HM Inspectorate of Constabulary: A Report of Her Majesty's Inspectorate of Constabulary: Scottish Crime Squad 1999

1 Accountability and Funding

Introduction

1.1 The inspection of the Scottish Crime Squad was conducted along traditional lines, looking at how it performed its given role. Throughout the inspection HMIC found evidence of professionalism and a culture of continuous improvement as the Squad continues to develop its role of spear-heading the efforts of the Scottish police service to combat serious and organised crime. The Scottish Crime Squad has an impressive record in targeting and bringing to justice those at the forefront of criminal activity in Scotland. Much of this success is due to the personal commitment and single mindedness of the police officers and support staff who serve with the Squad.

Background

1.2 It is 30 years since the formation of the Scottish Crime Squad in May 1969, when it was established by means of a collaboration agreement by the Scottish forces, under Section 12 of the Police (Scotland) Act 1967. It was initially under the command of an officer of Assistant Chief Constable rank with a police complement of 80 officers. The agreement was renewed in 1976 following the reduction in the number of police forces to 8 in 1975. At the same time restructuring of the Squad resulted in the rank of Commander being reduced to Chief Superintendent and the police establishment reduced to 50. However in the late 1980's, concerns regarding drug related crime resulted in increased numbers and the addition of specialist Drugs Wings. A more co-ordinated approach to criminal intelligence at a national level saw the establishment of the Scottish Criminal Intelligence Office in 1989 and in 1990 the Scottish Technical Support Unit was created to provide technical equipment and expertise to both the Scottish Crime Squad and local forces. In 1993, in recognition of the strong link between drugs and serious crime, the Squad was restructured into its present five operational syndicates, with a remit to target serious crime with national and international dimensions.

Funding/Accountability

1.3 The Scottish Crime Squad is not in legislative terms a service provided by the First Minister (a common police service) under Section 36 of the Police (Scotland) Act 1967. Nevertheless its funding arrangements are dealt with in similar fashion to a common police service through the Common Police Services Committee. Section 36 of the Police (Scotland) Act 1967 (as amended) enables the First Minister to recover 50% of the expenditure on common police services (including the Scottish Crime Squad) from the police grant payable to police authorities. In relation to the Squad the amount recovered is based on recorded crime figures from each authority. Because of the financial contribution made by the First Minister he requires to be satisfied of the adequacy of the Scottish Crime Squad's management systems and receives the Commander's published annual report.

1.4 The operational conduct of the Scottish Crime Squad is overseen by the Standing Committee of Chief Constables, comprising the Chief Constables of all 8 Scottish forces, which delegates executive responsibility for the operational control and administration of the Squad to the Commander or his Deputy. Neither the Scottish Executive, COSLA nor any of the police associations are represented on this committee and this reflects the diverse accountability structures which apply to the Common Police Services and which to some extent reflect their historical origins.

Figure 1: Organisational structure of the Scottish Crime Squad

1.5 The funding and accountability of such centrally provided services has been a topic of interest within policing circles in recent years and a Working Group, chaired by the Scottish Executive, into the Funding for Common Police Services has just reported. The Working Group questions the suitability of the current funding arrangements and HMIC would endorse their recommendation of the need to synchronise the consideration of general police budgets and those of the Common Police Services (including the Scottish Crime Squad). This would allow the relative priorities between mainstream policing and common police service functions to be considered together, which should ensure that the priorities and expenditure on national services can be considered as part of the totality of police expenditure. The Working Group has also recommended that the constitution and composition of the various Common Police Services committees be reviewed by an extended Working Group.

Role/Structure

1.6 Throughout the Inspection it was difficult to look very far without coming back to the fundamental issue of the role of the Squad and whether its present structure, legal status and lines of accountability could continue to offer best value and operational effectiveness in the years ahead. There are challenging times facing Scottish policing and HMIC felt that it was inappropriate to consider the work of the Scottish Crime Squad only as a 'snapshot' in time, without considering how it might build upon its solid foundations. The nature of the contribution the Squad can make to the policing of Scotland in the 21st century is intrinsic to the debate.

1.7 HMIC believes that any examination of the role of the Scottish Crime Squad, must first look at:

• the extent of the strategic threat to Scotland posed by serious and organised crime;
• whether there is an adequate understanding and intelligence relating to such activities; and
• the form of policing structures best suited to addressing the threat.

Any debate on the role of the Scottish Crime Squad, in the absence of a strategic analysis of the threat which the Squad is asked to oppose, risks becoming speculative and shallow. HMIC therefore recommends that the Standing Committee of Chief Constables commissions a strategic review of the threat to Scotland from serious and organised crime and suggests that chief constables may wish to make use of the particular expertise of the National Criminal Intelligence Service.

1.8 While the Standing Committee is the most appropriate body to commission such a review, the issues of funding, accountability and structure are outwith the scope of the Scottish Crime Squad or the Standing Committee to address alone. A Steering Group, reporting to the Scottish Executive, has been established to look at aspects of the future policing of Scotland. HMIC would ask this group to consider

• whether the policing needs of Scotland would be better met by a Scottish Crime Squad under the direct command of a chief officer, accountable to a formally constituted police authority. Any such development would of course involve some separation from the current structure of local policing and this would need to be carefully managed. Any new arrangement would also need to address the 'primacy' of chief constables within their own force areas. HMIC would also ask that the findings of the review referred to at Recommendation 1, be used to inform this debate.

1.9 There is in any case a concurrent need to consider in more detail:

• whether the present Common Police Services structure continues to be the ideal vehicle for addressing issues of funding and financial accountability for the Scottish Crime Squad; and
• whether the Scottish Crime Squad's operational accountability to a committee of 8 chief constables, while providing a basis for collective ownership, can continue to deliver immediate strategic direction and accountability in all situations.

1.10 This report will touch on a number of related matters and in particular the impediments presented by existing arrangements to the achievement of a fully national role as well as the occasional conflict between the need to satisfy local interests and the wider strategic aims of the Squad. HMIC would therefore ask that the Recommendations and Suggestions in this report that have national implications, also be referred to the Steering Group for inclusion in the debate.