Tayside Police Primary Inspection 1999

5 Operations

1. Crime Trends

1.1 The total of reported crime in Groups 1-5 (the serious offences) in 1998-99 was down by 5.36% on 1997-98 statistics, from 34348 to 32508. In particular Group 3 crimes - crimes against property - have shown a welcome 7.03% decrease, from 21695 to 20169, and within this grouping theft by housebreaking has fallen by 8.54% from 2986 to 2731. A focussed and targeted approach by the force in the field of crime prevention and in the targeting of known criminals has contributed to these decreases. Detection for all crime has shown an increase from 36.87% in 1997-98 to 37.62% in 1998-99, with detections for theft by housebreaking up marginally from 15.71% in 1997-98 to 15.85% in 1998-99.

Figure 2: Percentage of Crimes Detected - Scotland 1998

Figure 3: Total Number of Crimes Recorded per 10,000 population in 1998 by Force Area

2. Crime Strategy

2.1 A Crime Strategy Document is in place and available on the force computer database (on the I-Drive which is fully accessible to all staff). The core elements of the force response to criminal activity continues to be prevention, investigation and detection. The detective chief superintendent, Headquarters (HQ) Crime Management is charged with a specific responsibility for co-ordinating both central and divisional operational activity in pursuit of the crime strategy. The strategy specifies the goal of consistently achieving a 5% reduction on the previous year's level of dishonest and violent crime against individuals. This is a demanding but realistic challenge. There was a 13.01% increase in serious assaults in 1998-99 compared with 1997-98. Statistics for crimes of dishonesty have been more encouraging however with thefts down marginally by 1.53% although more significant decreases have been realised in other categories for example theft by housebreaking is down 8.54% and theft by opening lockfast places down 26.07%.

2.2 The strategy commits to collaborative partnership and the use of intelligence led policing in pursuit of crime reduction and increased detection. (See also paragraphs 5 and 8 below).

3. Crime Recording

3.1 The force has recently introduced force-wide a new crime recording facility on Integrity, the Tayside Police corporate computer database. Operational officers now input crime data by telephone to the newly created central data input bureau. It is anticipated this will significantly reduce the amount of paperwork officers

have to complete and free up time for other duties. Careful monitoring and evaluation will be necessary to ensure that a level of enhanced efficiency is achieved and the resources released re-directed. HMIC will follow through on this aspect at the next inspection. Once entered on the database the crime is instantly available for view throughout the force network and importantly at divisional crime management units for assessment and allocation.

3.2 Senior management believe that the new system will enhance the analytical opportunities for tackling crime by providing easier access to good management information. Increased information on repeat victimisation is available (but see paragraph 12.3 below on domestic violence) and at the time of pre-inspection the Crime Management Unit at Dundee was researching more deeply some of the emerging patterns in relation to this.

3.3 Recognising the advantages of good management information the force is developing a further management information system, which is intended to sit above the corporate database and draw on all the force applications, including crime reporting, further enhancing their ability to analyse information. At the time of HMIC inspection it was too early to assess the impact the new crime recording system but it will be reviewed at the next inspection.

4. Crime Management

4.1 Tayside Police have reviewed its approach to crime management across the force and a restructuring of HQ Crime Management has taken place with a view to ensuring that intelligence is properly collated and used to direct intelligence led operations. (See paragraph 5 below).

4.2 While the generality of the CID function is devolved to divisions HQ Crime Management undertake the development of policy as well as providing a co-ordinated response to serious or linked crimes which cross divisional and force boundaries. HQ crime management now consists of a detective chief superintendent assisted by a detective superintendent, 5 detective inspectors with responsibilities for Special Branch, Force Intelligence Bureau and Fraud, Identification Branch, Drugs/Surveillance Branch and Family Protection (which encompasses domestic violence, child protection, sex offenders and family liaison).

4.3 This restructuring has increased the number of HQ detective inspectors by one. The realignment is also mirrored in divisions where Domestic Violence Liaison Officers are located with the Family Protection Unit, as are officers responsible for undertaking Sex Offender Registration. As the restructuring is very recent it is too early to give any informed comment on the impact of these changes.

5. Criminal Intelligence

5.1 Criminal Intelligence information is now fully computerised and all officers and some support staff are able to input information directly onto the system from terminals located at stations throughout the force. This system has significant potential and has been well received by the force. Positive comment was made by divisional and specialist officers during HMIC visits.

5.2 Reorganisation of HQ Crime Management saw the creation of a dedicated inspector post to a crime intelligence role. The Force Intelligence Bureau (HQ) now consists of a detective inspector, a detective sergeant who is the Force Criminal Intelligence Officer, a deputy force Criminal Intelligence Officer (detective constable) and a support staff analyst. In addition there are 4 field intelligence officers (one detective sergeant and 3 detective constables). The latter group of officers has been re-deployed following a reorganisation of the Drugs/Surveillance Unit.

5.3 At the point of inspection most of the staff had only been in post some 2 weeks but priorities set included the proactive targeting of active criminals and the management of informants. It is intended that the Force Intelligence Bureau be tasked on a weekly basis by a Joint Tasking Group chaired by the HQ Crime Management detective superintendent and including each of the HQ Crime Management detective inspectors. Target packages would then be prepared and passed to HQ or divisional resources to undertake specific operations.

5.4 Locally there are criminal intelligence officers located within the crime management units at divisions and Force Intelligence Bureau maintains daily telephone contact with those officers although they are purely a divisional resource.

5.5 The importance of the criminal intelligence function within a force cannot be over-stated and the strategic co-ordination of all aspects of this is essential. The force crime strategy emphasises intelligence led policing and the restructuring of HQ crime management realigns several functions to further emphasise the importance of intelligence activity. HMIC believes that greater force-wide direction and co-ordination of intelligence activities would enhance the welcome changes that have taken place. Accordingly HMIC recommends that the force give consideration to the creation of a Director of Intelligence post with the responsibility and authority for driving and co-ordinating the intelligence function across all disciplines (not just crime) throughout the force.

6. Drugs

6.1 As part of the reorganisation of HQ Crime Management a new drugs unit has been set up based at Baluniefield. Prior to reorganisation, the force Drug Squad comprised a detective inspector, 3 detective sergeants and 16 detective constables who also provided a surveillance capability for other crime work. This functionality has now been split and the new surveillance team, which is also based at Baluniefield, comprises 2 detective sergeants and 10 detective constables, in 2 teams. One detective sergeant and 3 detective constables have been re-deployed to the Force Intelligence Bureau as field intelligence officers and 3 detective constables from the former Drugs Squad are now located at the 3 territorial divisions. The latter officers, although located at division, are not a divisional resource but remain part of the central group.

6.2 It is intended that the Surveillance Unit will be tasked via the Force Intelligence Bureau. (See also Chapter 5 paragraph 5.3 above) The de-coupling of the former Drugs/Surveillance Unit is intended to limit the exposure of surveillance officers, which might compromise their operational effectiveness. However some officers expressed concern on the impact this will have on effective drugs enforcement at a force level. Following the changes it is difficult to identify what constitutes the force Drug Squad and on questioning conflicting views were offered. HMIC will be interested to monitor the output and outcomes from these changes, as effective enforcement is a key component of the Government drug strategy.

6.3 Previously, Drug Squad Officers carried out all presumptive testing of drugs within the force and those officers now relocated to territorial divisions have taken this responsibility with them. At present the drug squad officers in Eastern and Western Divisions are also the only officers allowed to transport drugs productions to the laboratory in HQ. HMIC recommends that the transport arrangements for drug productions and the range of officers authorised to undertake presumptive tests is re-visited.

7. Community Safety

7.1 Since January 1999 the Community Safety Department previously entitled Community Affairs has been a part of the Force Support Group. Based at HQ the Department does not have a line management responsibility for divisional community safety resources but has a policy and co-ordination role.

7.2 With the realignment of HQ Crime Management a detective inspector post to provide the supervisory cover for family protection/domestic violence was created at the "expense" of an inspector post from the Community Safety Department who led on crime prevention. That function remains with community safety but inadequate consultation and communication about the role changes appears to have left some confusion about responsibilities. This needs resolution.

7.3 Queries were raised whether the Community Safety Department was best located under the Force Support Group. There are clear linkages between community safety and HQ Crime Management and there is a daily dialogue between these areas to ensure that co-ordination in relation to crime prevention and reduction strategies are being maintained. The inspector post "lost" from community safety had the responsibility for linking with crime management through attendance at HQ Crime Management meetings. In particular, the postholder had been responsible for pulling together a number of high profile force initiatives such as operation "After Dark" and operation "Holiday Snapshot". Senior management will monitor the impact and effectiveness of these changes.

7.4 Given the responsibility of the Community Safety Department for strategic issues (policy and co-ordination) and divisions' responsibility for operational activity on the community safety front the force might consider developing a force-wide quality assurance role for the HQ branch to enhance effectiveness.

8. Partnerships

8.1 Partner organisations described the Chief Constable and Senior Officers as readily accessible and helpful. They were regarded as a source of good advice and willing to assist in solving problems. Representatives of Councils, victim support and the racial equality commission were among those organisations seen by HMIC and in discussions with them about partnerships elicited consistent positive comments. There was very extensive partnership working on a wide range of activity with a wide range of partners, all to the credit of Tayside Police.

8.2 Partnership working in Central and Western Divisions was examined in the context of the police contribution to community safety as part of the wider community planning strategies of Dundee City Council and Perth and Kinross Council. The planning process developed from such strategy identifies targets, timescales and performance indicators. Arrangements are at an early stage and the challenge of maintaining the vision through to robust monitoring of outcomes lies ahead of the partners. Tayside Police have shown a commitment to the process and are represented at a strategic and co-ordinating level on groups such as the Perth and Kinross Community Planning Core Group, the Rough Sleepers Initiative, the Drug Action Teams, the Single Homeless, Children's Services and Education Partnerships. Each Division has a sergeant seconded to the local Council to promote community safety issues.8.3 The force is also committed to a number of collaborative projects such as the Community Safety Trust in Dundee which uses funding from the Government Social Inclusion Programme to improve the physical security of households in urban areas following a break-in or attempted break-in. The force is a partner in the Bridge Initiative in Perth and Kinross where partners include the Fire Service, the Ambulance Service, the Health Board, the Council, Crime Prevention Panels, Victim Support and Help the Aged. This partnership has produced a useful safety booklet and an emergency information scheme. That consists of a free distribution to the elderly or those with particular medical conditions of a plastic container for medication or information on medical conditions. It is kept in the fridge. Emergency services called to the household can identify from the sticker on the fridge door that the householder has relevant material stored inside.

8.4 Another interesting collaborative project for which the force had recently secured funding was a youth diversion project involving the prison service, the fiscal service, the reporter, the judiciary and social work services. Young offenders for whom a future custodial sentence is predicted are confronted with the realities of prison life. 'Hardcell' is designed to give awareness, to persistent child offenders, of life within a prison cell and the stark reality of a prison regime. The consent of parents and child is required.

8.5 In Dundee the force contributes to the Beacon Scheme which is a local partnership approach working with local councillors, other representative groups and local authority departments to address complaints related to young people at local area level. It emerged that some partners saw the Beacon Initiative as working less effectively than intended. As effectiveness of such an initiative is almost wholly dependant on sustained commitment from all those involved HMIC suggests it may be an appropriate time for a joint re-evaluation of the project. In general there was a wish for more joint focus on young offender issues.

8.6 Another form of youth diversion scheme, which the force is exploring in collaboration with the reporter to the childrens' panel and the social work department, involves elements of the Duke of Edinburgh Award Scheme and restorative justice. In this case youths from 15 to 21 years of age who are on the edge of criminality are identified for participation in a 5 day Army run course intended to divert them from further law breaking behaviour.

8.7 At the most local individual beat level Community Liaison constables collaborate with a range of community councils, tenants associations and neighbourhood watch schemes. They visit schools and contribute to safety education and drugs education programmes. The 3 councils in the force area have agreed to use the police box, "learning for life project", in their schools. This is an education package addressing drug misuse, law and order, vandalism, safety and bullying. The Police and Education Authorities had agreed to collaborate on the use of the police box education package but some differences were found between the understanding of senior management (police and education) about the extent of police box usage and what was actually happening. This would benefit from clarification. Individual initiatives by constables have contributed to fund-raising projects such as youth football, and youth drama projects to identify a few.

8.8 Schools appreciate the visits from community constables and the advice on security from the architectural liaison officer. The force is assisting with the planning for the new community school in Dundee. Input to drugs education was seen as valuable for pupils, parents and teaching staff. A new Drugs Liaison post is being created in each division to give further support to this work. Drug Action Teams activity is being devolved to work more closely with the local authority/divisional structures of the force area. Police have been very active in supporting discos with anti-drugs bands, summer fun weeks for children in the summer holidays and crucial crew exercises on children's safety - all seen by the education service as helpful activities.

8.9 Tayside Police was also regarded very positively by social work who described improved joint planning, better joint target setting and better handling of difficulties that arise from collaborative working. Good working relations existed between officers and social workers involved in diversion schemes, risk assessment, child abuse, domestic violence, supervised accommodation and the multi-agency panel on racial incidents. The Racial Equality Commission also praised the development of the multi-agency panel, co-operation and the helpfulness of the force. Victim support also reported good relationships with the force and constructive help from officers. The force had introduced the new nationally agreed leaflet and procedures for victim support involvement and this had produced a big increase in referrals.

8.10 Several of the partners would welcome an earlier involvement in the development of project proposals - they saw a tendency for the police to come with packages of worked out ideas and felt they were being presented with a 'fait accompli'. They would prefer to contribute their expertise by putting flesh on the bones of an idea rather than having only a choice of accepting or rejecting a worked out project. This view was also expressed by some council officials in both Central and Western Division. This criticism was proffered in a positive vein and HMIC suggests the force will want to consider how best to respond to it.

9. Community Constables

9.1 Some community constables had no job description, a limited idea of the force strategy on community policing, did no reports on visits to community groups, and did not produce a profile report on their area on an annual basis. Some officers seen attended community meetings for the entire period of the meeting while others arranged for police issues to be dealt with early in the agenda and returned to foot patrol. Some officers reported significant extraction from their duties to the extent of cancelling pre-arranged visits to schools. Some considered their style of policing was at the heart of force policy while others felt the force failed to show commitment to the style of policing and left them largely unsupported. Some rarely saw senior officers, certainly not in the context of discussing their work.

9.2 Most officers were more positive and found their experience much improved in recent years - particularly in terms of less abstraction and better attitudes among colleagues towards their role. This slightly mixed picture raises issues of communication, supervision and morale. While the clear balance of views was on the constructive side HMIC suggests the force will wish to consider how the positive position can be maximised.

10. Race Relations

10.1 The Force Race Relations Policy sets out the police response to racial incidents and the effectiveness of the policy is monitored by the officer in charge of the Community Safety Department. The Department also monitors the pattern of racially motivated crime. Trends and statistics are presented on a monthly basis to the force operations meetings chaired by the Assistant Chief Constable where Divisional Commanders are present. Statistics and patterns are also provided to the Tayside Race Equality Council for monitoring purposes.

10.2 An officer attending a racial incident is required to complete a racial incident form, which is then submitted to the chief inspector within the respective division who has a responsibility for monitoring the operational response to racial incidents. There is also a coding system on the command and control system and on the new Integrity crime reporting system for distinguishing racially motivated incidents. After the initial incident form has been completed a follow up form detailing the enquiries made, action taken and result is completed and submitted to the Community Safety Department.

10.3 HMIC noted the multi-agency approach now being taken in Central Division where the chief inspector has the option of calling a multi-agency panel meeting (within 5 days of receipt of the racial incident form). The officer in charge of Community Safety Department chairs all the panel meetings. In operation since last October six such meetings have been held and in all cases victims have been invited to attend but to date all have declined.

10.4 In 1997-98 there were 105 racial incidents recorded by the force and in 1998-99 the number of reports had risen to 125. This is seen as a direct result of the positive and collaborative approach to this issue and in the medium term an increase is a healthy outcome. The force have responded to the MacPherson Report (on the death of Stephen Lawrence) with a comprehensive audit of community relations within Tayside Police and a written response to the Working Group set up by the Association of Chief Police Officers in Scotland.

Table 3: Racial incidents report

11. Care of Prisoners

11.1 During the pre-inspection and inspection the custody centres at Dundee, Perth and Forfar were visited. Cell areas were clean and prisoner rights notices were posted inside cell doors. Turnkeys in Dundee assisted officers but not in Perth or Forfar. Although local officers seen by HMIC understood there was a review of the role of turnkeys in progress they demonstrated vagueness over its terms of reference and timescales.

11.2 CCTV is installed in each of the divisional custody centres. Central Division CCTV has an audio facility but only in the charge bar. A movement activated video system covers the cell corridors but not the prisoner waiting room. Both Eastern and Western Divisions have movement activated video systems at the charge bar with video monitoring of cell corridors. The force recognises the limitations with the systems and is reviewing CCTV provision. The importance of these safeguards for persons detained and police staff and the benefits for accountability should not be underestimated.

11.3 The force is also aware of shortcomings in other areas of prisoner care and handling. Showering facilities are available to prisoners in Forfar and Dundee but not in Perth. Perth also has the problem of moving prisoners from the charge bar to the cell area through a public part of the police office. Capital monies are being sought by the force to improve the situation. Procedures for processing prisoners, organising the supervision of the vulnerable and monitoring those requiring medication were paper-based. HMIC believes that officers will be better supported in these duties by the introduction later this year of a technology-based system. There is no use of photographs or other means of helping staff to identify prisoners and match them to their paperwork. The use of coloured discs outside cells to distinguish the kind of risk attached to detainees is seen as good practice.

12. Domestic Violence

12.1 At the beginning of 1999 Domestic Violence Liaison Officers were appointed to each of the 3 divisions; before one Domestic Violence Liaison Officer existed for the force area providing an overview and monitoring and giving support to victims force-wide. At that time the post came under the remit of the Community Safety Department but has now been transferred to the crime management function at HQ with line management to the detective inspector responsible for family protection and other matters. It was noted this was replicated in the divisional structures with the Domestic Violence Liaison Officers within the Family Protection Units coming under the remit of Divisional CID.

12.2 With devolvement of the domestic violence function to divisions and the introduction of the new crime recording system the force is in a development stage with processes and procedures. Concerns were expressed that currently some domestic violence incidents may not be being recorded as a crime or as an incident on the corporate database. Management will monitor this.

12.3 Back record conversion of the force stand-alone domestic violence database to the INTEGRITY system has begun. In the interim however, the lack of a structured management information system available to the force means that there is the risk of poor quality information on the number of incidents relating to repeat victims of domestic violence. HMIC anticipates this will impact on the accuracy and comprehensiveness of domestic violence monitoring throughout the force and considers it appropriate to review arrangements. Additionally it was observed that the database currently being used to record incidents of domestic violence is accessible to any enquirer and in view of the confidentiality or sensitivity of the information held this may need to be reviewed while retaining the capacity to provide operational officers with appropriate information. HMIC noted as good practice the arrangement whereby domestic violence liaison officers and family protection officers now work alongside each other thus enhancing cross-referral of information.

12.4 The force have chosen to retain the domestic violence liaison officer post at HQ and the postholder is now responsible for undertaking the training of probationers and raising the awareness of the police role with other organisations such as doctors, health care staff, social work, etc. While this may be appropriate in the short term HMIC suggests this should be reviewed once the divisional post has become established.

12.5 HMIC recognises that the force attaches priority to domestic violence and have expanded their capability (ie see paragraphs 12.1 and 12.3 above). While the force policy is readily available on the 'I drive' for all officers it is not as robust in relation to arrest and intervention as it might be. There are guidelines for charge room sergeants to consider detaining perpetrators in custody. Scottish Home and Health Department Police (Chief Constables) Circular No 3/1990 advocates there must be a presumption in favour of arrest for serious cases and force guidance should reflect this. In speaking with a wide range of officers throughout the force HMIC was not convinced that all police staff would apply a consistent policy with regard to the handling of incidents and arrest of offenders. HMIC recommends a review of the force policy and practices in order to clarify a number of issues in respect of the operational handling of incidents of domestic violence.