centrex central police training and development authority...

www.homeoffice.gov.uk/hmicA REPORT BYHER MAJESTY’S INSPECTORATE OF CONSTABULARY

CENTREX

Central Police Training andDevelopment Authority2003 Inspection

4963-Centrex Rpt-Cover 8/12/03 2:25 pm Page outi

ISBN 1 84473 128 6

CROWN COPYRIGHT 2003

FIRST PUBLISHED 2003

4963-Centres Rpt-Cover 8/12/03 10:21 am Page innii

FOREWORD AND ACKNOWLEDGEMENTS 5

CHAPTER 1 INTRODUCTION 7

Inspection Methodology 9

CHAPTER 2 RESULTS 11

Introduction 12

Measuring Centrex’s Success 12

Home Secretary’s Objectives 13

Mission and Vision 13

Customer Results 15

People Results 16

Society Results 18

Key Performance Indicators 18

Conclusion 19

CHAPTER 3 LEADERSHIP 21

Introduction 21

Centrex Board 22

Chief Executive and Senior Management Team 22

Corporate Identity 26

Race and Diversity 27

External Leadership Issues 29

Conclusion 30

CHAPTER 4 POLICY AND STRATEGY 33

Introduction 33

Excellence by Design 33

Additional Organisational Strategies 34

National Strategy 37

Policies in Centrex 38

Conclusion 40

1

Table of Contents

CHAPTER 5 PEOPLE 43

Introduction 43

People in Centrex 43

Police Staff 44

Seconded Police Officers 45

Agency Staff 48

Personal Development Processes 49

Valuing People 51

Conclusion 52

CHAPTER 6 PARTNERSHIPS AND RESOURCES 55

Introduction 55

Partnerships and Alliances 55

Community Involvement 56

Independent Lay Advice 58

Resources 59

Finance 59

Procurement 60

The Centrex Estate 63

Technology 66

Conclusion 67

CHAPTER 7 PROCESSES 69

Introduction 69

Centrex Quality Assurance 69

Evaluation 72

EFQM within Centrex 73

Internal Communication 74

Communication with Customers 74

Conclusion 76

CHAPTER 8 THE WAY FORWARD 77

Effectiveness and Efficiency 77

Short-term Actions 78

Longer Term 80

Future Inspection Programme 81

2

Table of Contents

CHAPTER 9 RECOMMENDATIONS: IMPACT AND INVESTMENT IMPLICATIONS 83

Benefit/Penalty Assessment Framework 83

Investment Implication Criteria 84

Immediacy 84

Summary of Recommendations 84

Appendix A CENTREX BUSINESS ARCHITECTURE 89

Appendix B MEMBERSHIP OF THE CENTREX BOARD 90

Appendix C ABBREVIATIONS AND ACRONYMS 91

Appendix D HOME SECRETARY’S OBJECTIVES 2003/4 94

Appendix E RATIONALE FOR SELECTION OF BENCHMARK ORGANISATIONS 99

3

CENTREX – Central Police Training and Development Authority

This initial inspection of Centrex was conducted at a time when the organisation was still evolving,

having only been formed in April 2002. That said, much of what exists today was in place before

that date, albeit under the title of National Police Training. The main differences between National

Police Training and Centrex lie in the way the latter is governed and structured. It no longer receives

direction and strategy as a department of the Home Office, rather it operates more independently

as an Non Departmental Public Body. The senior staff and Board are now responsible for

implementing all of the key internal processes and systems. This means Centrex has had to mature

quickly in order to be able to continue to operate in a challenging environment.

There are a number of factors that support the argument that Centrex is a key component of the

police service. Funding is allocated from the total police budget, a high proportion of staff are

seconded police officers, and it has the core responsibility for setting police doctrine and providing

support for operational policing matters. In addition, the statutory remit to inspect Centrex is

contained within the Criminal Justice and Police Act 2001 which stipulates that HMIC will

undertake this role in line with its responsibilities contained in the Police Act 1996.

The police service is experiencing closer scrutiny than at any time in the past, is heavily involved

in restructuring the strategic frameworks that exist to govern police training, and will be affected by

necessary changes to the way new officers are trained. All of these issues have impacted, and will

continue to impact, on Centrex.

Unlike police forces, Centrex has not previously been subject to statutory inspection. This means

that the organisation’s people have been required to understand the ethos and purpose of

inspection activity.

HM Inspector offers his thanks to the Board, directors and personnel of Centrex and to those chief

constables that provided assistance and support during this inspection. He is particularly grateful

to those people who were interviewed, or took part in focus groups, workshops and seminars.

Specific thanks are also due to the chief executives or their equivalent in:

• Runshaw College

• St Mary’s College

• South Yorkshire Police

who welcomed visits as part of a benchmarking exercise.

5

Foreword andAcknowledgements

One of the most important contributions was made by the members of the inspection team which

comprised both HMIC and seconded staff who were key to the successful completion of the work:

HMIC • Kevin Bowsher (Team Leader)

• Teresa Sears

• Diane Thompson

Dyfed Powys Police • David Morgan

Merseyside Police • Deborah Worthington

PSNI • Liam Byrne

Centrex Nominee • Andy Hunt

HM Inspector reserves particular gratitude for Chris Mould, the Chief Executive of Centrex in post at

the time of the inspection but who has now left the organisation. The circumstances surrounding his

departure had no impact on the conduct of this project, mainly owing to his pains to ensure that the

inspection was afforded all necessary support and assistance. This cannot have been an easy period

in which to welcome an external examination of the organisation and his efforts are recognised.

6

Foreword and Acknowledgements

1.1 The Central Police Training and Development Authority (CPTDA) or to use its trading

name, ‘Centrex’, was created by Part Four of the Criminal Justice and Police Act 2001 on

1 April 2002 as a Non Departmental Public Body (NDPB)1. Centrex’s terms of reference

and the mandate for HMIC to inspect the new authority are contained in the legislation.

This report is the culmination of the first such activity conducted on a statutory basis.

1.2 Prior to the creation of Centrex in April 2002, National Police Training (NPT) was managed

and funded as a department of the Home Office. Centrex, the new authority, under the

current business architecture (see Appendix A), is managed by a Chief Executive and

eight members of staff at director level who together comprise the senior management

team (SMT). This strategic level management architecture has only fully been in place

since April 2003. Each director is responsible for a specific business area:

• External Requirements

• Foundation Training

• National Centre for Policing Excellence (NCPE)

• National Police Leadership Centre (NPLC)

• Performance

• Practice Development

• Resources

• Training and Learning Services

1.3 These business areas are located across the Centrex estate either on a single function

site (eg Ashford) or on sites where units from differing directorates are co-located

(eg Harrogate).

7

1 A non-departmental public body is an organisation that provides a function for, or service to, a Government department without beingdirectly managed by it

1Chapter

Introduction

1

1.4 Overseeing the SMT activity is a Board made up of seven individuals drawn from

stakeholder organisations2 together with six independent members currently

chaired by an independent member, Professor Sir Clive Booth (see Appendix B

for membership details).

1.5 NDPBs are funded by their sponsor departments (in the case of Centrex – the Home

Office). For the financial year 2003/2004, £107 million has been allocated. This base

funding was taken from the Government’s annual policing budget but was set aside

prior to the allocation of monies to police forces.

1.6 At the time of the inspection, Centrex comprised approximately 1500 staff variously

located at one of the 17 sites in operation. This figure is made up of 569 seconded police

officers, 790 police staff3 and about 150 contracted staff (both long and short-term

although the true number could not be provided).

1.7 Foundation Training, which has a responsibility for training new police officers, is by

far the biggest single directorate within Centrex. This is true in terms of human and

financial resources and also the number of sites from which it operates. The majority

of police officers seconded to Centrex are employed within it. It must also be

acknowledged that to meet the recent demand for additional police numbers, Foundation

Training has substantially increased its training capacity, even to the point of establishing a

number of short term leasing arrangements with non-Centrex sites. In 2003/4, Foundation

Training will provide over 9000 recruit training places to the police service (NPT averaged

around 3000 per annum).

1.8 Centrex continues to provide a number of other training courses that were delivered

by NPT, and the portfolio of the new body also now contains forensic science and

Information Technology (IT) services as well as new leadership development and crime

and operational support products. In addition, the remit also extends, through the creation

of the NCPE, to advancing the professional capacity of policing by capturing and

deploying state-of-the-art knowledge on critical issues and events. It can be seen that

there is certainly more to Centrex in terms of structure and capability now than just

simply a re-arranged and re-badged NPT.

1.9 The organisation has now started to implement a change management programme,

‘Excellence by Design’ (see chapter four), in order to manage a number of existing key

organisational projects and initiatives and also to provide a framework for new activity.

8

2 Association of Chief Police Officers (ACPO), The Home Office and The Association of Police Authorities (APA)3 Police staff is the accepted term for ‘un-sworn’ staff employed in the police service irrespective of their role or function. At this time, given

that Centrex is part of the police service, some of these people are seconded from the Civil Service

Chapter 1

Introduction1

Inspection Methodology

1.10 Each police organisation in England, Wales and Northern Ireland is inspected by one of six

Inspectors of Constabulary. Each Inspector is independent of Government and acts under

royal warrant. Their task is to examine the way in which an organisation is operated,

together with its performance against set objectives and targets. Ultimately they consider

whether an organisation is effective and efficient across the broad range of tasks it

performs. The Inspector with responsibility for police personnel and training matters

is Robin Field-Smith MBE MA Chartered FCIPD FCMI.

1.11 Between April and September 2002, a Centrex inspection programme was devised,

making use of internal unit self-assessments carried out against the European Framework

for Quality Management (EFQM) model. This process led to the identification of an

activity plan that commenced in early 2003. At this time Centrex was undergoing a rapid

transformation, which meant the original programme became unsuitable. It is against this

backdrop that this inspection was initiated; its aims were to gauge the effectiveness and

efficiency of Centrex as a corporate organisation and devise a new inspection schedule

for the longer term, fully aligned to the new business architecture.

1.12 One aspect of this inspection report concerns the Police Information Communication and

Technology Training Services (PICTTS). In early 2003, it was the only Centrex unit to be

inspected as part of the original programme of HMIC activity. PICTTS was formed as an

amalgamation of the National Strategy for Police Information Systems (NSPIS) and the

Public Safety Radio Communications Project (PSRCP) Training Development Unit

previously located at Bramshill and the Police National Computer (PNC) and IT training

services located in Leicester.

1.13 The Centrex-wide inspection fieldwork took place between June and September 2003,

the earlier PICTTS focused work between February and April 2003. Both projects relied

on desktop analysis of existing data and fieldwork visits to Centrex sites. In addition,

selected stakeholders were interviewed and the wider customer base was invited to

contribute through letters and questionnaires sent to various sources. In addition, every

member of Centrex staff was provided with an opportunity to contribute. Overall a total

of 118 separate interviews were conducted, some with individual contributors, others

on a group basis.

1.14 Benchmarking activity took place with a number of bodies; their details are shown in the

acknowledgement section of this report and Appendix E contains a fuller rationale for

why they were chosen. Briefly, Runshaw College was selected because at the time of

the inspection it was nominated for an EFQM ‘European Quality Award’ for leadership

9

1


and constancy of purpose in the public sector4. St Mary’s College was chosen for its

performance in a quality assurance inspection during which the chairperson of the review

team commented very favourably on the distinctive ethos of St. Mary’s and the sense of

community that exists there. South Yorkshire Police was rewarded with a ‘Charter Mark’

in 2001. All the force’s senior command team are trained to EFQM model assessor level.

It was difficult to identify an organisation of a similar size, role and status to that of

Centrex. HMIC will renew its efforts in finding further meaningful benchmarks as part

of the inspection role.

1.15 Specific reference is made in this report to some of the findings of the PICTTS

inspection. The findings of the PICTTS work have already been formally presented to

Centrex and relevant stakeholders in an internal document, in June 2003, and action

to address identified unit specific issues has commenced.

1.16 One of the lessons learnt from the earlier work centred on the desirability of agreeing

with Centrex a set of working protocols and terms of reference and having a member of

Centrex staff working within the inspection team as a ‘nominee’. The role of a nominee

is to act as a liaison between the inspection team and the SMT, advising the latter of

key issues as they arise5. In addition, the chair of the Board and one of the directors

met periodically as a reference group for this work and were informed of progress and

findings. At the end of the fieldwork, emerging findings were formally presented to both

SMT (1 September 2003) and the Board (9 September 2003).

1.17 This report makes use of the EFQM model as a framework within which to comment on

Centrex’s performance in the identified criteria. It is in effect a snapshot, and it is hoped

that many of the issues raised will have been addressed by the time of report publication.

The EFQM process can result in a RADAR6 ‘score’ being awarded. This will not be the

case in this report because the inspection methodology was deliberately not devised for

that purpose. Instead, an objective assessment is made, in the concluding chapter, as

to the effectiveness and efficiency of Centrex.

10

4 In October 2003 at the awards forum held in Helsinki, Finland, Runshaw were announced as the award winners.5 The nominee approach mirrors that adopted by the Adult Learning Inspectorate (ALI), who are the national organisation responsible for

inspecting all publicly funded work-based training for people over 16 and learning for post 19’s.6 RADAR – Results Approaches Deployment, Assessment and Review, the framework used for scoring performance in EFQM assessments

Chapter 1

Introduction1

2.1 The EFQM model considers areas as being either enablers or results, one set informing

the other. Results are, within the model, reflected on after the enabler criteria have been

examined. In order that appropriate emphasis is given to Centrex’s outputs and the

organisation’s impact on policing performance, this report examines the results section

first as a priority area. In addition, for reasons of scope and timing, it also analyses results

as one single, holistic area, amalgamating the individual model criteria shown below:

Customer:

• perception measures

• performance indicators

People:



Society:



Key Performance:

• key performance indicators

• key performance results.

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2Chapter

Results

2

Introduction

2.2 For clarity, ‘perception measures’ relate to information that indicates a level of

satisfaction. ‘Performance indicators’ predict whether or not target outcomes will

be achieved. Customer results mean what an organisation is achieving in relation

to its customers. People results encompass an organisation’s staff. Society results are

about what is being achieved in relation to local, national and international society, as is

appropriate. Key performance results refer to what is achieved in respect of strategically

planned performance such as finance, and product and service take-up.

Measuring Centrex’s Success

2.3 Centrex internally monitors its performance through the work of the Directorate of

Performance. The data currently examined is reasonably extensive, but unit and

directorate specific. This means there has been little scope for in-house benchmarking,

competition or comparison. A number of cross directorate working initiatives exist, such

as the development of draft codes within NCPE which utilised the expertise of staff from

Training and Learning Services. Despite this, Centrex business areas appear primarily to

operate in isolation. Many directorates were found to have unique internal cultures where

staff operated distinctly and differently, dependent on the unit in which they worked.

The management data currently used to monitor organisational performance make few

comparisons between units. This somewhat reinforces the message that each business

area works to its own aims and objectives separate from others.

2.4 As yet Centrex has not made the leap to compare its performance with other public or

private sector bodies of a similar nature, such as those found in academia, or where

appropriate, other policing organisations.

2.5 Reports on performance have recently moved from quarterly to monthly production.

As yet, articulation of the results does not explicitly adhere to the EFQM model.

The structure of the reports is still under review and it is suggested that this provides an

opportunity to make use of the model or some other recognised framework to provide

a more comprehensive analysis of organisational performance.

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Chapter 2

Results2

Home Secretary’s Objectives

2.6 There is evidence to show that, in its first year of operation, it was decided that Centrex

had met objectives set specifically for it by the Home Secretary (see Appendix D for

2003/4 objectives). The inspection team is concerned about the robustness of that

decision as, when setting the objectives, the sponsor failed to set any specific targets

or measurable outcomes, criteria that are fundamental in ascertaining the achievement

of any SMART7 objective. As a result Centrex has been forced to set its own targets.

For example, objective number nine under organisational development for 2003/4 is:

‘To continue to ensure that Centrex operates more efficiently and more effectively

over time and that such improvement will be demonstrated’

Centrex declares:

‘This objective will be dealt with through Excellence by Design, our two-year rolling

programme of strategic change’.

2.7 This raises questions for the inspection team around the ongoing independent monitoring

and review of the organisation’s performance against the objectives set. A recurring

theme throughout this inspection has been the absence of a robust and system driven

approach to performance monitoring.

2.8 The lack of focus on the results criterion of the EFQM model has indirectly impacted

on all areas of organisational performance. Further, whilst Centrex is trying to improve

performance, it is doing so without knowing how successful it currently is.

Mission and Vision

2.9 Centrex promotes its vision:

‘To be the leading police learning and development organisation, promoting the

achievement of professional excellence and enhancing the operational effectiveness

of police services in the United Kingdom and internationally’

2.10 Currently, the role of Centrex remains somewhat imprecise. The inspection concludes

from interviews with strategic leaders that the customer’s needs, in respect of supporting

delivery of a successful policing service, have not been properly articulated by the

stakeholders or actively and effectively sought by Centrex.

13

7 SMART – Specific, Measurable, Achievable, Relevant and Timed

2


2.11 In the opinion of HM Inspector, what is required of Centrex as a training, and ultimately

a learning, organisation are products and services:

• identified against a clear operational and learning requirement

• available on a service-wide basis

• professionally designed

• delivered consistently to agreed standards

• evaluated and monitored effectively

• appropriately resourced and funded

• devised to impact positively on operational policing performance in a timely fashion.

2.12 Centrex seeks to fulfil more than just a training delivery role and through the NCPE

intends to expand responsibilities around doctrine, research and expertise in policing.

Centrex is attempting to fulfil its purpose without currently having a true concept of

whether that purpose is the right one for the police service in the 21st century.

Recommendation 2.2

HM Inspector recommends that, by May 2004, the Home Office in consultationwith relevant stakeholders sets objectives for Centrex which follow SMARTprinciples. In addition, Key Performance Indicators must be set to allow ongoingmonitoring of performance.

Recommendation 2.1

HM Inspector recommends that, by April 2004, the whole Service, through theAssociation of Chief Police Officers (ACPO), engages with Centrex to clarify thepurpose and role of the organisation. The Home Office must then ensure thatCentrex has the resources necessary to deliver what is agreed.

14

Chapter 2

Results2

Customer Results

2.13 The Home Secretary’s objectives for Centrex do not take into consideration

stakeholder requirements ascertained as a result of a meaningful and inclusive

consultation process. For example, consultation was conducted primarily through

Board members.

2.14 At the time of the inspection, Centrex did not have effective and established links in place

into policing organisations to allow it to monitor and measure either positive or negative

levels of customer satisfaction.

2.15 ‘Customers’ has a number of connotations in respect of Centrex:

• policing organisations that select or commission its products or services

• learners, either attending courses, studying Centrex designed materials or

making use of its services

• strategic level of the police service when it seeks advice or guidance

• international or non-police organisations who select Centrex outputs

• the community; the ultimate customer.

2.16 Measuring areas such as the level and nature of both complaints and satisfaction in

product or service provision will enable pro-active target setting which in turn should

drive corporate activity. The inspection team could not find such an approach throughout

Centrex, although some individual elements do make use of such information. In addition,

Centrex does not yet have a capability in respect of monitoring customer results in areas

such as gender, age, ethnicity or disability.

Recommendation 2.3

HM Inspector recommends that, by July 2004, Centrex, within its performancemonitoring framework, identifies and sets appropriate comparative measuresacross all internal units and functions. In addition, comparative work shouldinclude relevant benchmark organisations.

15

2


2.17 In answer to the question asked during HMIC interviews ‘What does Centrex do well?’,

customers of Centrex cited a range of products and services that were generally well

valued. These included:

• Critical Incident Handling courses

• Foundation Training

• National Specialist Law Enforcement Centre (NSLEC) courses

• National Training Centre for Scientific Support to Criminal Investigation

(NTCSSCI) products

• Operational support provided by the National Crime and Operations Faculty (NCOF)8

• The Strategic Command Course (SCC)

• The Centrex Digest – produced by the Research and Organisational Development

(ROD) Unit

• The National Police Library

• Trainer Development courses.

2.18 Whilst customer perception captured by HMIC indicates that these areas provide quality

services and products, it should be recognised that the police service lacks the evaluative

processes and material to be able fully to quantify their true value and/or their impact

on policing performance. This is an important area for both the service and Centrex to

focus on.

2.19 The community, as customers, is currently unable to influence the business or direction

of Centrex as they are neither formally consulted nor engaged. This matter is discussed

in further detail in chapters six and seven.

People Results

2.20 When visited, Centrex did not have an effective staff survey scheme in place.

It possesses very little perception information from its own people. When HMIC

asked the question ‘What could Centrex do better?’, a high proportion of those staff

interviewed said that they would value an ability to input into organisational planning and

benefit from clearer communication of strategically made decisions. One of the projects

contained in Excellence by Design is the creation of a Human Resources (HR) strategy

which is to include a staff survey scheme.

16

8 Within NPT, NCOF was two distinct units ie the National Crime Faculty (NCF) and the National Operations Faculty (NOF)

Chapter 2

Results2

2.21 Levels of sickness and turnover are monitored but used in isolation from structured

surveys. They do not provide an accurate indicator of satisfaction levels. Further, there

are concerns that the IT based HR management system in current use is not reliable

although it is noted that its replacement is planned. That said, the turnover and sickness

rates provided to the inspection team are favourable, recognising the differing pressures

on staff, when compared with police forces. For example, for the year 2002/3 sickness

rates per employee per year were at an average of 5.06 days. Over the same period,

that for police staff employed in forces was 11.6 days.

2.22 Whilst Centrex has achieved Investors in People status (IiP), in the monthly reports seen,

very few people related entries feature. No structured approach could be found in respect

of capturing perceptions amongst Centrex’s people in relation to:

• career development

• effectiveness of management communication

• empowerment

• induction

• job security

• management of change

• pay and conditions

• Performance Development Review (PDR)/Performance, Appraisal, Development,

Review (PADR)

• recognition/reward.

2.23 The visit to Runshaw College found a far more established approach to using

‘people results’ in business planning. For example, staff surveys contain questions

on satisfaction with management communication including comparison against a

benchmark. People related issues are discussed in greater detail in chapter five, but

the level of information currently captured and monitored internally is unsatisfactory.

17

2


Society Results

2.24 Very little data currently exists in respect of performance in this area. The impact that

a multi-location, multi-million pound financial budget organisation has on people residing

and working in close proximity to its sites should be considered. In addition, Centrex, as

a receiver of public finance, should be examining opportunities to recycle and conserve

energy and making sure that it uses resources that are safe and environmentally friendly.

2.25 Finally, Centrex should give thought to its aim to be a centre of excellence in policing.

It can influence others and set examples in terms of ethics and fairness. In order to

demonstrate that it can do all of these Centrex must first of all know what its true

position is. Given that Centrex is still evolving, HM Inspector expects, in future inspection

activity, to find that more meaningful monitoring is conducted in this area.

Key Performance Results

2.26 To enable effective management, high performing organisations capture relevant

performance data to inform their understanding of past, present and future activity.

In addition, thought is also given to the format, audience, cost and timeliness of

information. Centrex needs to recognise the necessity of adopting this approach if

it is to operate effectively. Whilst performance monitoring takes place, in the view of

the inspection team this process is neither sophisticated nor mature enough to inform

strategic decision making.

2.27 In addition, as the information is published on a separate unit or directorate basis,

it provides a snapshot of where each is in relation to achieving its own individual aims.

For example, in the report for April/May 2003 the NTCSSCI submission states that

in addition to what is contained in the original prospectus plan, a number of other courses

were delivered (they are then listed) whilst Training and Learning Services reports activity

in its trainer development programmes. On examination of this report, the inspection

team noted its length and format were unwieldy. If the aim is to provide a snapshot of

performance, the following extract indicates current difficulties in achieving this:

‘This report details the achievements for April and May of Centrex’s second year

of operation 2003-2004….Currently the systems in place to collect performance data are

poor and take an inordinate amount of time….This will continue to be a difficult area until

an electronic system is in place to collate, analyse and report on the performance data9’

18

9 Centrex: Business Unit and Corporate Activities, Monthly Report April and May 2003-2004

Chapter 2

Results2

2.28 In respect of PICTTS, mechanisms for measuring performance outcomes were not found.

The absence of key processes in information gathering may be indicative of a lack of

Centrex-wide policy. The absence of such a system prevented PICTTS from reacting to

outcomes as an intelligent provider to the needs of its customers, in particular Home

Office police forces. There were no meaningful performance indicators in place for its

customers to monitor performance in respect of business objectives. No explicit data

concerning PICTTS performance was found to be included in the Centrex monthly report.

2.29 Centrex includes data in its monthly report regarding performance in respect of each of

the Home Secretary’s objectives. Disappointingly, the inspection team did not find the

same level of activity in respect of the National Policing Plan (NPP) (see chapter four).

How Centrex supports the police service in meeting this fundamental directive must

be a key indicator of their success as an integral partner in the police service.

2.30 The performance of Home Office funded police forces will, from 2004, be assessed

through the Policing Performance Assessment Framework (PPAF) which requires the

regular submission of data. HMIC makes use of the associated indicators and targets

within its inspection activity. The framework, in its current format, is not suitable for

measuring the performance of Centrex. The data that Centrex will use in respect

of recommendations 2.2 and 2.3 should in turn be submitted to HMIC, as set out in s.94

of the Criminal Justice and Police Act 2001, in order that on-going monitoring takes place.

Conclusion

2.31 The police service, represented by the people who were consulted, knew little about

what Centrex does or how successful it is. The objectives set by the Home Secretary do

not allow for unambiguous measuring of performance because there are no targets or

measurable outcomes set. Each unit strives to be effective and efficient, but within its

own parameters. Further, they are monitoring activity in isolation from each other. No

culture of comparison or competition exists either internally or with appropriate external

benchmarks. In addition, the mechanisms currently used to inform key decision-makers

about performance are also inadequate.

Recommendation 2.4

HM Inspector recommends that, with immediate effect, Centrex submits toHer Majesty’s Inspectorate of Constabulary data in respect of its performanceagainst agreed indicators.

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2.32 Until the role of Centrex and all of its component parts is properly defined through

dialogue and consultation with customers, most of the information currently monitored

is at risk of being meaningless, produced only for the sake of doing so. To establish

meaningful key performance indicators for all parts of its business, Centrex needs to

engage with an ‘intelligent customer’ representing the needs of the police service.

The tri-partite governance of policing should identify such a lead Centrex customer,

to work on the role and purpose of Centrex and also take lead responsibility in identifying

the indicators that will demonstrate success.

2.33 Customers told the inspection team that they do not feel engaged. This is disappointing

because the same customers often cite individual products and services that they

perceive are of quality. Centrex does not do enough to capture these perceptions and

then make use of them pro-actively.

2.34 The inspection found many of Centrex’s own people felt ignored and frustrated about

management processes. Until a survey scheme is fully implemented it is difficult to see

how the organisation’s management can capture the same concerns and start to address

them. Some results currently being captured are valid and more could be done to secure

this information across the organisation, and analyse it to effect necessary change. Little

information exists in respect of Centrex’s impact on society, either at a local level in

relation to its neighbours or as part of the national or international community.

2.35 Centrex, as with other organisations, recognises the importance of monitoring

performance, streamlining processes and procedures and having robust change

management programmes around the products and services it provides. Centrex asserts

that change must not be made for change’s sake. The inspection team agrees with this

sentiment and was advised that Excellence by Design will, when fully implemented, lead

to an effective business.

20

Chapter 2

Results2

3.1 The EFQM model asserts that leaders:

• develop mission, vision and values and are role models of a culture of excellence

• are personally involved in ensuring the organisation’s management system is

developed, implemented and continuously improved

• are involved with customers, partners and representatives of society

• motivate, support and recognise the organisation’s people

• identify and champion organisational change.

Introduction

3.2 In the context of the EFQM model, this criterion is about ‘walking the talk’, being

authentic with the words and actions associated with what the organisation subscribes

to. It is about creating an internal ethical culture that generates a feeling of pride. Further,

leadership is associated with the consistent implementation of systems, how leaders

interact with others, how far they reach out to engage with stakeholders and also how

staff are motivated and valued. Leaders need to be at the forefront of change

programmes without engaging themselves in specific detail.

‘Corporate governance is not a ‘bolt-on’. Well governed organisations effectively

combine both the traditional ‘hard’ aspects of controls assurance and the ‘soft’

cultural characteristics of effective leadership and openness to promote effective

decision making and clear accountability in a complex and ambiguous environment’10

21

10 Corporate governance: Improvement and trust in local public services. Audit Commission 2003

3Chapter

Leadership

3

Centrex Board

3.3 The Centrex Board operates a ‘champion’ system whereby individual members with a

specific interest, level of skill or expertise take a special interest in one of the business

areas. Given that Board members are only required to provide 21 days of their time to

board activities, including attending meetings, scope for champion work is somewhat

limited. It is also to be recognised that most members have very demanding external

commitments. In addition, the level of financial support available is also limited. The level

of willingness to conduct such work found amongst the Board members interviewed is

acknowledged.

3.4 The level of awareness of the champion scheme found amongst staff was

disappointing. Some of those interviewed could name their champion and the role

they were undertaking within their allocated area. But the majority of those consulted

could not name their champion or cite any related activity. Promotion of the Board in

general and the role of champion in particular requires clarification.

Chief Executive and Senior Management Team

3.5 The efforts of the Chief Executive in leading the organisation through formation are

recognised. Centrex now has eight directors in place; but, on 1 April 2002 at the moment

of creation, only one of the current SMT was in place to assist the Chief Executive.

Another director took up post in the summer of 2002 and between them these three

individuals have carried managerial responsibility for the majority of the time Centrex

has existed. Their duties included leading the organisation in the face of:

• a difficult legacy (eg the reputation and standing of NPT amongst its customers)

• inheriting an estate that had suffered from significant under-investment

• incorporating NTCSSCI, NCPE and National Centre for Applied Learning Technology

(NCALT) within the business framework

Recommendation 3.1

HM Inspector recommends that, by February 2004, Centrex, within acommunication strategy, clearly articulates the role of the Board and eachof its members. Guidance as to the level of activity to be conducted by eachBoard champion should also be published.

22

Chapter 3

Leadership3

• unhelpful employment structures for both police officers and police staff

• pressures brought about by increased police numbers

• police reform demands

• organisational performance monitoring hampered by the fact that the Home

Secretary’s objectives were not set in a SMART format.

3.6 This was the case at a time when the framework required to establish the organisation as

a successful body was still being drafted. This cannot have been an easy experience and

HM Inspector notes the difficulties that were encountered and the leadership required to

maintain delivery of products and services.

3.7 This inspection found that many of the staff consulted stated that the Chief Executive

was conspicuous at the time of formation, visiting most of the operated sites and taking

time to speak to individual members of staff or addressing convened groups about the

transition. In addition, on many occasions the Chief Executive personally opened race

awareness training events organised across the estate. Those staff engaged in Foundation

Training also cited similar high levels of activity on the part of the director in charge.

Substantial evidence was found of innovation, drive and commitment on the part of

a number of key leaders.

3.8 There is evidence to show that the head of NCPE has vigorously engaged with staff and

key external stakeholders in an effort to position the directorate and to identify its proper

role and status. This activity was regularly cited by staff working within that area as an

example of effective leadership. Other units, such as NTCSSCI, have made robust use of

the EFQM model to effect innovation and change, mostly as a result of the leadership of

the unit’s senior staff.

3.9 NPLC has recently commenced a process of staff consultation specifically around

departmental direction. Although this is at an early stage the Centre’s director indicated

that it had so far proved successful. The Director of Resources is also to be praised for

convening conference away-days for staff to discuss corporate activity.

3.10 Maintaining such positive levels of visibility and accessibility are important. Unfortunately,

the majority of staff consulted said that the level of Chief Executive visits had recently

tailed off. It was also indicated that lately they had not had the opportunity to interact

with other SMT members. It is accepted that some SMT staff have only been in position

for a relatively short period of time. Examination of SMT members diaries shows that a

number of visits were taking place but these were largely uncoordinated, unstructured

and unmonitored. This may be the reason for the perceptions that were captured.

23

3


3.11 The inspection encountered a large number of people across Centrex who expressed

frustration and anxiety about:

• the role of each SMT member

• the importance of their own role

• what these roles meant to the direction of the organisation

• where their unit/department/site was positioned in the newer business architecture.

3.12 In addition, few of those interviewed could make links between the role they

performed and the published organisational mission and vision. On many, but not

all, sites visited, corporate information (mission and vision, photographs of directors

and Board members and maps of sites operated) was on display in communal areas.

Disappointingly, every display seen, with the exception of Bramshill, was out of date.

The level of staff frustration existed partly because it was perceived that SMT members

were not actively articulating messages directly and openly to staff or were not making

themselves available to speak to.

3.13 The inspection recognises that training related activities in the police service

(eg probationer training modernisation and the creation of NCPE) have increased

significantly in the past 12 months. Centrex SMT members have been prominent

in these areas and their ability physically to visit all sites and be available to speak

individually to staff is likely to have been adversely affected.

3.14 The availability of video conferencing across the Centrex estate offers an opportunity for

its leaders personally to:

• articulate mission, vision and values

• motivate and engage with all ranks and grades of personnel

• provide updates

• receive feedback

in a timely and consistent manner. The effective use of this facility removes issues

associated with off site meetings.

24

Chapter 3

Leadership3

3.15 The inspection of PICTTS found limited evidence of clear strategic direction, unit purpose,

leadership, accountability or responsibility within Centrex for the unit. On a functional

basis the head of PICTTS reported to several different managers. At the time of the

fieldwork the head was unable to identify a single member of the SMT with identified

responsibility for the unit11 and who also openly monitored its performance.

3.16 Centrex states that Excellence by Design was created to ensure the organisation

met expectations and fulfilled commitments. Its aims are praiseworthy and the project

management process appears well structured. What is critical to its success will

be demonstrable and transformational leadership on the part of the SMT including

effective and wide reaching consultation. The programme of Chief Executive facilitated

seminars planned in support is positive but, worryingly, it was found that some key

staff consulted perceive the programme is a ‘given’ and that it had not been devised

in consultation with them. It will prove difficult for the SMT holistically to implement

Excellence by Design without the total commitment of those people who will be

tasked with driving it over the longer term.

3.17 In addition to the concerns raised by staff in respect of internal accessibility, this

inspection found that many of the organisation’s customers do not yet understand its

new architecture, nor are clear on how fully to engage with it. The role of directorates

is unclear to some external stakeholders. A new communications strategy is to be

launched as a part of the Excellence by Design programme, and HMIC expects this will

address the difficulties some customers experience in trying to interact with Centrex.

3.18 Independently of HMIC involvement or influence, the Chief Executive decided not to

renew his current contract, due to expire in February 2004 and left the organisation in

October 2003. This issue had no impact on the conduct of the inspection and the HMIC

activity, as far as can be ascertained, had no bearing on the Chief Executive’s decision.

3.19 Centrex will now take steps to employ a new Chief Executive and has appointed

an interim post holder until that process is complete. It is not yet clear whether the

departure of the Chief Executive, a key sponsor and advocate of the programme,

will have any impact on the Excellence by Design change programme.

25

11 PICTTS is a part of the Training and Learning Services Business Area

3


Corporate Identity

3.20 Much discussion was had by key stakeholders at the time of the Centrex launch around

the need to change the title from NPT and also to have a new beginning. The vision of

becoming a Centre of Excellence led to the adoption of the current name. These talks

also focused on the need to avoid ‘National’ in any title because few of the products and

services are adopted UK-wide, the remit for the body extending primarily to cover

England and Wales and Northern Ireland12.

3.21 Many of the units that have survived the transition in terms of their function and title

are established and known throughout the policing sector, for example, the NCOF.

This creates some difficulty for Centrex. For many in the service, the acronym NPT

recognised activity as described; it provided police training on a service-wide basis

(accepting that it was not done nationally13). The new trading name does not indicate

explicitly what the body is responsible for. This inspection found the same name has

been adopted by a number of non-police organisations as the title for totally dissimilar

brands and services.

3.22 This has led to a position whereby those units that have an established reputation have

continued to promote their titles in priority over the corporate brand. It has also led to a

degree of isolationist mentality and fractured identity within the organisation with staff

affirming their allegiance to the distinct unit in which they are employed rather than to

the corporate body.

3.23 Interestingly, post formation and despite the initial arguments against incorporating

‘National’ within titles, both the NPLC and the NCALT have been created within Centrex.

A change of brand name would not be recommended, but the difficult task facing

Centrex now is how to promote its business in a way that will lead to full acceptance

of the corporate title on the basis that its reputation represents quality. From the outset,

this has been one of the key elements of Excellence by Design.

3.24 Fundamentally, Centrex was also chosen to develop the NCPE, the concept for which

was introduced in the Government’s white paper Policing a New Century: A Blueprint for

Reform14. The mission of NCPE is to enable individuals and organisations in policing to

tackle crime, reduce crime and provide reassurance to the public. NCPE has now become

a directorate within the organisation, assuming responsibility for some units that existed

within NPT and made the transition to Centrex (eg NCOF and NSLEC).

26

12 It is acknowledged that PICTTS delivers training services to Scottish police forces and Foundation Training is used by a number of non-Home Office forces that have UK-wide remits

13 ‘National’ in this report, unless otherwise stated, refers only to the Police Service of England and Wales, excluding Scotland andNorthern Ireland

14 Policing a New Century: A Blueprint for Reform Government White Paper Published 2001

Chapter 3

Leadership3

3.25 Although the place of NCPE in the structure of Centrex is clear, its hierarchical positioning

is less apparent. A number of customers consulted during inspection did not perceive

it to be a business area of Centrex. Others saw it as something much bigger than a

directorate per se. In one sense it is a component part of an organisation that provides

service-wide training products, but NCPE encompasses units that have a good reputation

in respect of supporting operational police matters and the proposal for NCPE to set

doctrine for policing raises its status even further. Whether it sits comfortably within a

training design and delivery organisation remains to be seen.

Race and Diversity

3.26 As a benchmark, Runshaw College states, within its EFQM award submission:

‘the most important thing a leader can do is manage the culture, which is defined as:

the values, beliefs, attitudes and behaviour that characterise the way that we work’.

3.27 At the strategic level, Centrex appears fully committed to fulfilling its responsibilities in

respect of race and diversity, in addition to which it is now a key element of Excellence

by Design. Other evidence to demonstrate this commitment took the form of:

• the publication of a Race Equality Scheme (RES) in support of the Race Relations

(Amendment) Act 2000 (Centrex is not legally obliged to do so)

• the work at the organisational level to take forward the recommendations

contained in Diversity Matters15

• creation of a Race and Diversity Unit within Centrex

• conducting Diversity Excellence Model (DEM)16 internal assessments across all units

• the provision of a ‘First Contact Scheme’ to provide support for all staff.

3.28 Notwithstanding this apparent commitment, there is a perception and some evidence to

show that this is not yet holistic. For example:

• currently, the organisation does not have in place an overarching diversity strategy

• there is no community based advisory group in place

27

15 Diversity Matters HMIC 2003 an inspection of race and diversity training in the police service16 Diversity Excellence Model copyrighted to Jane Noakes at the Civil Service College, now the UK Government’s Centre for Management

and Policy Studies (CMPS)

3


• responsibility for assisting the police service in implementing the Disability

Discrimination Act 1995, has not been proactively taken forward

• IONANN17 staff stated that they do not perceive that the contract arrangements

with Centrex have been totally successful

• many parts of the Centrex estate pose difficulties for people with disabilities

• around 90% of learners’ accommodation is not en-suite (this may contravene human

rights and equal opportunities legislation) (see chapter six, para 6.38 and 6.44)

• many of the training courses delivered by Centrex are not friendly to personnel

with carer responsibilities, because they require attendance on a residential or

9-5 Monday to Friday basis

• no crèche facilities are available to staff or learners

• not all staff attended the mandatory race awareness training, and no follow

up programme could be found advising what sanctions, if any, exist in respect

of non-attendance

• there has been little meaningful evaluation, beyond capturing the views of learners,

of the effectiveness of these development events

• at this time, the organisation cannot effectively conduct ethnic monitoring of its

internal processes and external products and services

• despite a request from staff, at the time of the inspection there was no Black Police

Association18 in place, nor are there specific support networks in place for staff in

respect of other diversity issues

• examples of staff displaying inappropriate behaviour were encountered.

3.29 Centrex has an opportunity positively to influence the police service in this area. Many

of the recommendations contained in Diversity Matters charge Centrex to implement

processes on a service-wide basis, for example, the suggestions in respect of the trainer

development programme. Ensuring Centrex asserts this influence will require dynamic

leadership at all levels.

28

17 IONANN currently hold the Home Office contract to provide specialist support in Community and Race Relations to the police service ofEngland and Wales

18 It is understood that such an association will be launched by the time of this report’s publication

Chapter 3

Leadership3

External Leadership Issues

3.30 The tri-partite19 governance of policing did not, according to what was captured in

interviews, serve Centrex well at the time of its formation. Further and more robust

engagement would have provided the direction necessary to create a ‘grand strategy’

where Centrex fulfils an active, effective and substantial role in helping deliver a 21st

Century police service. The inspection found that this issue, when coupled with the

timing of the police reform agenda and also the pressures faced in dealing with a

substantial increase in police officer numbers, has led to a degree of confusion and

frustration about the function of Centrex. This was articulated not only by those

within the organisation but also by its customers.

3.31 In addition to this issue of role and purpose, there are others that are effectively outside

of the control of the organisation but require leadership on the part of external bodies,

for example, ACPO and the chief officers of individual forces. As stated in chapter two,

the Home Secretary’s objectives for both 2002/3 and 2003/4 were devised through an

inadequate consultation process. This is a matter that must in the future be addressed

by the relevant Home Office department.

3.32 Additionally, not every police force uniformly subscribes to what are, in effect, national

products, for example, those provided by PICTTS, NTCSSCI and NSLEC. Some forces are

internally delivering their own versions or are purchasing training from other organisations.

This leads to inconsistency and a risk to service delivery. It is acknowledged that one

reason for this situation is connected with the concept of ‘Best Value’20. Centrex directly

charges for some of these products and services, and some of the forces consulted cite

the fact that they can deliver training at a lower cost or that the extra money connected

with staff travelling to remote Centrex sites is another relevant factor21.

Recommendation 3.2

HM Inspector recommends that, by February 2004, Centrex articulates itsresponse to Diversity Matters to the whole police service. In addition, on anongoing basis, it must state when those recommendations that require specificCentrex activity are completed.

29

19 ACPO, APA and Home Office20 Best Value is a Government initiative enshrined in the Local Government Act 199921 For example, at the time of the inspection, NTCSSCI delivered training courses at a single site located in County Durham

3


3.33 What is required is clarification of the status of these national products. Issues that

require immediate attention include:

• who owns them?

• how should these products and services be funded?

• should forces be compelled to take them up?

• how can service-wide consistency be maintained?

• what national standards should be applied?

• how and where should these products be delivered?

• who will quality assure delivery and evaluate impact?

3.34 In reality, these questions should be included within any work undertaken by strategic

leaders to identify, through meaningful consultation, the role and purpose for Centrex.

It is intended that recommendation 2.1 will go some way in answering these

questions.

Conclusion

3.35 There is little doubt that leaders in Centrex, both at Board and SMT level, have

faced great pressure throughout its formation and, in respect of the latter, difficulties

connected with carrying vacancies for high level posts. Extra demands caused by the

creation of NCPE and other police reform activity have also impacted on an evolving

and embryonic organisation.

3.36 Issues exist around the identity of Centrex, not only in relation to its role but also in

respect of its name. The organisation is, in reality, a collective of units and business areas

operating under a single trading name. Some of the individual elements have become

synonymous with the products and services they provide and are renowned throughout

the police service on that basis. Staff working within some of them demonstrated a fierce

loyalty, not to Centrex but to the individual unit that employs them.

3.37 In respect of race and diversity, Centrex has established some excellent projects and

initiatives in support of this area. The production of a RES, outside of any statutory

obligation to do so, is but one example of high level commitment. Whilst the corporate

duty is being met, more can be achieved in a number of areas.

30

Chapter 3

Leadership3

3.38 A demonstrable level of commitment has been applied to ensuring that some

important products and services were maintained throughout transition and a range

of new ones is coming on-stream. This commitment needs to be enhanced in order that

Centrex gains necessary credibility. Leaders, both internally and externally, need to work

together to deliver an organisation which has meaningful purpose, impacts positively on

policing performance, is pro-active and attracts the very best people. Only when these

issues have been addressed can the term ‘centre of excellence’ be correctly applied.

31

3


4.1 Policy and Strategy are:

• based on the present and future needs and expectations of stakeholders

• based on information from performance measurement, research, learning and

externally related activities

• developed, reviewed and updated.

Introduction

4.2 This section encompasses how Centrex implements its vision through strategy and

how policies, plans, objectives and processes deliver the strategy. It also covers how

the stakeholders’ current and future needs, internal measurements and data inform policy

and strategy.

Excellence by Design

4.3 Excellence by Design has a two-year agenda, which amongst other things aims to

implement effective processes throughout Centrex. Excellence by Design is being

executed now, eighteen months after the formation of Centrex. The rationale for this was

that there was a requirement for some foundations to be in place, along with the need to

have senior staff in post in all key positions.

4.4 The programme will need to be flexible enough to cater for a properly articulated role

irrespective of what that role might be. Evidence was found of a great deal of effort being

applied to the programme. What is unclear to HM Inspector at present is whether the

programme’s content will achieve what it aims to do.

4.5 Ethics in a policing context is an important area, but no explicit reference is made in the

programme. This is especially poignant given the status of the European Code of Police

Ethics22 and Centrex’s active involvement within The European Police College Network

(CEPOL). It cannot be left to the designers of individual products and services to include

33

22 European Code of Police Ethics Recommendation (2001) 10 adopted by the Committee of Ministers September 2001

4Chapter

Policy and Strategy

4

ethics on an unstructured basis. In a similar vein to race and diversity, which features

explicitly as a project in Excellence by Design, ethics, in the opinion of HM Inspector,

should be mainstreamed through all Centrex activity. The work being undertaken by the

NCPE to produce doctrine for the police service also offers an opportunity for ethics to be

embedded in all policing practice and procedure.

4.6 As Centrex takes this recommendation forward, it should also revisit the whole

programme to satisfy its leaders that its content fully meets requirements.

4.7 Whilst it is recognised that the programme is relatively new, many of the staff

interviewed had little knowledge of it, where they would work to enable it, or if

the skills they possessed would be appropriate.

Additional Organisational Strategies

4.8 Excellence by Design is not an holistic business management programme and purposely

it does not encompass all activity. However, it does seek to be the driver for a HR

strategy. At the time of inspection, such a strategy was not in place and despite the

considerable effort and activities going on to produce them, Centrex also lacked other

key strategies in areas such as:

• Communications and Marketing

• Estates and Facilities

• Organisational Business (corporate activity)

• Race and Diversity

• Training and Development (internal).

Recommendation 4.1

HM Inspector recommends that, with immediate effect, Centrex, under theauspices of the Excellence by Design change programme, initiates a project tointegrate ethics into all of its products and services in line with the content ofthe European Code of Police Ethics.

34

Chapter 4

Policy and Strategy4

4.9 The absence of clear interrelated direction was manifest in the interviews with staff

conducted at all levels throughout the organisation. For example, in respect of HR

the lack of a longer-term planning process has resulted in an inordinately high percentage

of agency staff being employed on short-term temporary contracts. In addition, temporary

or interim postholders fill a number of key positions. Some of the problems are historic

and relate to Home Office rules and regulations in place for managing NPT. Centrex

inherited a number of restrictive procedures, in particular those relating to the depth and

pace of security clearance for new staff. This matter has repercussions for managers

considering succession-planning processes.

4.10 The lack of interrelation between HR and development strategies means that Centrex

is not in a position to identify its own basic and essential staff development needs.

It should be expected that these needs be collated from an individual’s appraisal and

prioritised accordingly. The inspection team found inconsistency in this approach which is

exacerbated by a lack of central direction and recording mechanisms. The absence of a

long-term business strategy (as was the case at the time of the inspection fieldwork) and

how, if it were in place, it would drive other planning processes supports the view that

key directives need to be interrelated. Without goals for the long term (the setting of

which must involve key stakeholders) Centrex cannot effectively identify what people

(ie within a HR strategy) or what geographic resources (ie the estate strategy) it requires

to deliver its vision. It is anticipated that the communication strategy once in place will

indicate how these directives are to be promulgated both internally and externally.

4.11 It is acknowledged that Centrex is alive to these issues and the strands of Excellence by

Design, to some extent, provide an indication of corporate vision. Time is a critical factor

in achieving any outcome successfully, but when managing timescales, more than mere

plan production to meet a requirement needs to be considered. Areas such as evaluation

of implementation and ongoing reviews must also be factored in. The staff in Centrex

need, and deserve, to know where their future lies even if hard decisions are required

about the feasibility of retaining certain sites or functions.

4.12 Effective use of the EFQM model within the organisation has already been alluded to

albeit in the absence of published corporate direction governing its consistent and holistic

application. Where it was used, its output often resulted in innovation and the

identification of new business objectives and directives. For example, extensive use was

found of the model being applied to business planning and objective setting in Foundation

Training and, as previously mentioned, at the NTCSSCI. It is unfortunate for Centrex as

a whole that not all units were as committed to using it as robustly.

35

4


4.13 NDPBs were advised by the Government to adhere to the Better Quality Services (BQS)

Framework, which was launched in 1998. The Cabinet Office team monitoring BQS was

disbanded in 2002 and the initiative has terminated. The result of this means Centrex has

effectively been left in limbo in terms of having an efficiency framework to work to, not

being part of Best Value and BQS having expired. This is an issue that Centrex

management have now identified.

4.14 The individual unit business plans produced for 2003/4 that were examined were found to

contain clearer targets and objectives than for the previous year. The plans seen do not

adhere to corporate format although it is noted that templates were provided. At the time

of inspection, not all were available on the intranet. This made it very difficult for staff to

examine all the Centrex plans.

4.15 Many of those staff who were interviewed said that they had been set personal

objectives and some of them also had targets to achieve. Others said they had not

received feedback on the quality/relevance of their unit business plans and associated

targets, which they themselves had set and they stated that they believed their

performance against them was not closely monitored on an ongoing basis. The SMT

have made tangible efforts to change the internal culture of the organisation to one

where performance is a key driver. The inspection team is of the opinion that the level

of internal activity in setting meaningful and challenging targets within business plans

was directly linked to the scale and robustness of the external objectives set

corporately for Centrex.

4.16 A majority of the staff consulted were also unaware of what other directorates and

departments actually did or how their unit interrelated with them. The inspection team

found an example of this at PICTTS. It was noted that local development of strategy has

resulted in a lack of harmonisation with other Centrex units and a lack of corporate

marketing. Centrex has a diverse portfolio of products, many of which would benefit from

the inclusion of inputs relating to PICTTS products such as the operational capabilities of

the PNC system and NSPIS products.

Recommendation 4.2

HM Inspector recommends that, by February 2004, Centrex identifies andimplements an established organisational management framework to beemployed by all of its separate units and functions. The Directorate ofPerformance should, in turn, regularly and openly monitor and report oncompliance.

36

Chapter 4


4.17 Centrex does not yet have constructive staff survey, and it therefore lacks some of the

mechanisms required to evaluate staff awareness of vision and strategies. Activity at

a strategic level, including a number of visits and meetings were taking place and

there was an awareness of the need to ensure that the widest possible number of staff

has an understanding of the organisation’s role. Nonetheless, a high proportion of the

staff interviewed said they did not feel engaged, able to influence directives at both

departmental and organisational levels. Use of the e-mail system to disseminate

information about strategy, which was the medium most often cited, has not yet proved

totally effective. In the main, this is because a perception exists of an over-reliance on

blanket messages.

National Strategy

4.18 Centrex has a seat at many strategic level meetings and working groups, giving the

organisation the opportunity to influence and support the police service in its response

to service-wide vision and planning. Accepting its evolving state, the functions and

operations of the organisation are currently incongruous with some national

programmes.

4.19 One vital external directive to consider is the NPP23. In police forces this plan, together

with the local policing plan (set in consultation with the local police authority) drives

all key business activity. Little explicit linkage could be found in the organisation to

the NPP or the part Centrex could play in helping the service deliver against it. The

inspection team found that some aspects of the NPP are being actively worked on within

Centrex. This activity is taking place somewhat in isolation and independence from the

centre. References in the NPP, to leadership development and the strategy to promote

learning in the police service are examples.

4.20 A significant number of the staff interviewed (particularly agency workers) had not heard

of the plan and others knew of it but could not make links between their roles and

supporting the plan. Clearly, if there had been more extensive dialogue between Centrex

and its stakeholders there could have been greater opportunity to improve police service

performance. HM Inspector is concerned that such a fundamental driver for policing was

not at the forefront of Centrex’s business and expects that more focus is applied to

future versions of the NPP.

Recommendation 4.3

HM Inspector recommends that, by February 2004, Centrex implements an openand transparent organisation wide staff survey process, to include direction onits regularity, timeliness, scope and usage.

37

23 National Policing Plan issued by the Home Secretary and published in November 2002 as a three year directive. This first version wassuperseded by a new plan, published in November 2003, to cover the period 2004-2007.

4


4.21 Other key service-wide directives that impact on police forces but have yet to be

influenced by Centrex or implemented internally include:

• Integrated Competency Framework (ICF) (discussed in chapter five)

• requirement for all forces to have costed training plans, as set out in Home Office

Circular 18/2002

• National Costing Model for Training.

4.22 One more factor that must be considered involves the Best Value Review regime. In

2000, all police forces agreed, under the terms of a joint ACPO/APA national project, to

conduct reviews concurrently. This allowed for guidance and advice to be provided by the

associated project team on a service-wide basis. Statutorily, Centrex is not bound by the

Best Value legislation, but the organisation has not, up to now, adequately engaged with

the service in respect of so many of the key issues including that of how regional

collaborative arrangements and partnerships can benefit individual forces. Until Centrex is

engaged with stakeholders in the operation of these national projects it will not fulfil its

true potential in respect of helping police organisations recognise and value the concept

that training and development is a key enabler of policing performance.

Policies in Centrex

4.23 There was a clear absence of key policies in the organisation. For example, no policy was

found in relation to corporate:

• induction

• training and development

• external study arrangements

• accommodation issues

• staff reward/recognition

• product costing

• quality assurance mechanisms.

38

Chapter 4


4.24 Those policies that existed were mainly adapted from the Home Office ones in place for

NPT use. Whilst some of these may have required little updating, others did not meet

current requirements. One area where Home Office policies were adopted effectively

on a corporate basis is in the area of Health and Safety.

4.25 There is currently no policy in place in relation to how organisational or local policy is

devised, monitored or reviewed ie. ‘a policy on policy’. This means that where policy

exists it is not centrally co-ordinated. Some policies were found on the Centrex intranet,

but they did not encompass all aspects of operation. Without clear policy in place,

departments and individuals conduct business without the necessary strategic direction

and guidelines and are effectively working in the dark. What the organisational position

is in relation to many key issues is unclear.

4.26 Many examples were found where staff had devised a policy locally in the absence

of corporate direction, or where existing centre policies were adopted in the absence

of corporate directives. Staff are to be commended for devising policy where none exists

and some locations have in place robust local policy frameworks, for example, those

found at Durham and Bruche Foundation Training sites. It is incumbent on the corporate

centre to ensure that any policy produced within Centrex is fit for purpose. It is

recognised that individual units will always have local policy in place for some issues.

However, in respect of pan-Centrex processes, local design and adoption leads

to inconsistency and differing practices being in place at separate sites. Examples

found included:

• learners accommodated at Hutton Hall satellite were expected to abide by a centre

curfew, whilst colleagues housed at other sites could come and go as they pleased

• trainers within Foundation Training must possess an internal training qualification, or

its equivalent, achieved through attending a Centrex managed programme whilst

NTCSSCI trainers do not take up the same programme

• managers at NCALT had recently started to conduct performance appraisal meetings

with contracted staff. At other centres, performance was gauged by renewal or non-

renewal of the existing contract at the end of its term.

4.27 The inspection of PICTTS identified that existing policy and strategy was not being

effectively communicated to customers and stakeholders. In the main, policy and strategy

setting were found to be passive processes with the expectation that customers and

stakeholders will seek them out. Development of policy and strategy through proper

consultation and marketing would do much to make them real living and meaningful

processes. There was no evidence found of mechanisms to monitor the implementation

of policy and strategy internally or how such policies and strategy impacted on the wider

police service operationally.

39

4


4.28 There are policy-making groups in place within Centrex and representatives from

directorates attend on a regular basis. The inspection team found ownership of some

policies at the corporate level but there was inconsistency in respect to their format,

location and accessibility.

4.29 During the benchmark visit to South Yorkshire Police, the force was found to have in

place a comprehensive set of corporate policies readily available to all staff through the

local intranet system. The corporate development unit, as part of its remit, conducts an

ongoing review and monitoring process. Any new policy must adhere to a common

format and be approved through that department.

Conclusion

4.30 Centrex is a relatively new body and many of its key business directives have still to

be produced. The organisation’s managers were unassisted by the lack of policy and

strategy in place at inception. Nonetheless, the organisation will not always be able

to assert that it is still evolving.

4.31 Excellence by Design as a concept may be the vehicle for most of the necessary strategy

to be devised but only if it fully addresses all requirements and the principal ‘doers’ in the

organisation readily and actively adopt it. Much of what is missing in terms of

organisational strategies that are interrelated has already been recognised by the SMT,

and HM Inspector looks forward to ongoing updates and the next round of inspection

activity to see their solutions in effect.

4.32 Centrex can influence and have an active role in ensuring that police reform is effective,

in addition to also supporting vital service-wide initiatives. It can, and should, be a role

model organisation for so many issues. The inability pro-actively to demonstrate this

capability has to some extent led to a perception of disengagement with the rest of the

service, which has affected levels of confidence in Centrex. Forces have had to find their

own solutions in respect of Best Value, costing and the planning of training when it can

be argued Centrex should have been a vital source of guidance.

Recommendation 4.4

HM Inspector recommends that, by April 2004, Centrex implements a policysetting process that ensures all policies adhere to corporate format, are readilyaccessible, monitored and reviewed. Those charged with managing policiesmust also ensure every area of activity is covered by policy.

40

Chapter 4


4.33 Internally, there is a clear lack of corporate policy. Again this has already been recognised.

If direction does not come from the centre, local units resort to devising their own

policies, which leads to inconsistency, enhances any isolationist effect and creates

negative perceptions amongst staff and customers. Once Centrex has addressed these

fundamental issues, and it is currently striving to do so, confidence on the part of

stakeholders and staff can be restored.

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5.1 People:

• resources are planned, managed and improved

• knowledge and competencies are identified, developed and sustained

• are involved and empowered

• and the organisation have a dialogue

• are rewarded, recognised and cared for.

Introduction

5.2 This criterion is about how the organisation manages, develops and realises the potential

of its staff and how fairness, equality and empowerment are supported. It also relates to

how the organisation’s people are motivated and the ways in which their skills,

knowledge and commitment are maintained.

People in Centrex

5.3 The organisation possesses many committed and hard working people, enjoying their

work and respected by colleagues and learners. They can be described as being either

police staff, seconded police officers or short-term contract or agency staff (hereafter

‘agency staff’). Some, because of their role or attendance on national groups as

ambassadors, have an excellent reputation for their commitment and enthusiasm.

Centrex provides a great deal of support to its staff in terms of self-development,

much of it involving funding for external studies. Again, this is unlike the situation in other

police organisations where staff do not commonly have the same level of access to such

opportunities.

5.4 Some of these positive comments must be tempered. Centrex as a corporate body could

provide little information about the skills, knowledge and capabilities of all its people.

Further, although the development opportunities open to some staff are without equal in

most police forces, no policy nor prioritisation process could be shown to be in place and

as a result it is questionable whether all staff are supported equally.

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5Chapter

People

5

5.5 Centrex does not currently adopt a corporate induction process, bringing new staff

together, irrespective of their unit or department. As a result, there is no guarantee that

all staff receive the same early exposure to Centrex as the parent organisation, rather

than merely one specific business area.

5.6 One of the overriding issues encountered during this inspection concerns the

employment terms and conditions for staff. This is true, to a lesser or greater degree,

across all three workforce groups (staff/officers/agency). However, the issues are

different in terms of impact and relation to Centrex’s business.

Police Staff

5.7 Police staff refers to all those people who are not sworn police officers or agency staff.

Before Centrex was formed, the majority of staff were Home Office civil servants

working for a specific government department (ie NPT). The transition to an NDPB

meant that those staff who were employed under these conditions must either transfer

to Centrex as an employer or remain with the Civil Service and move on to another

department.

5.8 The terms and conditions for those who wished to transfer permanently are either a new

set devised by Centrex, or the existing Civil Service terms. These arrangements must

abide by the Transfer of Undertakings – Protection of Employment (TUPE) Regulations

1981. A large number of people had been awaiting publication of these terms in order to

decide whether or not to commit to Centrex. Staff who were employed or promoted

since formation are automatically employed on the new terms and conditions.

5.9 Publication of the terms took place in early June 2003, some 13 months after transition

and only two months before the deadline for receipt of a special bonus payment24.

The ultimate deadline for staff to transfer is April 2004. Many of the staff spoken to

believed that they had been promised publication by October 2002. No formal recorded

evidence of such a deadline being agreed was located but the inspection found that the

notion was so widespread it indicated a communication breakdown between those

charged with producing the terms (corporate HR) and staff.

5.10 Changes in senior HR personnel since formation and also the lack of published

strategic direction on estates and HR have further exacerbated staff frustration and

anxiety. The HR road shows being facilitated throughout Centrex at the time of the

inspection demonstrate SMT awareness for the need to communicate with staff over the

employment conditions. A high number of the questions asked at these events, because

they related to the future of the specific site being visited, could not be answered.

44

24 The arrangements had been agreed such that staff must decide by 1 April 2004 and that those who decided to transfer before 31 July2003 would receive a one off bonus of £200. Based on documents seen, the overall package appears to offer slightly more remunerationirrespective of whether the bonus is claimed or not

Chapter 5

People5

5.11 There is a clear requirement for senior managers to communicate and brief staff on

these key issues and, in order to be able to do so effectively, be aware of planned

strategic direction. It is perceived that SMT messages about the benefits of working

for Centrex are not getting through to all staff. By the end of the inspection fieldwork,

99 of the 491 police staff had either not made a decision or had indicated they did not

wish to transfer. This indicates a relatively positive level of take-up. However, a high

percentage of the staff consulted said they felt they had ‘no choice’ other than to sign

on and were only going to do so on that basis. This is mainly because they perceived

their alternative employment options, if they remained civil servants, were limited by

domicile or preferred work location.

5.12 A helpdesk facility was set up within Centrex’s HR unit at Horseferry House in London.

Its aim was to provide telephone support and guidance for those having to make the

decision over transfer. Staff interviewed expressed difficulties ranging from an inability

to get through to an operator, to queries not being responded to in a timely fashion.

5.13 The organisation intends to conduct a job evaluation process for all roles, separate

from the transfer of employer arrangements. This strategy requires careful

communication and implementation because those staff that have transferred will

now be subject to a role review. Although a necessary process, Centrex must take

into account any feelings of insecurity amongst staff in order that any goodwill

is maintained.

5.14 In the light of the evidence found during this inspection, HM Inspector concludes that

the timeliness, communication and management of this process was not satisfactorily

implemented to the benefit of all those concerned.

Seconded Police Officers

5.15 The terms and conditions under which seconded police officers work are totally different

from their police staff counterparts. The periods of secondment vary in length, but

generally fall between three and five years. The main difference lies in the fact that

officers remain employees of the police force that seconded them. The inspection found

the arrangement has a number of positive aspects for Centrex, the individual and the

employing force, including:

• Centrex is not involved with police pension issues

• the officer’s uniform and appointments remain the responsibility of the force concerned

• having operational police officers engaged for short periods provides Centrex with

relevant credibility

45

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• involving officers with recent operational experience in product design and delivery

to some extent ‘validates’ those outputs, ensuring they are current and relevant

• during the period of secondment, an officer is developed at Centrex’s expense, rather

than the cost falling to the parent force

• officers involved in delivering training generally, receive a good grounding in

supervision and management skills, which they can apply on return to their force

• the level of networking that takes place between officers from differing forces at

Centrex sites allows ideas and solutions to be promulgated (and the connections

usually continue after a secondment ends)

• officers are exposed to what is happening ‘nationally’ and, if used on return to force,

can be a real source of information to their force’s SMT about development issues at

that level

• through the central service regulations, officers receive a substantial allowance

in lieu of overtime and as compensation for being required to live away from

their home

• their food and accommodation is generally provided free of charge (unlike police

staff colleagues)

• the working week normally consists of weekdays only

• in most cases access to self-development opportunities is good

• many officers consulted perceived that Centrex, both as an organisation, and also as

a consequence of having quality people working within it, cared for their welfare.

5.16 However, it was found that there are also difficulties with the current

secondment system:

• forces operate tenure policies differently; to some, three-year secondments are

maximum terms, and others are more flexible. Where this involved officers engaged

in training delivery, it was found that three-year secondments did not allow them

sufficiently to mature in line with the trainer development programmes. It is

suggested that three years does not allow staff to obtain the experience necessary

to be able effectively to mainstream race and diversity content nor fulfil quality

assurance and/or staff development responsibilities

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Chapter 5

People5

• officers cannot achieve promotion within Centrex; they must return to their force to

achieve substantive promotion (this is the case even if they hold a temporary rank

within Centrex)

• too many examples were found of officers who had completed a secondment

in Centrex, who had returned to their force and no use was being made of their

considerable skill in the field of training and development

• similarly, examples were encountered of officers having returned to their force

who could not achieve promotion or recognition of their secondment with Centrex.

For some, their secondment period was viewed by the force as ‘lost time’, and

considered irrelevant to operational policing

• some officers perceived they were isolated from their forces during secondment,

as they did not receive corporate information, briefing material or sight of available

posts back in force.

5.17 The organisation is perceived by customers to be somewhat disengaged from the rest of

the police service partly because many key staff are of a non-police background, although

it is accepted by the inspection team that the skills such people possess are totally

appropriate to their role. To address this cultural issue, it may be necessary to ensure that

police officers, with the necessary skill base, fill a specified number/range of roles. This of

course is still dependent on people possessing these skills and their forces releasing

them for secondment.

5.18 Recommendations about terms and conditions and career structures within training are

also contained in both Training Matters25 and Diversity Matters. Strategic level activity

is taking place to implement them. One issue remains to be resolved in respect of police

officers working within Centrex.

Recommendation 5.1

HM Inspector recommends that, with immediate effect, the service, led byACPO, formally and positively addresses its position regarding employmentwithin Centrex and also attends to any negative cultural aspects associatedwith secondment. In addition, relevant promotion, progression and postingprocedures should be reviewed to ensure no officer is disadvantaged byworking in Centrex.

47

25 Training Matters HMIC 2001, a thematic inspection of police probationer constable training

5


5.19 Part six of the Police Reform Act 2002 allows National Crime Squad (NCS) and National

Criminal Intelligence Service (NCIS), both of which are NDPBs, directly to recruit and

employ police officers. The legislation did not extend to Centrex. If Centrex had the same

power, recognising issues around pensions would have to be overcome, officers

employed in this way would be the responsibility of Centrex.

5.20 HM inspector believes that this would allow the organisation to attract and develop

the best people on a longer-term basis than is allowed by secondment. Operational

currency could still be maintained through a managed attachment process. It is not

intended that all or even the majority of officers should be so employed, but Centrex

should have the power to use this option as is necessary and appropriate.

Agency Staff

5.21 Centrex does not employ the majority of this group, nor do they enjoy the conditions

afforded to seconded police officers. The inspection found a number of individuals on

relatively short-term contracts (ranging between three and six months). Some of these

were rolling arrangements renegotiated near to end of the current term. Whatever

the duration the extensive use of these staff has an impact on Centrex’s workforce

succession planning processes. A significant number of contracted staff spoken to:

• had been left out of communication loops

• were purposely excluded from the HR road-shows

• were not subjected to appraisal and individual performance was not being

consistently monitored

• were afforded only limited corporate development opportunities.

Evidence was also heard of others who were afforded the opportunity to attend

corporately organised events.

Recommendation 5.2

HM Inspector recommends that Centrex actively seeks, within appropriatelegislation, the power to employ police officers on a direct basis, identical to thearrangements in place for the National Crime Squad and National CriminalIntelligence Service and contained in the Police Reform Act 2002.

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People5

5.22 Given that an evolving organisation might make use of agency staff to fill identified skills

gaps, the number of interim positions caused concern for all the reasons shown above. It

must be acknowledged that the vast majority of those agency or short-term contract staff

consulted did not expect the same conditions as their counterparts. Many had decided to

work for agencies out of preference and had experienced similar conditions in the private

sector. If Centrex is to become a centre of excellence it must do more to engender a

productive working atmosphere where people with diverse origins and terms work

together in one organisation and willingly seek to do their best for that organisation.

5.23 Although the context is slightly different, the benchmark visit to St Mary’s College,

Belfast, identified the sense of staff cooperation as striking. There exists a real

atmosphere of togetherness. This is mainly a result of the fact that all staff are employed

by the college and no functions have been contracted out. All people there perceive their

role as vital to the success of the organisation26. In turn, the college SMT recognise the

impact employing local people has on the surrounding community. This is a single site

operation but Centrex would do well to recreate the team spirit found at St Mary’s.

Personal Development Processes

5.24 It is the employer’s responsibility to help staff give of their best, continually developing

a more competent and more flexible workforce which is committed to achieving

organisational objectives. It was found that the majority of personnel enjoy an appraisal

process, which is in contrast to the position found in some police forces where the

process is not well implemented. Effective systems can be used:

• as a tool to raise performance at both organisational and individual level

• to inform workforce planning

• to identify organisational and individual development needs

• to inform corporate training plans.

5.25 The value of managing people in the police service is clearly set out in the direction and

principles contained in Home Office Circular 14/2003. The service is now adopting the

Integrated Competency Framework (ICF) and a single PDR process, in line with the

circular, in relation to how all staff are managed, assessed and developed. The ICF

effectively combines National Occupational Standards (NOS) and the National

Competency Framework (NCF) into one personnel management tool. Currently,

however, the Centrex systems are not aligned to the ICF.

49

26 St Mary’s College recently achieved a perfect score in its Quality Assurance Agency (QAA) assessment

5


5.26 Centrex, in recognition of its Civil Service origins, currently has two distinct appraisal

processes in place, PADR in respect of police staff and a PDR process for police officers.

Several seconded police officers consulted feared that they will find the Centrex PDR

process out of alignment as forces adopt the ICF. Such a situation reinforces the feelings

of isolation and disadvantage referred to above (para 5.16). It is vital that Centrex aligns

its appraisal and PDR processes for all of its people with those in use elsewhere in the

police service.

5.27 The effective implementation of any management process requires supervisors and

managers to be equipped with the necessary skills. In Centrex, however, little evidence

was found of corporately devised management development being made available.

To support effective implementation of recommendation 5.3, all supervisors must be

given the necessary training.

5.28 Evidence was found of activity to address difficulties around appraisal processes being

conducted by the HR department. A new IT system is about to be implemented, and

it is believed that this will provide corporate and detailed personnel information. To be

effective, appraisal processes must not be driven by a requirement to provide mere data.

Fundamentally, they must be used proactively within the organisation’s strategic planning

function to improve individual performance in line with corporate goals.

5.29 During the inspection of PICTTS it was found that managers there had not received

formal training. This was despite several requests for training being made to corporate

HR. Consequently, neither of the team leaders there had conducted appraisals of their

staff. This resulted in only a few members of staff receiving a PDR in the last twelve

months. Those that were examined were at best satisfactory but several were

unavailable and others were out of date in respect of the interim six-month review.

5.30 The system in use at PICTTS did not provide a framework for properly identifying training

needs and/or action planning. The inspection found some evidence of staff training needs

being identified in a less formal manner. There was clear evidence that staff received

encouragement and financial support for personal development through local colleges,

which is to be commended. Whilst this support is viewed positively, any development

opportunities should be linked to an effective PDR system and contribute directly to

improving performance.

Recommendation 5.3

HM Inspector recommends that, by April 2004, Centrex adopts the IntegratedCompetency Framework (ICF) for all HR processes.

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Chapter 5

People5

Valuing People

5.31 At the time of the inspection there was an absence of corporate HR procedures and as a

result Centrex could not readily access reliable information about those who worked for,

were contracted to, or were seconded to the organisation. For example, in response to

the inspection team’s request for data, Centrex had difficulty in:

• ascertaining the level of diversity within the organisation, including the ethnicity

of its people

• obtaining accurate sickness records

• identifying the skills that exist amongst all staff

• collating staff development information both planned and completed

• monitoring of individual performance at a corporate level.

5.32 The last point is fundamental. How the organisation recognises and rewards outstanding

performance on a corporate basis is currently a difficult question to answer. Those who

had experience of working in the Civil Service positively cited the bonus scheme on offer,

but Centrex has not yet adopted this. Seconded police officers are not eligible for any

bonus payment scheme and agency staff consulted expressed a more resigned

perception:

‘If we work hard our contracts are renewed, that’s all we can hope for’

5.33 Centrex does not possess necessary comprehensive data about its people and

therefore it finds it difficult to reward people on a fair and consistent basis.

HM Inspector expects that the new HR system will address this and that the

organisation will establish an equitable, meaningful and worthwhile reward process.

Centrex should recognise the benefit of implementing such a scheme and the positive

impact that this can have at both the individual and organisational level. The inspection

encountered a number of locally established initiatives operated by managers at

Centrex. These included:

• the awarding of merit certificates

• providing cakes, flowers or chocolates from their own personal resources for staff

who have performed well

• placing letters of commendation on staff notice boards.

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5.34 Runshaw College, who were visited as a benchmark, have in place a number of

approaches to recognise staff, on top of a verbally delivered ‘thank you’ and ‘well done’.

Those found may not all be appropriate to Centrex:

• Team of the Month award

• individual recognition plan (managers draw up an annual plan indicating how they are

to show their appreciation of the efforts of their staff)

• Long Service Award Scheme (celebrating 15 years of service, then again every

subsequent five years)

• Principal’s recognition

• social events (staff are invited to a number of free-to-attend social events held

throughout the year).

Conclusion

5.35 HM Inspector concludes that it would have been difficult for Centrex to continue to

operate without the goodwill and forbearance of its staff before, during and since

formation. This level of commitment must not be taken for granted.

5.36 The circumstances surrounding the consultation, creation and publication of the

terms and conditions for police staff permeated through virtually all of the interviews

conducted during the inspection. These matters, together with difficulties raised by

seconded police officers about the way their forces treat them whilst they work in

Centrex and beyond, indicate that many people issues have yet to be properly addressed.

It is outside the scope of Centrex to address some of the problems alone, as they require

action from external stakeholders. As the senior managers of Centrex do not yet have the

benefit of a staff survey scheme to help them gauge morale, HM Inspector urges them

to take heed of the level of frustration captured during this inspection activity.

5.37 Performance management of staff through appraisal is somewhat fractured because

of the differing schemes in place. Nonetheless, it was found that the overwhelming

majority of staff, who were not agency staff, had enjoyed a PADR or PDR process.

At present the organisation lacks the processes required to enable it corporately to collate

the findings and effectively use them in the business planning process.

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People5

5.38 Furthermore, whilst guidance has been issued to the police service by the Home Office

about the ICF, Centrex, because its HR processes are not yet fully developed, is not yet

able to implement a system that police forces are actively adopting.

5.39 The inspection uncovered incidents of staff who were rewarded locally for their efforts

but at present the organisation does not have the benefit of a corporate, consistent and

fair scheme.

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6.1 Under this criterion:

• external partnerships are managed

• finances are managed

• buildings, equipment and materials are managed

• technology is managed

• information and knowledge is managed.

Introduction

6.2 The criterion of partnerships and resources covers the way in which organisations

plan, manage and deploy internal resources including finances, estates and technology.

It also covers how it plans and manages external partnerships, alliances and joint

ventures. It also refers to the way the organisation assesses associated risks.

Partnerships and Alliances

6.3 Runshaw College, within documents describing their partnerships arrangements, state:

‘We are an active participant in a number of arrangements that have been constituted

for mutual benefit, sharing of risk and added value for all members’

6.4 Centrex was found to have some constructive local partnerships in place, the aims

of which appear to mirror those above. Few were established at the corporate level,

but rather were the product of local initiatives. The alliances formed with academic

institutions, for example, Cambridge and Leeds Metropolitan Universities, were found

to be constructive. Centrex were unable, however, to provide data on every partnership

arrangement they had in place.

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6Chapter

Partnerships andResources

6

6.5 Centrex has two formal partnership arrangements involving the Metropolitan Police

Service (MPS). The first and older of these is NSLEC, which also involves HM Customs

and Excise although only Centrex provides financial support. It is believed that NSLEC

will become the training arm of the NCPE with the whole unit located on the same site.

Whilst NSLEC enjoys an excellent reputation within policing, the role of the partners

is less clear to many of the customers consulted. In fact, the MPS internally delivers

similar products to those with which NSLEC has become synonymous.

6.6 The second partnership concerns NCALT which is formed as a partnership with the MPS,

and is funded (until 31 March 2004) through a government Invest to Save Budget (ISB)

allocation of £1.7 million.

6.7 NCALT is responsible for creating a service-wide e-portal, which it is intended will

allow all police service personnel to access key information, including development

programmes, via an internet access. This facility is physically located within the MPS

training centre at Hendon. At the time of inspection, approximately 4,000 of the 200,000

police personnel in England and Wales had registered to access NCALT.

6.8 A joint management arrangement exists to oversee the activities of the head of the unit.

The NCALT staff who were consulted were found to be a mixture of officers seconded to

Centrex, MPS personnel posted to the unit27 and contracted agency staff. It was found

that a degree of confusion existed in relation to the differing Centrex and MPS

management and operating procedures. Problems exist in terms of managing personnel

from different employers owing to the lack of published guidelines applicable to all those

who work within NCALT.

6.9 In addition, NCALT possesses the licensing rights for the IT simulation programmes

HYDRA and MINERVA28. Whether Centrex makes effective use of the simulation

suites it operates under licence at Bramshill could not be established due to a lack

of performance measures in place.

Community Involvement

6.10 Key partnerships in terms of policing organisations are those formed and managed with

the community. Policing in the UK relies on the concept of ‘by consent’ and all elements

of the service have a responsibility effectively to engage with those it serves.

Fundamentally, this includes training in all its guises and every component of the training

cycle29. In respect of driving community involvement in training, Centrex could have been

far more proactive. Recommendation 6.1 of Diversity Matters called for action to be taken

56

27 The MPS recognises NCALT as the Centre of Applied Technology (CALT) an internal unit to which staff are internally posted28 HYDRA and MINERVA are employed within leadership and critical incident training to help learners deal with situations in a safe learning

environment. A number of other organisations hold licences to operate them. Intellectual Property Rights to them are held by the MPS29 The training cycle includes: needs analysis, design, delivery and evaluation

Chapter 6

Partnerships and Resources6

to enhance community involvement in all police training and placed responsibility with

taking this forward with Centrex and the APA, through a collaborative arrangement.

Although some activity has been taking place, Centrex could not, at the time of the

inspection, supply evidence of any associated formal project management process

including a programme of structured meetings.

6.11 Of great concern is the situation involving community involvement and the Models

for Learning and Development in the Police Service. This important work was

commissioned by the Police Training and Development Board (PTDB) and produced

by Centrex. At the time of the inspection the models were being disseminated to the

police service. They are intended to help in incorporating NOS as a basis for the needs

analysis, design, delivery and evaluation of training and as such provide a framework

for quality assurance. This has required a degree of co-operation and collective working

with the owners of the standards, the Police Skills and Standards Organisation (PSSO).

HM Inspector views their publication as a fundamental step in modernising learning

and development in the police service.

6.12 Production of the models offered a real opportunity to fulfil recommendation 6.1 of

Diversity Matters. Sadly, it appears that little regard has been given to including explicit

direction for community involvement within them. HM Inspector is aware that the APA

also has concerns over this issue and expects remedial action to be taken to address this

shortcoming.

6.13 Once complete and in use, it is also expected that Centrex will employ the models

comprehensively within its own functions. Future planned inspection activity will focus

on the implementation of these models internally, to ensure that Centrex is ‘walking

the talk’, particularly in respect of community involvement.

6.14 Although pockets of localised, positive initiatives do exist, the overall level of community

involvement in Centrex activity encountered during this inspection was disappointing.

6.15 Community involvement in Foundation Training, which is viewed as being vital in support

of preparing new police officers, varied in effectiveness from site to site. The current

probationer programme contains scope for one day of organised involvement, usually

taking the form of diverse groups attending a site to take part in role-play scenarios.

Most parties involved in these events viewed them positively.

6.16 The inspection team were impressed by the initiative recently implemented by the

Durham and Ponteland sites. For their community involvement day, an arrangement with

the Newcastle Metro Centre results in recruits completing practical training sessions

within the shopping centre. All parties interviewed, including shoppers and retail staff,

valued the approach and early indicators show that since the event started there has

been a reduction in crime within the centre.

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6


6.17 The inspection team were surprised to find that Centrex has not seen fit to evaluate this

initiative to judge whether it is worthy of wider use. Additionally, allocating one day to

expose new officers to the community is hardly adequate.

6.18 There has been a lack of vision in respect of the partnership with Padgate College where

Centrex leases classroom space for Foundation Training. This was cited as a positive and

innovative arrangement in Training Matters. It was noted that although recruits use the

college’s facilities, the training delivered there is the same as that delivered at any other

Centrex site. The benefits of integration between police recruits and non-police learners

have not been further explored nor has any evaluative work been commissioned to prove

or disprove the value of the concept. In the light of Centrex’s aim to be a learning

organisation, the lack of proactive research and analysis is disappointing.

Independent Lay Advice

6.19 The Centrex lay advisory panel consisted of 22 members; this body had existed

within NPT and provided independent advice to the organisation in respect of strategic

direction and products. It was convened in 1999 to consider the implications of

the Stephen Lawrence Inquiry, and was therefore mainly race focused. During the

formation of Centrex, the Board decided to continue with the panel until 31 March 2003.

The Board meeting of 7 May 2003 decided that, as the direction of Centrex in this

area has yet to be established, the panel should not be retained. There was also

discussion on a new, more diverse panel with a modified, focused role but with no clear

plans for implementation.

6.20 This position sends out a somewhat confused message to staff and stakeholders; on the

one hand, Centrex states within its documents and outputs that it is fully committed to

the area of race and diversity; conversely, it now has no independent, formal, community-

based advisory group in place to provide necessary advice, guidance and support.

Recommendation 6.1

HM Inspector recommends that, by February 2004, Centrex puts in place acommunity based advisory panel that reflects diversity in society. This bodymust be resourced and supported in its role of providing appropriate advice forall Centrex products.

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6.21 The partnership arrangements between PICTTS and external bodies were a feature of

that inspection. It was noted that the unit had developed partnership agreements with

several forces. Specifically, it had an input into an e-learning project being developed by

Kent County Constabulary. Contact with external bodies (and notably non Home Office

forces) appeared to be productive and feedback from these organisations was without

exception highly positive.

Resources

6.22 The business architecture in place at the time of the inspection indicated that all key

resourcing areas were the responsibility of the Director of Resources. The scope of

accountability also includes the portfolio for internal and external race and diversity

matters. This means that the areas that have the potential to pose the greatest risk to the

organisation sit within one directorate. Notwithstanding the capability of the present post

holder, it is unclear to the inspection team why the newer business architecture has been

devised in this way. For example, it is the opinion of HM Inspector that Centrex would be

better served by establishing separate HR and finance directorates, which is the position

to be found in the majority of private sector organisations of this size.

Finance

6.23 Currently, the customer cannot ascertain the return it gets for the £100m investment

made by the Home Office. In the absence of defined organisation planning it is unclear if

budgets have then been allocated to the directorates effectively. It would be expected

that monies are assigned on the basis of transparent bidding processes, which take

account of police service requirements (as articulated in the NPP).

6.24 The inspection found that Centrex has yet to adopt the National Costing Model for

Training. This situation makes it difficult for customers, especially forces operating within

the Best Value regime, to calculate the cost of selecting those products and services for

which they are directly charged. The inability of force training managers accurately to

calculate the cost of a Centrex product or service was found to have a detrimental effect

on the level of trust and confidence they had in the organisation.

6.25 Other issues exist in relation to funding and charging. The funding arrangements are

such that some elements of Centrex’s activity are provided free of charge to Home

Office funded police forces. It was found that other products and services are not so

funded and those customers who select them are directly charged for their provision,

even where they are considered to be national products. Learners from non-Home

Office forces and international police customers are similarly directly charged for all

services and products.

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6.26 Centrex is not currently a trading agency and its full costs are not generally recovered.

There is an advantage in charging for products and services on the basis of recovering full

costs as it sharpens the awareness of the needs of the market. This makes the provision

much more customer focused, increases sensitivity to learners’ needs and generates

new ideas on how to make access to learning more user friendly. Disadvantages also

exist. For example, there is a finite market for learning and where the provider is not the

first choice because others offer a higher quality, or more cost effective product, the very

existence of that provider’s service is at risk. This has serious connotations for

consistency and the availability of a service on demand.

6.27 Evidence of free of charge provision was found at PICTTS where the funding for the unit

is provided from Centrex’s budget. This results in Home Office forces receiving ‘free’

training. The unit receives income from other customers who are provided with training

and services, and are charged at the point of delivery. An income target has been set for

the financial year 2003/4. There are concerns that, in working to achieve any target,

Home Office forces would see a decline in places through the ratio of allocation of places

on courses against external agencies. Home Office forces stated that they do not receive

sufficient places on courses to meet their requirements.

6.28 Centrex must do more in relation to matching spend against budget. The work on the

Centrex trading rules, which was found to be actively taking place, will need to address

the problems connected with direct charging and funded training. Any new rules must

be transparent and devised in line with Centrex’s role and purpose and agreed through

consultation with the Home Office and other key stakeholders. In other words, any

arrangement must be part of a holistic review rather than an attempt to simply clarify

finance matters.

Procurement

6.29 Prior to April 2002, NPT only had the authority to purchase goods and services to the

value of £20k without the express authority of the Police Information Technology

Organisation (PITO). With the transition to NDPB, this limit was seen as being inhibitive

and as a result it was increased at the time of formation to £100k, addressing some of

the problems and concerns that the low level of the original limit were felt to cause.

There were also limitations surrounding consultancy, which were not changed at

formation and single tender expenditure which saw an increase from £5k to £20k.

Many of the spending limitations faced by Centrex were a legacy of the arrangements

in place for NPT. A robust risk assessment of financial management and procedures

followed by an aligned skills audit, prior to or immediately after formation, would have

highlighted several areas in which Centrex were exposed.

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6.30 A major concern voiced by staff engaged in local finance management focused on

the payment of invoices for goods and/or services commissioned locally but payable by

Centrex corporately. Many of the contracts have a time limit attached in which suppliers

should be paid outstanding monies. The inspection team found that a great number of

invoices forwarded to corporate finance had not been paid within the deadlines. For

example, at the time of the inspection fieldwork, Foundation Training at Harrogate were

carrying nearly £1million of unpaid invoices. It was found that a large number had

associated final demands and threats of legal action had been issued. Another finance

manager told how invoices were often sent to the wrong place within Centrex, some

of these being 80–100 days old. Another said:

‘Some are sent to the wrong coding and what happens then is that the recipient

of the miscoding has to find out where it should go’

6.31 As a result of analysing both internal data from December 2002 through to January 2003,

and the outcome of a detailed review conducted by the Home Office’s Audit and

Assurance Unit during the third quarter of 2002, Centrex, in March 2003, published their

two-year procurement strategy. This makes a solid attempt to clarify and formalise the

internal rules governing:

• contracts

• reduction of the number of suppliers used

• invoices

• e-procurement

• stock management

• consultancy/tender.

6.32 In addition, an action plan to monitor the progress and implementation of the strategy has

also been included in the document. HM Inspector sees this as a necessary and positive

step by Centrex towards addressing what has been viewed and commented on, both

internally and externally, as an area of major concern.

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6.33 Notwithstanding the positive aspect of this strategy in respect of changes to everyday

working practices, what is unclear is how staff have been fully involved, advised and

prepared. Several of the staff interviewed were unsure of why new, robust procurement

processes had been implemented throughout the organisation. Many of them, who had

operated in this area for some time, including pre-formation, said they felt mistrusted

and devalued by the changes. The manner in which they were informed about the

consequences of non-compliance were not found to be conducive to an open

working environment.

6.34 HMIC is aware of the serious concerns, raised in late 2002, in respect of the procurement

processes within Centrex and two contracts30 in particular. These arrangements are an

example of a situation where a combination of the following factors put Centrex in a

vulnerable position:

• insufficient monitoring of the tender/contract and financial allocation, in addition

to achievement of preset aims

• agreements made without written contracts

• lack of adherence to Home Office and European Union procurement rules

• exceeding organisational spending limits

• a continual failure to gain appropriate authorisation throughout the project

• internal communication issues

• no clear visible return on the considerable investment made.

6.35 To address these matters, only full implementation and close monitoring of the

procurement strategy will allow Centrex to operate with confidence in the procedures

in place, benefit from the achievement of clearly defined outcomes and be able to

demonstrate return on investment.

6.36 The National Audit Office (NAO) has a formal role in auditing NDPB accounts. Their

reports are in the public domain and the inspection team intended to make use of

their findings in respect of Centrex for the 2002/3 financial year, but the corresponding

report has not yet been published. In respect of the time taken to ‘sign off’ the

accounts, this is not an abnormal situation and it is understood that the report is

imminent.

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30 The purpose of one, involving The Salamander Organization Ltd, was to provide consultancy and support through formation and also aKnowledge Map® capability (described as a technology based, active, visual representation of a business). The other contract, with PennyFerguson Ltd, involved delivery of the Personal Leadership Programme (PLP)

Chapter 6


The Centrex Estate

6.37 A lack of investment over a number of years prior to formation has resulted in an

estate described as being in an extremely poor condition. Centrex requires an estate

fit for whatever purpose it is determined to have. If Centrex is to play an active role

in improving police service performance, it is likely that substantial investment will

be required.

6.38 Centrex could not provide the inspection team with an estate strategy. It is believed

that the production of such a directive has been a major consideration for the

organisation since late 2002 and related activity has been under way since that

time. In fact, NPT commissioned an Outline Business Case31 in respect of the estate

in February 2002. This report clearly highlighted the risks faced by the organisation

in respect of equal opportunities and human rights legislation and its accommodation.

Further documentary evidence alludes to the creation of an ‘embryonic’ but

unpublished scheme being considered in January 2003. The current status of

this latter work is unknown to the inspection team despite numerous requests

for information.

6.39 The estate strategy must be driven by the vision and purpose for the business, which,

as already stated, has also yet to be resolved. Nonetheless, the inspection team believes

that staff who manage estates and accommodation issues must be informed about the

strategy for today. For example, irrespective of whether questions exist about the future

of a specific site, decisions about maintenance may have to be made (even if it is decided

a repair is not financially viable and is not therefore undertaken). Other areas to be taken

into account include:

• statutory obligations – in respect of fire safety, health and safety, disability

discrimination, equal opportunities and human rights

• capacity (eg Foundation Training currently cannot meet all of the demands for

accommodation)

• unsuited for purpose – some of the older locations make use of cramped classrooms

which lack adequate heating or cooling

• inefficiency – energy performance is currently unmonitored, but the age and

condition of some facilities suggests a degree of waste is occurring.

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31 Outline Business Case: A Way Forward for National Police Training’s Estate. Capita (Turner Townsend) February 2002

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6.40 Centrex has inherited a substantial maintenance backlog in respect of an estate

that consists of:

• modern, functional sites (eg NSLEC)

• older, less functional sites (eg Bruche)

• leased accommodation (from a number of police forces and external suppliers).

The terms of these contracts vary in terms of length and also in respect of when

leases expire (eg Ponteland and Reading)

• ad hoc, local arrangements for the use of buildings without formal contracts being

in place (eg Moreton-in-the-Marsh)

• hotel conference facilities, rented on a needs basis (eg Harrogate).

6.41 Centrex’s biggest marketable asset in terms of estate is perhaps also one of its greatest

drains on resources. The Mansion House, the centre-piece of the Bramshill site, is a

grade one listed building with 16th Century origins. English Heritage, which has a

statutory role in managing listed buildings, has set rigid constraints on its use. Whilst few

people, including the many international learners who complete courses there, could fail

to be impressed by the vista as they approach the house, many of those who work inside

complained of cramped, uncomfortable conditions, too cold in winter and too hot in the

summer. Maintenance is also a costly affair; for example, the inspection team were

informed that 20 recently installed fire doors cost over £1000 each because of the

requirement for them to blend in.

6.42 The National Police Library is located within the Mansion House and has been so

for nearly 50 years. The 65,000 books, reports and theses it contains have proved

invaluable as a source of research material both internally to Centrex staff and also

externally to the large customer base, including both police and non-police personnel that

it serves. In a recent, internally conducted, customer survey process, the library’s services

and its staff were rated highly. Adverse comments were captured in relation to

overcrowding and physical access. In addition, staff employed there have raised issues

ranging from difficulties in implementing multimedia and IT facilities to the storage of

valuable archives in less than adequate environmental conditions. If the library is

to expand in line with demand, careful consideration must be given to its location

and resources.

6.43 The conditions experienced by staff at Bramshill are not unique. Other sites suffer

difficulties with accommodation. HM Inspector believes that some of the issues

connected with maintenance backlog and out of date facilities stem from the lack

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of investment in NPT. Some customers of Centrex fare no better and in some cases

suffer poorer accommodation than staff. During activity connected to Training Matters

a large number of observations were made about learner accommodation in use by

Foundation Training and concluded:

‘No officer should have to endure the examples of the poor standards of accommodation

uncovered during this inspection’

6.44 This current inspection found little had changed since 2001 and subsequent Turner

Townsend report. Learners from across many of the Centrex managed sites still spoke of:

• dank, mouldy bathrooms, most of which were shared facilities

• disparity in the quality of food, ranging from high in quality and choice to

poorer levels of each

• inadequate and outdated exercise and leisure equipment

• a lack of privacy and en-suite facilities

• cramped and unventilated classrooms.

6.45 Mainly in response to the content of Training Matters, the strategic governance of

policing has accepted the need radically to change the current method of developing new

police officers. This work, overseen by the Probationer Training Programme Steering

Committee (PTPSC) is aiming to devise a new system by April 2004. Centrex’s role in this

has yet to be finalised. Uncertainty associated with how this project will be implemented

is causing many who work for, or are seconded to, Foundation Training a great deal of

anxiety, not least because the future of some of the associated sites has yet to be

agreed. The inspection team are aware of planning permission being granted by the

Harrogate Planning Committee in October 2002 for a substantial build on that site. To

date no work has commenced and the position in respect of this project is unclear.

6.46 The work to implement a new approach to probationer training may also provide a reason

for inactivity in addressing the issues previously identified. Nonetheless, the inspection

team calculates this means that nearly 20,000 officers will have endured what is

considered unacceptable accommodation.

6.47 Although the inspection team are aware that Centrex’s SMT are actively considering the

issues connected with managing the estate, HM Inspector expects in the short-term to

see the publication of a strategy, aligned to the long-term business vision, which will

inform staff and customers about the future of specific sites and of the approach to

managing the current estate. In addition, full heed must be taken of what was written

regarding learner accommodation in Training Matters.

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6.48 The PICTTS inspection found some common themes in relation to estate issues

in respect of Centrex. It was identified that the unit was split over two sites,

classroom facilities at Leicestershire Police HQ and administration and trainer office

accommodation at a rented site three miles away. Prior to April 2002 all the facilities were

housed at Leicestershire Police HQ. The split location is not an ideal situation. The

trainers wasted time travelling between the two sites to deliver training, to use support

materials stored at the office and consult with colleagues and management. Additionally,

whilst commuting to and from the two sites trainers are not available as a resource.

6.49 The office complex that PICTTS uses to house its administrative function is owned by,

and is also the home of, a multi-national company. Centrex has a five-year lease on the

premises, with no option to renew. The inspection team recommended that at an early

stage Centrex should consider the strategic issues around future requirements to provide

the opportunity for proper estates planning, based on their agreed role.

Technology

6.50 The inspection found that staff also identified some positive resources issues,

which included a general perception that the organisation was well served by IT and

technology. An ICT strategy has been in place since the latter part of 2002. When

compared against many police forces, HM Inspector believes that Centrex does well

in this area. Other notable areas include the provision of up to date technological

teaching aids for some, but not all, classrooms, including DVD players and electronic

display equipment32.

6.51 Centrex has video-conferencing facilities in place at many of its key sites. The absence

of corporate monitoring processes in place made it difficult for the inspection team to

gauge how much use was being made of this medium. At one site, the room given

over to inspection staff for a three-day visit was the location of the facility. For reasons

discussed in chapter three, effective use of video conferencing can be a valuable tool

for leaders at all levels.

Recommendation 6.2

HM Inspector recommends that, by February 2004, Centrex, in advance ofany strategy linked to its role and purpose, publishes guidance in respect ofmanaging its current estate.

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32 Centrex could not provide a programme of equipment renewal, but indicated it was being done on an ad hoc basis

Chapter 6


Conclusion

6.52 This area of the EFQM model encompasses two distinct aspects of organisational activity.

First, there are the external partnerships and alliances that support, underpin and enhance

performance and second, all the resources required to enable the business to operate.

6.53 In relation to partnerships, Centrex has established some excellent local working

agreements, including with academic establishments, but mostly relative to individual

sites. Some of these arrangements do cut across all organisational activity, but Centrex

was unable to provide corporate information on all such activity currently in place. Further,

the level of community involvement in Centrex products, despite recommendations made

in previous HMIC reports, remains low level and largely uncoordinated.

6.54 As the organisation strives to become a centre of excellence, it can ill afford to alienate

independent, informed people from differing communities and organisations who seek

to provide valuable guidance. The inspection team believes that Centrex may have

done so when it disbanded the original lay advisory panel without replacing it with a more

diverse forum.

6.55 In relation to the second area, Centrex has within its business architecture a directorate

with specific responsibilities for providing all that is required to maintain output. Accepting

that what an organisation furnishes to its staff is often never enough, the level of

frustration, in relation to the provision of resources, particularly in respect of estates

issues, is of concern.

6.56 In order to address procurement issues connected with contracts, Centrex has tightened

its internal controls, checks and balances and has implemented a procurement strategy.

If it is to be effective, this strategy requires better communication of its contents, the

imposition of a monitoring system and for the organisation’s personnel to be suitably

skilled in financial management.

RECOMMENDATION 6.3

HM Inspector recommends that, by February 2004, Centrex issues directionsin relation to the use of video conferencing facilities in the organisation andsets and monitors targets for its use, including an evaluation of its value tothe organisation.

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6.57 When asked, a great many staff employed across the Centrex estate expressed

satisfaction with their working conditions particularly those at NSLEC and NTCSSCI.

For those working at sites where the infrastructure was in need of attention, what

concerned them most was not the condition of the building, as they said they could

accept the inadequacies, at least in the short-term. Of particular concern, because it

impacted on their personal circumstances, was the uncertainty of not knowing if the

individual site had a future within Centrex.

6.58 The vast majority of learners accommodated on Centrex sites who were interviewed

found their living conditions to be less than satisfactory.

6.59 It was established that the majority of people are well served by IT provision. Some

expressed misgivings about specific software programmes, but in the main, when

benchmarked against a number of police forces, Centrex is progressive in this area.

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7.1 Processes are:

• systematically designed and managed

• improved, as needed, using innovation in order to fully satisfy and generate

increasing value for customers and other stakeholders.

Products and services are:

• designed and developed based on customer needs and expectations

• produced, delivered and serviced.

Customer relationships are managed and enhanced

Introduction

7.2 This criterion encompasses how organisations design, manage and improve their

processes and how they create value for and also satisfy customers and other

stakeholders. Processes are the means or approaches by which strategic directives

(see chapter three) are put into action throughout the organisation. They include the

systems and measures established to ensure achievement of these directives.

Centrex Quality Assurance

7.3 In relation to providing training and related matters, Centrex’s key processes could be

described as:

• teaching and learning

• learner assessment, support and monitoring

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Processes

7

• training needs analysis

• course design and review (internally delivered as well as packages for use within

police organisations).

The mechanisms to ensure that these are corporate, adhere to agreed standards and are

consistently delivered can be described as Quality Assurance (QA).

7.4 Until Centrex’s full purpose within the police service is clarified (see recommendation

2.1), it will be difficult for the organisation to establish robust, well-implemented and

managed processes in support. Nonetheless, Centrex is currently providing a large

number of wide-ranging products and services. Given that many of these were also

outputs of NPT, the inspection team expected to find established systems in place

to support them.

7.5 At the time of the inspection, Centrex did not have in place systematic and structured

approaches to designing, implementing and setting standards for its key quality assurance

processes. Some specific units had instituted good local practices and procedures in

support of delivering the products and services for which they were responsible. Differing

practices were found at disparate sites and even within departments accommodated at

the same geographic location (eg QA systems employed by Foundation Training and

NPLC at Bramshill).

7.6 Evidence was found of managers implementing their own arrangements in respect of

areas under their control, but what could not be found was a culture of target setting or

using measures to improve the quality and output of products. The inspection team did

not find evidence of a corporate improvement committee, group or team operating

effectively. Where targets existed, it was found that staff were generally unaware of the

outcomes if targets were achieved, failed or exceeded. The absence of processes to

manage efficiency has serious implications for organisational performance.

7.7 Quality Approval is a product that existed within NPT and continues to be delivered

by Centrex. The unit with responsibility is located within the Training and Learning

Services directorate. The process involves police organisations seeking accreditation

for their training department. When awarded, accreditation provides customers with

an indication of the quality of an organisation’s outputs. Currently, 36 of the 43

police forces in England and Wales have or are actively seeking this ‘kite-mark’

for their training departments. The accreditation is valid for three years, after which

a re-examination is required. The current process is aligned to that used by the

QAA in educational establishments.

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Processes7

7.8 Whether the remit for conducting Quality Approval resides with Centrex or a more

appropriate external body should be considered when examining any future role. In some

respects, Quality Approval emulates inspection activity, which, in terms of the provision

of training, is the responsibility of organisations such as HMIC and ALI.

7.9 Centrex has not implemented the same Quality Approval processes internally and, as

a result, opportunities to assure quality and identify key strengths and weaknesses

are being missed. Centrex advise that Excellence by Design is intended to address

this shortfall.

7.10 The PICTTS inspection team reported that there was a lack of quality assurance of

the unit’s products. As a result, despite the aspiration to tailor courses to meet learner

needs, a ‘one-size fits all’ solution was evident within the training delivered and this was

criticised by customers. Course materials were targeted at the lowest capability in the

group resulting in many learners receiving training they neither needed or wanted, or

worryingly, not receiving the required development.

7.11 The lack of structure applied to internal quality assurance has led to many other key

processes employed within Centrex being somewhat localised and non-corporate.

The following examples highlight this:

• not all products are currently designed to a corporate model or monitored by a single

design registration process (eg those from Training Design Harrogate and NSLEC)

• workplace trainer assessment is taking place on an ad hoc basis dependent upon

location (eg the Training Development Officer (TDO) process is applied at Ashford,

and other Foundation Training sites, but NTCSSCI do not have TDOs in place)

• the qualifications required by trainers vary (eg Foundation Training insists on

staff completing the Trainer Development Programme (TDP) or its equivalent;

conversely, staff delivering leadership training have varying levels of experience

and qualifications)

• no corporate learner assessment framework exists within Centrex

• the approach to benchmarking of products and services does not adhere to any

corporately driven framework. Centrex does not appear to have a strategy to support

the development of partnership working with private sector organisations that have

relevant and innovative ideas.

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7.12 Runshaw College provided some excellent examples of approaches to

benchmarking, including:

• procuring formal professional benchmarking services

• collaboration with good practice in the private sector

• collaboration with other public sector training bodies

• establishing a database of common good practice (and practitioners) for each course,

subject and process in place at Runshaw.

7.13 The inspection team perceived that these examples were inculcated into the culture

of Runshaw College, along with a sense of teamworking, the involvement of all

staff in setting quality processes (in an atmosphere of trust) and also a belief in

continual improvement.

Evaluation

7.14 The difference between quality assurance and evaluation is often unclear to practitioners.

Many think there is no distinction and view the latter as a component part of the QA

process. This can be said to be true in terms of the validation of products by providers

of training (ie the lower levels of evaluation) and it is the case that evaluative processes

should be designed into products at the outset. Impact evaluation, which analyses

the effect a training event has on individual performance in the workplace and/or on

organisational performance, should be conducted independently from those responsible

for delivery.

7.15 For Centrex, this issue causes a dilemma. On one hand, it provides training courses

for evaluators and is, therefore, viewed by the service as an informed and capable

organisation. On the other hand, it provides a great deal of training delivery yet

commissions very little evaluation of its own products. It could be argued that the

customer has a responsibility to ensure any purchased service meets their needs

and provides value for money, and undertakes or commissions evaluations accordingly.

The provider would still find such information to be vital to its success.

7.16 Centrex has no internal evaluation strategy in place to inform its key processes.

Little evidence was found of the SMT and Board actively examining and monitoring

evaluation reports about its products and services.

7.17 Learners’ views of their experience of the training are recorded immediately upon

completion of an event (colloquially termed ‘happy sheets’) and monitored by Centrex.

The inspection team also found that data is captured by Foundation Training from learners

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and their tutors three months or so after they have completed residential training and

returned to force. This post course evaluation approach is used to inform the content of

subsequent courses. Such a pro-active approach must be adopted more consistently

across Centrex.

7.18 PICTTS training events were found to be subject to reaction level evaluation using generic

Centrex forms. Trainers and staff did not consider these evaluation forms ideal for their

training events. The forms were forwarded for processing and the results were then

returned to PICTTS management. There was little evidence of any positive action

resulting from this level of evaluation. Higher level evaluation was not easily identifiable

and feedback from customers was not actively sought. The information contained in the

low level evaluation process was not shared with customers.

EFQM within Centrex

7.19 Employing the EFQM model within the inspection methodology heightened the team’s

sensitivity to the level of its internal application within Centrex. Whilst adopting this

approach may not be a key process in itself, its use can alert managers to risks and

highlight practice which has a beneficial effect on operations. It was found that some

directorates and units do make robust and effective use of the model. For example,

Foundation Training recently conducted a self-assessment that resulted in 156 aims

for improvement being identified. Although some staff in this directorate expressed

their consternation with the number of objectives, the process at least provided

a spur to some important activity. The NTCSSCI also makes effective use of the

model within all of its business practice and NCALT have recently conducted an

EFQM self-assessment process.

Recommendation 7.2

HM Inspector recommends that, by March 2004, Centrex devises and publishesan internal evaluation strategy for its products and services. This directiveshould include a prioritisation process and a policy identifying which productsor services will be subject to independent evaluation.

Recommendation 7.1

HM Inspector recommends that, by February 2004, Centrex implements aconsistent and corporate approach to internal Quality Assurance, assigningresponsibility for measurement, reviewing and updating to the Directorate ofPractice Development.

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7.20 Centrex could not provide up-to-date evidence of a holistic approach to the adoption

of the EFQM model, although the work being planned in respect of the Diversity

Excellence Model will require a degree of corporate activity. In some units, the

inspection team captured vocal rejections of the EFQM model, mainly by staff that had

not been formally exposed to it within a structured programme. At present, it is also

unclear whether all of the Excellence by Design work-strands are to be implemented

in line with the EFQM model or any other established management framework

(see recommendation 4.2).

Internal Communication

7.21 To engage staff effectively requires clear communication processes that are wholly

inclusive and readily understood. Most corporate communication originates from a

strategic level; proper consideration must also be given to mechanisms that allow all

staff the opportunity openly and blamelessly to inform senior staff about issues. The

overwhelming concern identified by staff consulted, across Centrex, as an area for

improvement centred on a lack of communication of organisational direction and strategy

and also how staff could access such information.

7.22 The inspection team found that media for communication exist and are relatively efficient.

For example, the organisation’s intranet system allows e-mails to be circulated rapidly and

widely and it carries an extensive array of information. There are also a number of

corporate newsletters and flyers produced.

7.23 There appeared to be a problem around disseminating key messages to the right people.

This is a product of an over-reliance on the e-mail system. Information is circulated but

the majority is not accessed, acted on or acknowledged because many of the e-mails

sent to ‘all staff’ had no immediate relevance to many individuals. In addition, many of

those interviewed said that their working day did not include time to read and digest large

amounts of information. This led people to be selective in respect of the information they

accessed. Evidence was found of staff being aware of one specific corporate message.

Staff recalled the communiqué33 not for its content but because they viewed its tone

as threatening.

7.24 In order to address communication barriers, Centrex must implement a process that

equips its people with relevant, accurate information in a timely fashion. In doing so,

they need to create an internal culture in which staff trust the content of messages

and actively seek to learn more about strategy and policy because doing so helps them

in their role.

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33 This refers to a specific e-mail sent by a director in respect of financial practices. Staff perceived this to be threatening as it containeda robust statement about the consequences of non-compliance.

Communication with Customers

7.25 The organisation does not do enough to communicate with all its customers, nor to

capture their views on what is provided. Currently, the organisation does not have in

place one, single point of contact for customers although it is acknowledged that work is

under way to implement a corporate commissioning system. The inspection team were

advised that this will prevent departments across Centrex being contracted independently

to produce work in a non-prioritised fashion. It will also result in those customers, to

which this matter relates, initially dealing with one corporate source.

7.26 Nonetheless, at present the level of customer consultation and communication was

found to be less than adequate with only one specific staff member, occasionally

augmented by another, proactively seeking customer perceptions. Of the customers

consulted during this inspection, few had a real notion of how effectively to engage

with Centrex in respect of matters they believed required clarification. For example:

• a significant number sought clarity over the position and exact role of NCPE within

Centrex but did not know where to raise concerns

• a number of strategic level customers consulted expressed frustration in relation

to engaging the organisation about places on Foundation Training courses

• sufficient interviewees said they did not know what role was fulfilled by the

Directorate of Practice Development to cause concern.

7.27 Centrex does have processes in place to provide a level of customer service at many

sites, but these are not corporately structured or well communicated and advertised.

This situation is exemplified by PICTTS, where it was found that there was a lack of any

recognisable structure or system in which the unit effectively engaged with its customers

or provided a forum for customer contact.

7.28 There was a lack of identifiable communication structures between PICTTS, Centrex and

local training managers. This was in part due to the different management structures

found within forces. There is a perception amongst customers that, in the absence of a

structure for engagement, PICTTS currently controls, and will continue to control, training

delivery instead of providing a service that meets customers’ needs.

7.29 There was a disappointingly low level of communication taking place with learners

attending Centrex events, especially in respect of residential courses. One of the most

prevalent complaints was the lack of process, opportunity or system to capture their

concerns and action them. Even where representatives could submit information to a

particular centre, the learners often did not see any results even where matters were

addressed, mainly because they had finished the training and returned to their force

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or organisation. This can easily sully a learner’s impression of Centrex and tarnish the

organisation’s reputation.

Conclusion

7.30 The inspection expected to find robust mature processes in place to quality assure the

products and services delivered by Centrex as many of these outputs existed under the

NPT regime. On some sites, localised procedures did exist and credit is due to the

managers and staff who take real pride in what they do and seek ways of making sure

that people experience a consistent quality product. In general, these processes were

maintained even under the pressure of increased numbers of learners.

7.31 The Centrex Quality Approval kite-mark is still being sought by police organisations who

generally value the advice and guidance it brings, although for some it is more about

receiving the accreditation.

7.32 One thing lacking from this area was a sense of a ‘Centrex way’, a common set of

standards and processes identifiable throughout the organisation as supporting the

delivery of the strategic vision. At present, differing units have their own unique way

of operating which leads to inconsistency and inefficiency. It also reinforces the feeling

that Centrex is a collection of units rather than a single unified body taking police training

and development forward in partnership with the remainder of the service. The

benchmark visits to Runshaw and St Mary’s Colleges, accepting the difference with Centrex

in scale and geography, found there was a tangible level of unity and purpose at both.

7.33 If Centrex is to become an effective learning organisation it must implement processes to

capture data about the impact of its work. Evaluative procedures must be designed into

all its products and a strategy produced to detail what products will be evaluated by

whom. This is a key point as it was surprising to find so little associated activity taking

place. There must be real doubt whether the organisation currently has an effective

evaluation capability.

7.34 A concern raised during interviews with staff, customers and stakeholders centres on

communication and messaging. Internally, the processes currently employed to provide

strategic information were less than effective. Externally, the views captured indicated a

level of dissatisfaction with the systems in place to capture their needs and concerns.

7.35 Centrex’s key customers, its learners, especially those who had experienced residential

training expressed differing opinions about Centrex, dependent on where the event took

place. The focus of interviews was often more about the teaching environment and the

accommodation conditions than the quality of the training itself. Centrex needs to do

more to capture information about staff and customer perceptions and be seen to

monitor and action the findings.

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Chapter 7

Processes7

8.1 This chapter fulfils three distinct roles. First, in line with HMIC’s terms of operation,

an objective assessment of the effectiveness and efficiency of Centrex at the time of

inspection is provided. Secondly, based on the findings of this work there are a number

of actions for Centrex to consider, both for the short and longer term. Third, proposals

for a future programme of focused inspection activity are included.

Effectiveness and Efficiency

8.2 In judging the effectiveness of Centrex, account was taken of a number of factors:

• clarity of strategic purpose and role

• how the organisation performed against the Home Secretary’s objectives

• how the importance of race and diversity is promoted

• the quality of leadership

• the scope of products (how widely they are taken up, the size of any target group

and their impact on policing in general)

• the condition of the estate

• the provision of resources

• condition of key policies

• management and utilisation of staff

• evaluative and performance information available

• customer relationships.

77

8Chapter

The Way Forward

8

8.3 Effectiveness ranges from totally effective as the desirable state to wholly ineffective

(a position that would, in all likelihood, result in immediate high-level intervention). Overall,

taking into account all available evidence at the time of the inspection, HM Inspector

concludes that Centrex is partially effective.

8.4 Efficiency ranges from totally efficient to wholly inefficient, and does not refer purely

to financial probity, although this is a feature. Other factors considered include:

• the impact of leadership

• condition of PADR/PDR processes

• the employment of business management tools

• manner in which the organisation measures and demonstrates its own performance

• implementation of corporate policies to ensure consistency

• procedures in place to quality assure products and services

• the success of internal communication

• customer perceptions.

8.5 HM Inspector concludes that Centrex is inconsistently efficient. That is to say it is

inconsistent, dependent on an individual unit’s or directorate’s performance rather than

being driven by corporate activity.

8.6 What is required now is for Centrex to address identified shortcomings and

corporately implement areas of positive activity so that it becomes wholly effective

and consistently efficient. Under the terms of the Police Act 1996, the Board of

Centrex should invite the Chief Executive to submit comments on this report to

them, which, together with their own and any responses they make to the Chief

Executive’s submission, should be published and a copy sent to the Secretary

of State.

Short-term Actions

8.7 For the purpose of these proposals, short-term is taken as being within two years from

date of publication of this report. Within that timeframe, Centrex should, in addition to

fulfilling the formal recommendations:

• clarify the status of so called ‘national’ products, including their ownership, funding,

method of delivery, consistency, the inclusion of standards and what products, if any,

are to be deemed mandatory (see para 3.34)

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Chapter 8

The Way Forward8

• through pro-active engagement, influence police reform and also provide support

to vital service-wide initiatives, becoming a role model organisation, for example in

respect of Best Value, costing and the planning of training (see paras 4.23 – 4.24)

• make Centrex a customer-facing organisation, one that people would strive to work

in, and one with which the police service would seek to do business before any

others. To achieve such a position requires activity not only by Centrex but also

positive action on the part of the tri-partite governance to address current police

service cultural and attitudinal issues (see paras 2.13 – 2.23)

• devise clear business vision and strategies that are interrelated and ethically sound.

In addition, ensure that a communication strategy is created which will, within its

direction, provide systems to address the difficulties some customers experience

when interacting with the organisation (see paras 4.9 – 4.11)

• publish an estate strategy, aligned to the long-term business vision, which will inform

staff and customers about the future of specific sites. In addition, full heed must be

taken of what was written about learner accommodation in Training Matters (see

paras 4.11, 6.39 – 6.40)

• re-communicate the procurement strategy, ensuring appropriate staff understanding

of its purpose, impact on their role and current status. In addition, Centrex should

monitor its effectiveness taking note of the comments in chapter six regarding

outstanding invoice payments. When confident that the processes are embedded,

appropriately devolve responsibility and accountability for resources. This will allow

the organisation to react to local resources issues in a more timely fashion and

also create a sense of trust and empowerment amongst staff (see paras 6.31,

6.32, 6.36 and 6.58)

• give thought to the concepts contained in the society results section of the EFQM

model and set an appropriate strategy in respect of the organisation’s impact

on local, national and international communities (see paras 2.24 – 2.25)

• consider the results gained from using the Diversity Excellence Model and introduce

through the articulation of a clear business case any necessary change (see para 7.20

and recommendation 4.2)

• address the customer perception issues connected with the name ‘Centrex’ and also

provide clarification over the use of the term ‘National’ in its products and services

titles (see paras 3.21 – 3.26)

• conduct a skills audit in order to ascertain the true levels of expertise, experience

and ability. The information should be used on an individual basis through PDR.

Organisationally, the information should inform the internal development that Centrex

79

8


may need to provide, ultimately ensuring that the right people are employed in the

right place and that staff possess the skills required to undertake their role effectively

(see paras 4.11, 5.27 and 6.30)

• implement an equitable, meaningful and worthwhile reward and recognition process,

devised as a result of organisation-wide consultation (see paras 5.31 – 5.32)

• gain the confidence of its own people through effective internal communication

processes. Such measures must provide relevant information to those who require

it in a way that promotes the necessity and value of gaining organisational knowledge

(see paras 2.20, 7.21 – 7.24)

• implement an IT-based HR system capable of providing the organisation with

accurate, meaningful information about its workforce. Further, once in place, an

HR process should be established whereby effective use is made of the available

data (see paras 2.20 – 2.21, 4.9 – 4.11, 5.10 and 5.30)

• revisit the Models for Learning and Development in the Police Service to include, as

an addendum or in a revised version, explicit direction for community involvement in

police training as set out in recommendation 6.1 of Diversity Matters. This process

should involve dialogue with the APA. In addition, the organisation should seek ways

to ensure that the community is involved on a partnership basis in all relevant activity

(see para 6.11).

Longer Term

8.8 By addressing the short-term actions shown above and fully implementing the

recommendations contained in this report, the foundations for longer term (two–five

years) activity will have been set, particularly:

• becoming a key component in the improvement of policing performance, in line with

any current National Policing Plan, through the implementation of quality, consistent

and respected processes (see chapter 7)

• submitting solutions to policing problems, including identifying issues before they

impact on the service. Centrex should be at the forefront of providing responses

to new legislation before it is enacted (see recommendation 2.1)

• creating a culture of race and diversity excellence, with a connection to every policing

organisation and providing definitive answers to complex operational questions on

diverse communities and situations (see recommendation 3.2)

• as Centrex is responsible for developing doctrine for the police service, ensuring

ethics and professionalism are inculcated into all aspects of policing (see

recommendation 4.1).

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Chapter 8

The Way Forward8

Future Inspection Programme

8.9 One of the key terms of reference for this inspection was to identify priorities for a future

inspection programme. Having examined all the evidence captured, the future activity will

feature a specific criterion of the EFQM model rather than examining individual units or

directorates or functions. Within this process, it is not intended that every part of Centrex

will be revisited for each examination. Rather, focus will be applied to appropriate sites

and/or units dependent on the criterion itself and other data such as:

• internal assessment reports

• on-going monitoring of performance by HMIC

• self-nominations

• questionnaires

• information submitted by stakeholders.

8.10 Although the suggested order of work indicates a priority, as this is a two-year rolling

programme, all aspects of the model will be examined over a relatively short period. The

plan is also flexible enough to be altered as necessary. Any changes to the organisational

architecture can also be readily incorporated.

Priority of Attention Rationale

People Ensuring that Centrex has the right people in place will be critical to

its success. It is perceived that much needs to be done to creating a

workforce that operates under fair, consistent conditions. This must

be a priority if Centrex is to retain quality staff.

Results* The results section demonstrates success and the scope of business

activity. Conducting this area of inspection second will provide

Centrex with an opportunity to adopt more robust systems in

response to recommendations and prove its contribution to policing.

Partnership and Making sure the right locations and equipment are available

Resources to deliver the products and services is important to success.

In addition, in a policing context the partnerships forged by Centrex

have a vital role to play in validating its role. Examining this criterion

at a later time will allow Centrex to build on existing policing

relationships whilst initiating community based partnerships.

Policy and Strategy The policy and strategy that is created articulates the way in which

Centrex will conduct its business. The timing will allow the organisation

to clarify its role and produce necessary supporting directives.

81

* Single activity focusing on the criterion of Customer, People, Society and Key Performance results

8


Priority of Attention Rationale

Processes The key processes are the means by which the strategy and policy

are enacted. For that reason, this area will be inspected after the

strategic vision is articulated and enacted.

Leadership The leadership of the organisation must deliver what is required of it,

in a way that guarantees commitment from stakeholders. This work,

when conducted, will allow for a judgement to be made about how

effectively leaders have moved forward in terms of organisational

change.

82

Chapter 8

The Way Forward8

9.1 This chapter contains all of the recommendations made within this report and an

assessment of what benefits Centrex will gain from adopting each of them, as well as

the possible penalties of failing to do so. The likely investment implications involved in

embracing these proposals are also indicated, as is an assessment of their immediacy.

Benefit/Penalty Assessment Framework

9.2 The framework provides an uncomplicated method of estimating the level of benefit to

be gained from the adoption of each recommendation. Conversely, it also contains an

appraisal of the penalty of failing to do so. This is a subjective process and is not a

guarantee that the results will occur.

Benefit:

• High gain – Centrex will gain the greatest qualitative benefit in terms of organisational

effectiveness and/or public reassurance and/or human resource efficiency

• Medium gain – Centrex will gain measurable benefit in terms of organisational

effectiveness and/or public reassurance and/or human resource efficiency

• Low gain – Centrex will gain perceptible benefit in terms of organisational

effectiveness and/or public reassurance and/or human resource efficiency.

Penalty:

• High risk – Centrex faces the greatest risk in terms of organisational ineffectiveness

and/or loss of public confidence and/or human resource inefficiency

• Medium risk – Centrex faces measurable risk in terms of organisational

ineffectiveness and/or loss of public confidence and/or human resource inefficiency

• Low risk – Centrex faces perceptible risk in terms of organisational ineffectiveness

and/or loss of public confidence and/or human resource inefficiency.

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Chapter

9

9Recommendations: Impactand Investment Implications

Investment Implication Criteria

9.3 Each recommendation has been analysed for its likely financial impact and broad

bands are used to categorise the criterion. The calculations are only based on starting

up costs. Many will not result in a requirement for extra funding as they only involve the

improvement of existing processes and others may result in financial gains. HM Inspector

believes that delivering appropriate training to staff should be considered an investment

and this section viewed in that context.

Criteria:

• Substantial investment – in excess of £5 million

• Intermediate investment – between £1 million and £5 million

• Nominal investment – up to £1 million

• Cost neutral – no additional funding

• Possible gain – likely savings in excess of £1 million.

Immediacy

9.4 Immediacy is defined, in relation to the timing of the publication of this report, as being

either an immediate, short-term or long-term consideration for each recommendation.

• Immediate to be adopted immediately

• Short-term to be achieved within one to two years

• Long-term to be achieved within two or more years.

Summary of Recommendations

9.5 Highlighted recommendations are those that have both a high benefit if adopted,

and a perceived high penalty if not implemented.

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Chapter 9

Recommendations: Impact and Investment Implications9

Benefit: Medium

Penalty: Medium

Investment: Cost Neutral

Immediacy: Short-term

Recommendation 3.1HM Inspector recommends that, byFebruary 2004, Centrex, within acommunication strategy, clearly articulatesthe role of the Board and each of itsmembers. Guidance as to the level ofactivity to be conducted by each Boardchampion should also be published.

Benefit: Medium

Penalty: Medium



Recommendation 2.4HM Inspector recommends that, withimmediate effect, Centrex submits to HerMajesty’s Inspectorate of Constabulary datain respect of its performance against agreedindicators.

Benefit: Medium

Penalty: Medium



Recommendation 2.3HM Inspector recommends that, by July2004, Centrex, within its performancemonitoring framework, identifies and setsappropriate comparative measures acrossall internal units and functions. In addition,comparative work should include relevantbenchmark organisations.

Benefit: High

Penalty: High



Recommendation 2.2HM Inspector recommends that, by May2004, the Home Office in consultation withrelevant stakeholders sets objectives forCentrex which follow SMART principles.In addition, Key Performance Indicatorsmust be set to allow ongoing monitoringof performance.

Benefit: High

Penalty: High

Investment: Nominal


Recommendation 2.1HM Inspector recommends that, by April2004, the whole Service, through theAssociation of Chief Police Officers (ACPO),engages with Centrex to clarify the purposeand role of the organisation. The HomeOffice must then ensure that Centrex hasthe resources necessary to deliver what isagreed.

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9


Recommendation Impact and Investment Implications

Benefit: High

Penalty: High

Investment: Nominal


Recommendation 4.4HM Inspector recommends that, by April2004, Centrex implements a policy settingprocess that ensures all policies adhere tocorporate format, are readily accessible,monitored and reviewed. Those chargedwith managing policies must also ensureevery area of activity is covered by policy.

Benefit: Medium

Penalty: High

Investment: Nominal


Recommendation 4.3HM Inspector recommends that, byFebruary 2004, Centrex implements an openand transparent organisation wide staffsurvey process, to include direction on itsregularity, timeliness, scope and usage.

Benefit: High

Penalty: High

Investment: Nominal


Recommendation 4.2HM Inspector recommends that, byFebruary 2004, Centrex identifies andimplements an established organisationalmanagement framework to be employed byall of its separate units and functions. TheDirectorate of Performance should, in turn,regularly and openly monitor and report oncompliance.

Benefit: High

Penalty: High

Investment: Nominal

Immediacy: Immediate

Recommendation 4.1HM Inspector recommends that, withimmediate effect, Centrex, under theauspices of the Excellence by Designchange programme, initiates a project tointegrate ethics into all of its productsand services in line with the content ofthe European Code of Police Ethics.

Benefit: Low

Penalty: Medium



Recommendation 3.2HM Inspector recommends that, byFebruary 2004, Centrex articulates itsresponse to Diversity Matters to thewhole police service. In addition, on anongoing basis, it must state when thoserecommendations that require specificCentrex activity are completed.

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Chapter 9



Benefit: Medium

Penalty: High

Investment: Nominal


Recommendation 6.1HM Inspector recommends that, byFebruary 2004, Centrex puts in place acommunity based advisory panel thatreflects diversity in society. This body mustbe resourced and supported in its role ofproviding appropriate advice for all Centrexproducts.

Benefit: High

Penalty: High

Investment: Nominal


Recommendation 5.3HM Inspector recommends that, by April2004, Centrex adopts the IntegratedCompetency Framework (ICF) for allHR processes.

Benefit: Medium

Penalty: Low

Investment: Nominal


Recommendation 5.2HM Inspector recommends that Centrexactively seeks, within appropriatelegislation, the power to employ policeofficers on a direct basis, identical to thearrangements in place for the NationalCrime Squad and National CriminalIntelligence Service and contained inthe Police Reform Act 2002.

Benefit: High

Penalty: Medium


Immediacy: Immediate

Recommendation 5.1HM Inspector recommends that, withimmediate effect, the service, led byACPO, formally and positively addresses itsposition regarding employment withinCentrex and also attends to any negativecultural aspects associated withsecondment. In addition, relevantpromotion, progression and postingprocedures should be reviewed toensure no officer is disadvantaged byworking in Centrex.

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9



Benefit: High

Penalty: High

Investment: Intermediate


Recommendation 7.2HM Inspector recommends that, byMarch 2004, Centrex devises and publishesan internal evaluation strategy for itsproducts and services. This directive shouldinclude a prioritisation process and a policyidentifying which products or services willbe subject to independent evaluation.

Benefit: Medium

Penalty: High

Investment: Nominal


Recommendation 7.1HM Inspector recommends that, byFebruary 2004, Centrex implements aconsistent and corporate approach tointernal Quality Assurance. Assigningresponsibility for measurement, reviewingand updating to the Directorate of PracticeDevelopment.

Benefit: Medium

Penalty: Low

Investment: Nominal


Recommendation 6.3HM Inspector recommends that, byFebruary 2004, Centrex issues directions inrelation to the use of video conferencingfacilities in the organisation and sets andmonitors targets for its use, including anevaluation of its value to the organisation.

Benefit: High

Penalty: Medium

Investment: Nominal


Recommendation 6.2HM Inspector recommends that, byFebruary 2004, Centrex, in advance ofany strategy linked to its role and purpose,publishes guidance in respect of managingits current estate.

88

Chapter 9



89

Appendix

AACentrex Business

Architecture(At time of inspection fieldwork)

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90

Appendix

B

BMembership of theCentrex Board(As at July 2003)

Name Organisation Represented (if any)

Sir Clive Booth Chair – Independent

Zsuzsanna Adler Independent

Mary Benwell Independent

David Croisdale-Appleby Independent

Gita Sootarsing Independent

Pat Woods Independent

Graham Baskerville Association of Police Authorities (APA)

Marie Dickie Association of Police Authorities (APA)

Chris Fox Association of Chief Police Officers (ACPO)

Bernard Hogan-Howe Association of Chief Police Officers (ACPO)

Peter Holland Association of Police Authorities (APA)

Paul Pugh Home Office – Police Leadership and Powers Unit (PLPU)

Jane Stichbury Association of Chief Police Officers (ACPO)

91

Appendix

CACPO Association of Chief Police Officers

ALI Adult Learning Inspectorate

APA Association of Police Authorities

BQS Better Quality Services

CEPOL European Police College Network

CMPS Centre for Management and Policy Studies

CPTDA Central Police Training and Development Authority

CRR Community Race Relations

DEM Diversity Excellence Model

EFQM European Framework for Quality Management

HM Inspector Her Majesty’s Inspector of Constabulary

HMIC Her Majesty’s Inspectorate of Constabulary

HOC Home Office Circular

HPDS High Potential Development Scheme

HR Human Resources

IAG Independent Advisory Group

ICF Integrated Competency Framework

IiP Investors in People

ISB Invest to Save Budget

IT Information Technology

MPS Metropolitan Police Service

NAO National Audit Office

CAbbreviations andAcronyms

Abbreviation Definition

NCALT National Centre for Applied Learning Technology

NCF National Competency Framework

NCIS National Criminal Intelligence Service

NCOF National Crime and Operations Faculty

NCPE National Centre for Policing Excellence

NCS National Crime Squad

NDPB Non Departmental Public Body

NES National Evaluation Strategy

NOF National Operations Faculty

NOS National Occupational Standards

NPLC National Police Leadership Centre

NPP National Policing Plan

NPT National Police Training

NSLEC National Specialist Law Enforcement Centre

NSPIS National Strategy for Police Information Systems

NTCSSCI National Training Centre for Scientific Support to

Criminal Investigation

OFSTED Office for Standards in Education

PADR Performance, Appraisal and Development Review

PDR Performance Development Review

PICTTS Police Information Communication and Technology

Training Services

PITO Police Information Technology Organisation

PLP Personal Leadership Programme

PLPU Police Leadership and Powers Unit

PNC Police National Computer

PPAF Policing Performance Assessment Framework

PPEB Police Promotions Examinations Board

92

Appendix C

Abbreviations and AcronymsC


PSRCP Public Safety Radio Communication Project

PSSO Police Skills and Standards Organisation

PTC Police Training Centre

PTDB Police Training and Development Board

PTP Probationer Training Programme

PTPSC Probationer Training Programme Steering Committee

QA Quality Assurance

QAA Quality Assurance Agency

RADAR Results, Approaches, Deployment, Assessment and Review

RES Race Equality Scheme

ROD Research and Organisational Development Department

RR(A)A Race Relations (Amendment) Act 2000

SCC Strategic Command Course

SMART Specific, Measurable, Achievable, Relevant, Timed

SMT Senior Management Team

TDO Training Development Officer

TDP Trainer Development Programme

TUPE Transfer of Undertakings – Protection of Employment

Regulations 1981

93



C

Introduction

The Central Police Training and Development Authority (Centrex) is a Non Departmental Public

Body with a remit to develop and provide training and learning opportunities to the police

service, related services, which support operational policing, and facilities for the provision

of police training.

Centrex is required to participate fully in the police training national arena, including

representation on, and providing support to, the key police training reform bodies, which have

been established by the Home Office. Furthermore, Centrex is required to continue to improve

the efficiency and effectiveness of its operations.

The Criminal Justice and Police Act 2001 (Section 89) provides for the Home Secretary to set

annual objectives for Centrex. These are the priorities to be delivered by the organisation, from

within its agreed baseline funding provision, which is paid as grant-in-aid by the Home Office.

It should be noted that special provision is negotiated to meet probationer training demand

in excess of the baseline level. Specific objectives are:

1. Probationer training programme – which supports the maintenance of police force

numbers and any additional recruitment to meet Government targets for the police

service complement.

• To respond to demand (to the level funded by the baseline, which will be

confirmed in the budget delegation instrument) – including that which arises from the

Crime Fighting Fund initiative – from the police service in England and Wales (except

the Metropolitan Police Service), including non Home Office police forces, for the

provision of the Stage 2 ‘foundation training’ modules of the probationer training

programme;

• To revise the existing probationer training programme curriculum as agreed with

the Probationer Training Programme Steering Committee;

• To work with the Probationer Training Programme Steering Committee in the

development of the revised probationer training programme.

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Appendix

D

DHome Secretary’sObjectives 2003/4

2. Improving police leadership – which supports the work of the Police Leadership

Development Board to develop a more effective and professional leadership across

the service.

• To deliver the core training elements of the High Potential Development Scheme, to

equip future leaders of the service with the necessary skills and abilities to operate

effectively at senior rank;

• To deliver the Senior Leadership Development Programme to prepare officers for

BCU command, other Superintendent and equivalent support staff roles;

• To provide a further development programme for experienced BCU commanders and

equivalent roles and to prepare those aspiring to ACPO rank (Senior Leadership

Development Programme 2);

• To provide a chief officer development programme, including a strategic

command module, for those selected for ACPO rank (Chief Police Officers

Development Programme);

• To provide leadership development packages for constables, sergeants

and inspectors;

• To ensure that leadership training material includes appropriate race and diversity

elements, which will enable supervisors to manage staff attitudes and behaviour

in respect of race and diversity issues.

3. National Centre for Policing Excellence – the purpose of which is to advance

the professional capacity of the police by capturing and deploying state of the art

knowledge on critical policing issues. This includes responding to Ministerial requests for

the production of codes of practice, guidance and regulations.

• To continue the physical establishment of the NCPE, in its temporary location, and to

resource it as required to deliver the agreed programme of work;

• To deliver the work programme which has been agreed by Ministers, in partnership

with key stakeholders;

• Develop and publish regulations, codes of practice and guidance as agreed by

Ministers in the work programme;

• Develop operational support, training and research to support Crime Reduction

and Incident Management initiatives within forces;

• Provide High Tech Crime Training solutions to Law Enforcement Agencies.

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D

4. Police reform programme – which helps recruitment of the right people, improves

standards and raises performance, and promotes and provides life-long learning

opportunities for police officers and support staff, in accordance with the National

Strategy to Promote learning.

• To contribute to the development of special constables by developing a national

training course, which can be delivered locally, and takes account of the new

NCF competencies, which have been developed by the PSSO and of National

Occupational Standards;

• To plan and develop a national tutor constable training course, which can be delivered

locally, in conjunction with emerging requirements from the new PTP programme;

• To devise and implement a national training curriculum for child protection officers,

and enhance child protection issues within existing programmes;

• To develop and maintain national assessment centres for police recruitment,

including ongoing evaluation to assure maintenance of quality standards;

• To promote the development of professional standards across specialist roles in

general and senior investigators in particular, through the development of accredited

learning programmes;

• To provide support to police forces in the delivery of their crime and disorder

reduction strategies through the development and evaluation of appropriate national

learning programmes (such as domestic violence, stop and search, and community

safety) which can be delivered locally, as well as identification and dissemination of

good practice;

• To provide, on demand, training services from the Centrex Course Portfolio according

to the bidding system;

• To incorporate National Occupational Standards into all Centrex products, and develop

a plan to implement the standards;

• To establish systems to support the development of assessment skills in line

managers and other groups as appropriate to need (a target in the PTDB

national strategy);

• To encourage common standards of training provision by the continued development

and maintenance of training products, which meet the Centrex quality assurance

standards, and takes into account the requirements of the new Police Licensing and

Accreditation Board.

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Appendix D

Home Secretary’s Objectives 2003/4D

5. Action on diversity – which supports policing in diverse communities and ensures that

issues of diversity, race equality and community relations are integrated fully throughout

Centrex’s learning programmes and all its activities.

• To promote and deliver the Personal Leadership Programme, ensuring it is targeted

at visible ethnic minority officers and support staff, and to develop an evaluation

strategy, which measures the effectiveness of the programme against the published

corporate objectives;

• To continue support for the delivery of the national CRR strategy, ensuring that

the appropriate occupational standards are reflected in all learning material;

• To provide training, particularly for senior investigating officers, in the investigation

of race and hate crime;

• To develop learning material which supports the elimination of discriminatory

practices when responding to race and hate crimes (such as scene preservation,

witness handling and evidence gathering);

• To incorporate and implement Centrex’s Race Equality Scheme Year One priorities,

develop and introduce a diversity strategy and provide appropriate diversity training

to employees;

• To collaborate with other stakeholders in responding to HMIC’s inspection report

‘Diversity Matters’.

6. International activity – which promotes British policing expertise world-wide, and

supports the United Kingdom’s interest in the European Police College Network.

• To continue expansion of Centrex’s international business;

• To take an active role in representing the United Kingdom’s interests on the

Governing Board of CEPOL;

• To provide administrative support (in conjunction with the Home Office) for the

temporary CEPOL secretariat, located in Denmark;

• To support the United Kingdom’s bid to host the permanent CEPOL secretariat.

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7. National Centre for Applied Learning Technology – which should actively promote

new technology approaches to learning in the police service.

• To continue the development of the new police learning portal, with additional

learning material, which supports the initiatives outlined above;

• To promote the learning portal as the standard for the police service, and to plan a

strategy for the introduction of learning management systems, which can be used

to support police force personal development programmes;

• To deliver an e-learning leadership development programme, to be commissioned

by the Police Leadership Development Board, which supports post-probationer

constables.

8. Police promotion examinations – which are responsible for assessing the suitability of

police officers for promotion to sergeant and inspector ranks. On behalf of the Police

Promotions Examination Board (PPEB), and as laid out in the service level agreement.

• To design, validate, deliver and score the examinations;

• To oversee research and development projects as required by the PPEB;

• To maintain appropriate links with key stakeholders, which include the Chair of the

PPEB, the Academic Advisor appointed by the PPEB, the Moderators, the Home

Office, and the Employers Organisation.

9. Organisational development is expected to continue to ensure that Centrex operates

more efficiently and more effectively over time, and that such improvement will be

demonstrated.

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Appendix D

Home Secretary’s Objectives 2003/4D

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Appendix

E

ERationale for Selection ofBenchmark Organisations

St Mary’s College

St Mary’s University College, located on the Falls Road in West Belfast, Northern Ireland, is an

independent Catholic institution linked academically to the Queen’s University of Belfast, which

validates its degrees, and the Department of Education for Northern Ireland. The College has

been at the forefront of Teacher Education in Northern Ireland since 1900. It operates at

undergraduate and post-graduate levels and offers a range of courses and awards of an

educational and related nature. The College has around 590 students and 62 lecturing staff. This

means that it is large enough to cater for a variety of student interests – academic, social and

recreational – but not so large as to endanger its community spirit and concern for the individual.

In late 2001, the College received a major stamp of approval from the Quality Assurance Agency

(QAA) for its excellent provision of in-service teacher education. It achieved the maximum mark

in each of the six areas of evaluation of the quality of education; curriculum design, content and

organisation; teaching learning and assessment; student progression and achievement; student

support and guidance; learning resources and quality management and enhancement.

Runshaw College

Runshaw College, located at Leyland in Lancashire, is one of the largest and most successful

further education colleges in the UK. At the time of the inspection fieldwork, it enrolled 3,400

full-time students aged 16-19,10,000 students aged over 19 and in addition, the college had 830

members of staff. Since 1997, it has topped the league tables for A level results every year. It is

also the highest performing College for Advanced Vocational Courses. In 2001, it was the only FE

College to be designated as a Beacon College by the Government. The college was one of two

winners of the 2002 UK Business Excellence Awards. The Business Excellence Awards are run

by the British Quality Foundation and are recognised as the UK’s most prestigious and rigorous

business awards. Hundreds of organisations apply for the awards each year, but only a few get

through to the national finals. In 2003, Runshaw, building on their success in the UK Awards,

were announced as the European Quality Award winner in Leadership and Constancy of Purpose

– Public Sector Category. The European Award is presented to the organisation judged to be the

best in its category. Winners are exceptional organisations – they are European or global role

models in their approaches and the results they achieve. The independent jury does not always

identify an award winner in each category, further increasing the prestige for those who reach

this level.

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Appendix E

Rationale for Selection of Benchmark OrganisationsE

South Yorkshire Police

South Yorkshire Police was formed in 1974 under a regional re-organisation. The force consists of

approximately 3,200 officers, 1,700 police staff and 193 Special Constables. The County has a

population of 1.3 million and a geographical area of 600 square miles. In 2001 South Yorkshire

Police made history by becoming the first police force to receive the Charter Mark for the fourth

successive time. This government accolade recognises and encourages excellence in public

service. Applicants are judged on ten criteria, which include setting standards and values,

providing information to customers, treating people fairly, putting things right when they go

wrong and using resources effectively. South Yorkshire Police was one of five commended

finalists in the TNT Modernising Partnership Awards. This award is promoted by the Cabinet

Office and focuses on the way organisations use partnerships and approaches to maximise value

for the end users. It encourages the public sector, private companies and voluntary organisations

to work together to improve service quality. The process uses the EFQM model to assess each

organisation. As well as receiving the Silver standard of excellence, the force were awarded the

individual criterion awards for Policy, Strategy and Key Performance results by Excellence

Yorkshire, a regional organisation which forms part of the national and European network

promoting excellence in both the public and private sectors.

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