who reports directly to the Chief Constable.

Strategy

5.2 The Primary Report noted that a HR strategy had not been prepared. A strategy was published in May 1998 setting out broad principles in relation to Staff Relations, Staff Development and Staff Resourcing. However a number of the matters highlighted are dependent on work that is still to be undertaken and HMIC has concerns over the length of time it is taking the force to resolve and progress some key issues. These include deployment and selection policies, training needs analysis, and support staff appraisal and development. A number of HR policies are now beginning to emerge, having been through the route of the Practitioner Groups, but HMIC urges the force to look closely at the outstanding HR issues and establish a priority list.

5.3 At the time of the Primary inspection, two key issues were identified as requiring attention and formed the basis of the recommendation that:

Primary Inspection Recommendation 6

"an urgent review of personnel policies be conducted to develop and implement policies which will improve transfer, promotion and specialist appointment arrangements and to examine equal opportunities aspects for female officers".

Transfer

Review Inspection Findings

5.4 There are some 570 police officers deployed throughout the eight area commands and about 80 at Force Headquarters. These are not permanent postings and the normal cycle of transfer into specialist posts, promotion and career development means that there is considerable movement of staff throughout the force area. The Chief Constable inherited a fairly rigid deployment policy which meant that most officers could expect to be moved approximately every five years. The Primary Inspection Report recognised the fact that the Chief Constable was intending to address the dissatisfaction that existed, but noted that in looking at a new deployment policy that "this too caused worries due to uncertainty about how it would operate".

5.5 A Deployment and Selection Policy has since been published and forms part of the developing Force Reference Manual which is replacing the old Standing Orders. However the policy is couched in very general terms and HMIC was unable to find any evidence that it has lessened the uncertainty in the force. In fact the whole issue of transfer was still a significant concern with nearly all of the officers spoken to.

5.6. The document sets out the force's broad principles in relation to deployment of staff and states that "due consideration will be taken of matters affecting the welfare of officers and their families". The policy makes provision for officers to remain in post beyond their minimum tenure periods, but does not specify what these periods are, nor indicate how or when a review of an officer's suitability to remain in post would be conducted. On asking for clarification, HMIC was referred to a separate document namely a force standing order on "Transfer", which set out tenure periods from three to five years dependant on location and whether the officer was married or single. In the light of this experience it is not difficult to understand the continuing uncertainty among officers as to the criteria presently being applied by the force. The uncertainty was leaving officers, particularly those who had been five years in one posting, feeling vulnerable to a move yet unwilling to raise the matter for fear of precipitating a transfer they did not want.

5.7 The main principle of the new policy appears to be "flexibility" and a genuine desire to treat people as individuals. All posts are advertised and a force Personnel Panel chaired by the Deputy Chief Constable has the final say in deployment. However this new more open approach has thrown up other issues which were less apparent in the more rigid former system, for example: the undertaking to consider family issues and welfare has fostered a belief that a disproportionate transfer burden could fall upon officers with fewer family connections and in particular those who are single. This is potentially inconsistent with the force's published equal opportunities policy which undertakes to treat officers equally irrespective of marital status there is a concern among some Area Commanders that the pattern of "voluntary" moves paid little regard to the need to maintain a balance of skills among their staff officers who had "volunteered" for transfer often stated that they did so in response to a specific invitation and in the belief that a refusal might result in a compulsory transfer to an area not of their choosing. Whilst the force has provided statistics which indicate that the overwhelming majority of transfers are recorded as voluntary, our contact with some of the "volunteers" leads HMIC to urge caution before such statistics are accepted at face value there was evidence that in peripheral areas of the force, vacancies were not being speedily filled, leaving areas, which by their very nature require to be more self-sufficient, below optimum strengths.

5.8 HMIC accepts that there is genuine commitment on the part of the force to treat people fairly, but considers that there is an issue here about managing the perception as well as the reality. If officers do not perceive that the practices are fair and are continually apprehensive about their future, this can have an unsettling effect which could work to the detriment of operational efficiency. HMIC would urge the force to revisit this issue as a matter of priority and set out more clearly the ground rules in relation to transfer and deployment so that the requirements and responsibilities of the force and the obligations and rights of officers are clearly understood. The revised policy should be set out in a single comprehensive document available to all staff and its provisions should be fully consistent with the force's equal opportunities policy.

Review Inspection

Recommendation 4

HMIC recommends that the force more clearly sets out the ground rules in relation to transfer and deployment in a single comprehensive document so that the requirements and responsibilities of the force and the obligations and rights of officers are clearly understood. The revised policy should be fully consistent with the force's equal opportunities policy.

Promotion

5.9 The Primary inspection noted that many officers "expressed concern that there did not appear to be declared policies for promotion or specialisation. Doubts were expressed about the openness and fairness of the systems".

Review Inspection Findings

5.10 The force plans to have Assessment Centres in place by April 1999 and has employed a consultant to progress this issue on the basis of assessing "competencies" for ranks. An interim procedure was introduced at the end of 1997, for promotion to the rank of sergeant and inspector, and all eligible officers were invited to state why they thought they would be suitable for promotion. These applications were channelled through local Service Unit Managers and applicants were interviewed by two of the force Advisers prior to a short list being drawn up, for interview by the Chief Constable and Deputy Chief Constable.

5.11 There was a lot of interest shown in the process with over 200 officers applying, resulting in a pool of 19 constables and 11 sergeants, who then became eligible to apply for advertised promoted posts. A similar exercise was also undertaken to identify officers suitable for promotion to Chief Inspector and Superintendent rank.

5.12 Whilst HMIC recognises the objectivity with which this process was undertaken, it was unfortunate that lengthy delays in providing feedback to candidates who were not successful has caused a degree of resentment and has left Area Commanders and departmental heads with the task of managing the disappointment that resulted. It has been the experience of other forces that the transition to a more objective system can be difficult and requires careful handling so that the essential openness of the process does not dent the morale of a willing work force.

Specialist Appointment Arrangements

Review Inspection Findings

5.13 While commending the greater fairness of the formal promotion process, HMIC had some concerns over how officers accumulated an adequate portfolio of experience to give them the means to compete successfully. It is the ability of officers to get their foot on the first rung of the ladder that will determine how far up the ladder they will finally climb. This is particularly significant in the light of the forces recognised need to create a structure in which female officers can compete on an equal basis. We were therefore disappointed to discover that: There is not a standard system for the appointment of Aides to the CID with local management identifying likely candidates. In three of the eight territorial areas there were no Aides at the time of the inspection and while accepting the competing operational demands which had led to this situation, officers within these areas are nevertheless being disadvantaged in the opportunities open to them. Selection for the traffic unit was likewise dependent on having completed "qualifying" courses, which were also decided at the discretion of Area Commanders. There were different standards set in the appointment of acting ranks, with no general requirement for qualifications or eligibility for promotion. When asked how officers were selected for these opportunities, managers typically replied that they "picked the best man for the job". There was no evidence of objective assessment to specified criteria and there appeared to be limited recognition of the need to select on a basis which could be defended in terms of equal opportunities.

5.14 HMIC considers that the force ought to progress towards a more structured selection process for specialist appointments. In particular, means should be established for selecting officers in a manner fully consistent with the force's commitment to equal opportunities.

Review Inspection

Recommendation 5

HMIC recommends that the force develop a structured selection process for specialist appointments and acting ranks, which should be fully consistent with the force's equal opportunities policy.

Female Officers

5.15 The Primary Inspection Report commented on the low percentage of women officers within Northern Constabulary, which was 10.5% as against the Scottish average of 15%; the fact that only two of the forces 106 sergeants were women and that only nine women held specialist posts. HM Inspectors "found no evidence of obstacles being placed in the way of the recruitment and employment of women" and suggested that a survey of women officers might be a step towards better equipping the force to develop the role of women.

Review Inspection Findings

5.16 Eight out of the 26 officers recruited into Northern Constabulary in 1997/98 were women, bringing the total to 74 (including one part time) and representing 11.2% of the force strength. There was evidence that a "positive" recruiting campaign was encouraging more women to come forward.

5.17 One recent promotion has brought the number of women holding the rank of sergeant to three and, at the time of the Review inspection, 12 women officers were employed in specialist duties. HM Inspectors spoke to a cross section of women officers and the general feeling gained was one of positive change and increased opportunities. The force is hopeful that its more open and objective career development approach will provide women with greater equality of opportunity. However, HMIC had concerns over one or two assumptions that were in evidence during general discussions with managers, particularly in relation to the types of duties and localities which may, or may not, be appropriate for the deployment of female officers. HMIC noted that no survey had been carried out internally to ascertain the aspirations and expectations of the women in the service and considers that more than the introduction of an objective promotion process is necessary to ensure genuine equality of opportunity. The findings set out in paragraph 5.13. are also relevant in this respect.

Equal Opportunities

5.18 In a more general vein the force has embarked on an extensive training programme entitled "People Management Skills", for all officers of and above the rank of sergeant and for support staff with managerial responsibility. The three day course is wide ranging, covering issues such as equal opportunities, recruitment, selection, discrimination, harassment, bullying and an introduction to support staff discipline. Officers spoken to who had already been on the course, spoke very highly of it, and the force are to be commended for the commitment it is showing to the delivery of training in this field.

Support Staff

5.19 At 31 March 1998, Northern Constabulary employed 268 support staff, many holding key positions within the organisation, providing expertise and continuity. However the Primary Inspection Report highlighted the disquiet among a number of the staff concerning a recent job evaluation exercise which had engendered a large number of appeals about the subsequent gradings. There were still some negative comments made to HM Inspectors concerning the process. Not surprisingly, those whose jobs had been more highly evaluated thought well of the system and the remainder felt disappointed. There is an obvious issue here about the management of expectation.

5.20 The Primary Report raised the matter of support staff appraisal which, although introduced in 1995, had failed to take off and had fallen into disuse. Support staff spoken to during the Review inspection said they would welcome such a system which they felt would consolidate their place within the organisation. HMIC found no evidence of a structured career development process for support staff and there seemed to be no means of identifying skill needs nor planning career paths. The force document "Our Strategy for Policing with Purpose. Action Plan 1998" indicates that a support staff appraisal system is targeted for delivery by 31 March 1999. The Chief Constable has since indicated that this should read "July 1999". In the light of our earlier comments concerning the target date for the public survey (see para 2.14) and given the importance of this project, the force may wish to take steps to remove any remaining uncertainty regarding the target date.

5.21 The Chief Constable is keen to promote participation in the running of the force by police and support staff alike and at the Chief Constable's instigation there is union representation on all Practitioner Groups and working parties. The UNISON steward also attends Joint Police Board meetings.

Special Constables

5.22 The force relies heavily on the commitment and enthusiasm of its 430 special constables, not only in providing a lone police presence in some of the remoter parts of the force area but also in patrolling with regular officers in town centres. The Primary Inspection Report commented that there was nevertheless "a lack of co-ordinated policy regarding their duties and training" and recommended that:

Primary Inspection Recommendation 7

"Special constables be trained in the use of rigid handcuffs and extendible batons and have these available to them when they attend for duty".

Review Inspection Findings

5.23 This recommendation was in line with the national standard agreed by all Scottish forces and has been delivered by the force in relation to its special constables who undertake uniform duties. The force had some concerns however, over whether this general requirement to be officer safety trained, extended to the many special constables in remoter areas who provide a vital presence but who do not perform a uniform operational role. Given the unique nature of Northern Constabulary, HMIC has some sympathy with the principle of retaining non-operational special constables as a point of contact in isolated communities. However, in order to remove uncertainty, arrangements for continuing this practice need to be formalised. In particular the force should ensure that such officers are not asked to undertake any duties for which they are not fully trained and equipped.

5.24 In looking at the special constabulary as a whole HMIC felt that there was still an unresolved issue in relation to the duties performed by special constables and their general training. Since 1996, the training of special constables has been devolved to Area Commands and HM Inspectors found that the delivery was patchy, with one officer spoken to having received little formal instruction since joining over a year before. The use of special constables also appeared to be limited, with officers providing a valuable presence but taking little part in what was going on other than to provide corroboration. HMIC considers that the force first needs to define what roles it wishes its special constables to perform and, having done this, to identify clearly their skill requirements and training needs. Whilst it is expected that new national guidelines will provide some support there remain issues unique to Northern Constabulary which the force needs to address.

Training

5.25 The Training Department is part of the Human Resources Service Unit and, since July 1998, has been led by a civilian training manager in charge of a team of three police and five support staff. Nearly all training is conducted at the centrally based training department and, although the force had done some pioneering work in distance learning in 1991, this had not been progressed. The Primary Inspection Report recommended that "because of the special needs of the force distance learning training should attract a higher priority".

Primary Inspection Recommendation 8

"That distance learning training packages and a more cost effective method for delivering IT training be developed."

Review Inspection Findings

5.26 The force now has a distance learning co-ordinator and has developed a distance learning strategy using the extensive library of packages compiled at the Scottish Police College on behalf of all forces. The theory is soundly based with supervisory officers playing an important part in identifying any gap in officer skills and in the initiation of the subsequent training. The scheme had only just started at the time of the review inspection and HMIC will be interested in the future to see how it is evaluated. The force also have a planned roll out programme for the Police Information Network System which will eventually allow reference and training material to be delivered at computer terminals in all areas. HMIC commends the work the force has done in this regard but suggests that there may be scope within the Constabulary to deliver other training, in addition to distance learning, within the Area Commands, thus removing the expensive and time consuming requirement for officers and support staff to attend the central training department.

5.27 This possible approach was highlighted in the Primary Inspection Report, particularly in relation to IT training. During the Review, HM Inspectors came across examples of good practice by Area Commanders such as using facilities available at local colleges to train and update support staff skills. In relation to Information Technology, HMIC considered that the interface between the Training Department and the Information Technology Department was not set out clearly enough. In the development of any future systems, the training manager ought to be a key member of the Project Board, so that the ability to provide cost-effective training plays an integral part in the selection of any particular system.

5.28 There appeared in general to be a reluctance to take training out from the centre. The problems of a scattered workforce, operational commitments and lack of local facilities were cited. HMIC considers that it would be worthwhile for the force to conduct a cost benefit analysis on training options in view of the heavy cost of bringing people into one central point. However as a first step HMIC would recommend that the force conducts a training needs analysis so that however it chooses to offer training in the future, all training is necessary and relevant to the development of staff and the needs of the force. HMIC did not get a sense that there was a strategy for addressing the training needs of constables outwith their probationary period.

Review Inspection

Recommendation 6

HMIC recommends that the force conducts a training needs analysis and a cost benefit analysis on training options, in view of the existing heavy cost of centralised training.

5.29 The force is hoping to progress to full devolved resource management by 1 April 1999 when service units will become the paying customers of the training department. Service Level Agreements are being developed at present and HMIC suggests that clear standards will need to be set in respect of the level and quality of training that officers throughout the force can expect. This should enable equality of access to training and subsequent professional development.

5.30 The Primary Report also stated that "training for IT Department staff requires to be addressed". It was said that the reason that the proposed training in 1997 did not happen, was lack of funding. HMIC would urge the force to reconsider this important developmental programme.

Health and Safety

5.31 At the time of the Primary Inspection the force was about to appoint a health and safety adviser to progress its responsibilities in relation to the implementation of the Police (Health and Safety) Act 1997.

Review Inspection Findings

5.32 Forty Risk Assessors, mostly sergeants and inspectors, have now been trained throughout the force and have carried out risk assessments on the work performed by staff. These assessments were in line with the generic templates produced by the Home Office, although the force has identified some responsibilities which are peculiar to Northern Constabulary. HMIC felt that this part of the exercise had been carried out well but felt that the issue of supplying equipment, and delivering skills in consequence of the findings of the risk assessments, had not been fully addressed. When talking to managers, it was found that health and safety was usually spoken of as a "buildings" rather than a "working practices" issue. There were a number of matters brought to the attention of HM Inspectors by staff during the course of the Inspection which it appeared were not being fully addressed as health and safety issues, for example: lack of procedures for ensuring officers in remote locations safely completed their tours of duty no first aid equipment in some vehicles unsuitability of some vehicles for the work required absence of snow survival equipment and/or training, in some areas of extreme climate no facilities for transporting non-cooperative prisoners in some locations remote from assistance no training for most support staff in dealing with confrontational situations.

5.33 While it is recognised that these issues carry resource implications and that there will inevitably be a need to prioritise HMIC considers that the force needs to continue to re-assure itself that identified risks are being recognised and addressed. Whilst some of these issues rest in the first instance with local management there nevertheless remains a need for a degree of oversight from the centre in order to ensure that the interests of the Chief Constable and the Joint Board are properly protected.