Race and Faith Inquiry R
eport | July 2010
Race and Faith Inquiry Report
Commissioned by Boris Johnson Mayor of London
Chaired by Cindy Butts, Independent Member of the Metropolitan Police Authority
July 2010
:
Metropolitan Police Authority July 2010
Published by MPA 10 Dean Farrar Street London SW1P ONY
www.mpa.gov.ukEnquiries: 020 7202 0202 Minicom: 020 7202 0173 Email: [email protected]
Photographs: Page 7 (Anthony Julius) © Mishcon de Reya; Used with permission. All rights reserved.
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Contents
Mayor’s Foreword ..................................................................................................................... 3
Chair’s Foreword ....................................................................................................................... 4
The Panel .................................................................................................................................. 5
Introduction .............................................................................................................................. 7
Leadershipandaccountability............................................................................................................. 9
Processandpractices........................................................................................................................ 10
Governance....................................................................................................................................... 10
Whathavewefound?....................................................................................................................... 10
Summary of Recommendations .............................................................................................. 11
Background ............................................................................................................................. 15
Context .................................................................................................................................... 19
Institutional Racism ................................................................................................................ 21
Culture and Values .................................................................................................................. 25
Leadership and Accountability ............................................................................................... 29
Processes and Practices: recruitment, retention and progression ........................................ 37
Governance ............................................................................................................................. 55
Conclusion ............................................................................................................................... 59
Appendices .............................................................................................................................. 61
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Forewords
Mayor’s Foreword
London is undoubtedly the world’s greatest multi-cultural city. To police it effectively requires our police to have the full confidence of the communities they serve, as well as its own staff. We can only tackle the Londoners’ crime priorities of gun, knife crime and terrorism if the police work together with London’s diverse communities.
When I was Chair of the MPA I announced a focused inquiry to explore race and faith issues within the Met, having pledged in my election manifesto that I would increase the number of BME and female officers.
I appointed Cindy Butts, a member of the Metropolitan Police Authority, to lead an independent Inquiry panel. Their remit was to address concerns about several key issues, including recruitment, the progression of black and minority ethnic candidates through the ranks, internal relationships, communication and proportionality, and the extent to which there is visible leadership around race issues. In September 2009 the panel published its emerging findings which identified areas where joint working would lead to even more improvement, and highlighted successful initiatives already in place within the Met to improve equality and diversity issues.
Fighting crime and reducing criminality, increasing confidence in policing and giving Londoners better value for money are central to our strategic mission ‘Met Forward’. But successful service delivery can only come about
if all Met staff are confident and feel valued – we have to get equalities and diversity issues right. The Authority also needed to be assured that the changes put in place by the Met over the past years have indeed taken hold, and if not, then we should make recommendations for positive change.
The Met’ workforce is now more representative of all Londoners and the MPA in particular has played a pivotal role in implementing the recommendations from the Stephen Lawrence report.
I welcome Cindy Butts’ finding that the Met is not institutionally racist, but I urge against complacency and ask the MPA to consider closely the recommendations of the report. I thank the panel for their outstanding contribution to equalities and diversity in the Met and for rising to the challenge to find a new vision for a stronger future for London’s police service.
Boris JohnsonMayor of London
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Chair’s Foreword
Therelationshipbetweenraceandpolicinghasbeensubjecttoreviewsincetheraceriotsintheearly1980s.TheScarmanReportandtheStephenLawrenceInquiryReportwerelandmarkreportsthatexploredtheimpactoftherelationshipbetweenpolicingandraceandledtoradicalshiftsinthedeliveryofpolicingandtothemanagementoftheservice.LikewisetheMorrisandVirdiInquiriesshonethespotlightonhowthepolicemanageraceissueswithintheirworkforce.InundertakingthisInquiryitisclearthatmuchhaschanged,butthereismuchmoretodo.
ItwasagreathonourandagreatresponsibilitytobeaskedbytheMayortoleadthisInquiry.IwouldliketopaytributetoPanelMembers,AnthonyJuliusandMargaretBlankson,whogaveunstintinglyoftheirtimeanddeepknowledgeandunderstandingofissuesofraceandfaith.ThePanelwishestorecorditsthankstoBobPurkissforthecontributionhemadetotheInquiry.
Iamverygratefultoallthosewhogaveevidenceortookpartinfocusgroups-forsomeitwasanemotionalanddrainingprocess.Theadviceofthereferencegroupprovedinvaluable.IwouldalsoliketoacknowledgethehardworkoftheteamintheMPAandtothankthemfortheirsupport.
AsthereportmakesclearnothingstandsstillandsomeoftheconcernsthePanelidentifiedhavebeenaddressed,andwhilethisreportfocusesonraceandfaith,therecommendationsinitshouldbeappliedtoalldiversitystrands.TheMetropolitanPoliceServicehasmuchtobeproudofinchampioningdiversity.ButitwouldbewrongtorelaxandmysincerehopeisthatthefindingsofthisreportwillprovidetheCommissionerandhiscolleaguesmaterialwithwhichtocontinuetounderstandandfulfiltherightsandneedsofhisdiverseandtalentedworkforce.
Cindy Butts, InquiryChair
Panel Chair: Cindy Butts, Independent Member of the MPA
CindyButtsbecameamemberoftheMetropolitanPoliceAuthorityin2000andwasreturnedforasecondtermofofficeinJuly2004,shewaselectedasoneof
theAuthority’stwodeputychairsforthreeconsecutiveyears.
HoldingaBAinSocialAnthropologyandPoliticsfromtheSchoolofOrientalandAfricanStudies,UniversityofLondon,CindywasformerlyaresearcherfortheEconomicSecretarytotheTreasuryandthenaHouseofCommonsResearcher.
CindyisamemberoftheHomeSecretary’sguncrimeroundtable,along-standingmemberoftheOperationTridentIndependentAdvisoryGroup,andchairstheLondon-wideCrownProsecutionServiceHateCrimeScrutinyPanel.
ShechairedtheMPA’ssignificantguncrimescrutiny,publishedinFebruary2004,co-chairedtheAuthority’sscrutinyintoMPSparticipationinCrimeandDisorderPartnerships,andalsoledanindependentevaluationofMPSCommunityRaceRelationstraining.ShewasapanelmemberfortheAuthority’sgroundbreakingyear-longenquiryintothecausesandeffectsofterrorismamongstourdiversecommunities,‘Counter-Terrorism:TheLondondebate’,whichpublisheditsfindingsinFebruary2007.
CindyisalsoaNonExecutiveDirectorfortheDepartmentofCommunitiesandLocalGovernmentandanIndependentAssessorfortheOfficeoftheCommissionForPublicAppointments.
Anthony Julius
Anthonyisahighlyregardedlitigationlawyer,anacknowledgedlegalexpertondefamation.AsMishcondeReya’sseniorsolicitor-advocate,hehasappearedin
boththeHighCourtandtheCourtofAppealandactedformanyhighprofileclients.Heisnowattheforefrontofthefirm’sworkinPublicAdvocacy.
Anthonywasheadofthefirm’slitigationdepartmentfortenyearsandservedonthemanagementboardfrom1985-1997.Hetaughtpart-timeintheLawFaculty,UCLforthreeyearsandisnowaVisitingProfessoratBirkbeckCollege,UniversityofLondon.Heisalsoanotedauthorwhohaswrittenextensivelyonlaw,literature,art,cultureandanti-Semitism.
AnthonyisChairmanoftheLondonConsortium.HeisVice-PresidentoftheDiana,PrincessofWalesMemorialFund,andwasoneofthecharity’sfoundersanditsfirstChairman
Theinquirypanel 5
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Margaret Blankson
MargaretBlanksonisoneoftwofoundingDirectorsofaconsultancyspecialisinginregeneration,urbandevelopment,youthengagementandparticipation.
Inaddition,Margarethasawealthofexperienceinprojectandchangemanagementwithsubstantialexperienceofdeliveringcomplexmulti-agencyinitiatives.
Havingfoundedthecompanyin1999MargarethasbuiltupanimpressiveportfolioworkingwithanenviableclientbaseinthepublicandprivatesectorsaswellastheCharitableSector.FormerclientsincludelocalandcentralGovernment,NIKE,UnileverandtheFootballAssociation.
PriortotheestablishmentofherConsultancy,Margaretspentover17yearsworkinginLocalGovernment,latterlyheadingtheCouncil’sEqualitiesandCommunityLiaisonDepartmentandendingherlocalgovernmentcareerasaSeniorEducationOfficer.
Margarethasalong-standinginterestandinvolvementinpolicingandcommunityaffairsandhasoccupiedvariousrolesinthisregardhavingservedasanAssociatePoliceTrainer(deliveringtrainingtopoliceofficersandstaffinresponsetotheMcPhersonreport);foundermemberofIMPACT,avoluntarysectororganisationdedicatedtocombatinggunandknifecrime;MemberoftheMetropolitanPoliceService(MPS)IndependentAdvisoryGroupforOperationBluntandanIndependentAdvisortoarangeofcriticalincidentsworkingalongsidetheMPSandtheIndependentPoliceComplaintsCommission.
Introduction
TheMetropolitanPoliceService’svisionisto“MakeLondonthesafestmajorcityintheworld”anditsmottois‘WorkingtogetherforasaferLondon’.Inordertomaketheseinspirationalstatementsintoatangiblereality,itisessentialtodevelopaworkingrelationshipbetweentheMPSandthecommunitiesofLondonwhichisbasedonmutualrespectandtrust;arelationshipwhichhastobebuiltontheprinciplesofequalityandjusticebothwithregardtotheinternalaswellastheexternalprocessesoftheorganisation.Londonisoneofthemostdiversecitiesintheworldand,assuch,anessentialcomponentoftheMPS’svisionisthattheirofficersandstaffshouldreflectthedemographiccompositionofthecommunitiesitserves,notjustingrossnumbers,butproportionatelythroughouttheorganisation’shierarchicalstructurefromtoptobottom,andacrossthebreadthofspecialistunitswhichcoverthewidescopeofoperationalresponsibilitiesrequiredoftheMPS.
Londonpresentsanextraordinarilycomplexpolicingchallenge;theMPShasresponsibilitieswhichrangefromthelocaltotheglobal,fromcommunitypolicingstrategiesandpracticalitiestoensuringthesafetyandsmoothrunningofinternationaleventssuchasmakingplansforthe2012Olympics.Suchabroadremitcanonlybemetthroughspecialisation,butitisessentialthattheorganisationoperateinaunifiedmanner,abalanceitachievesthroughholdingaunifiedvisionoftheprincipleswhichuniteofficersandstaffintoasingle,thoughmulti-faceted,team.
TheMPSisresponsibleforthesafetyandprotectionofLondonandLondonersinthebroadestconceptionsoftheseterms.EachoftheMPS’sfunctionsrequiresthetrustandrespectofallofthecommunitiesofLondon;andnotalwayseasilygiven,butnecessarilyearned,thistrustandrespectisbasedonthefactthattheMPSmustbeseentoberepresentativeofLondon’scommunities.CentraltothisvisionistheassumptionthatboththeroleandcareerprospectsofeveryoneworkingfortheMPSisdecidedexclusivelybycapability,suitability,experienceandqualification,withoutthehelporhindranceofdemographiccharacteristics.
TheMPSisinaveryexposedposition;itsstrengthsandweaknessesarepubliclyvisible.TheincreasingdiversificationofLondonhaspresentedmanychallengestoitoverthepastdecadeorso;butperhapsthebiggestonecamein1999withtheStephenLawrenceInquiry,atatimewhenmanywouldhavearguedthattheServicehaddealtwiththemajorityofthe‘skeletonsinitscloset’relatingtoracismandprejudice.TheMPSwastested,andfoundtobeseriouslywanting,intheareawhichitcanleastaffordtobedeficient;thatofjustice.
TheshockingrevelationoftheracismwhichblightedtheinvestigationofStephen’smurderandthecoiningoftheconceptofinstitutionalracisminformedandilluminatedmuchofthefollowingdecade’sdiscourseconcerningraceissuesandledtoaseriesofdevelopmentsaimedatreducing/eliminatingallformsofracismfromtheMPS.ItwasnotthepurposeofthisInquirytoevaluatetherelativesuccessorshortcomingoftheseinitiatives,butrathertorecognisethat
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themajorityoftheworksofarhasconcentratedonthe‘external’relationshipbetweentheMPSandLondon’scommunitieswhilethesubjectoftheRaceandFaithInquiryhasbeentofocusspecificallyonthe‘internal’processes.
TheRaceandFaithInquiryPanelacknowledgesandpaystributetotheimprovementsthattheMPShasmadeovertheyearsintermsofitsperformanceinthefieldofequalityanddiversityoverthelastdecadesincetheStephenLawrenceInquiry;weheardevidenceofmanyinnovativesolutionswhichhavereceivedpraiseandrecognitionandthePanelacknowledgesandcongratulatestheorganisationfortheirsuccesses.ButwelikewiseheardsadanddisturbingaccountsfromBlackandMinorityEthnic(BME)officersandstaffofdifferentialtreatmentwhichhaveledustoconcludethatexcellenceandinnovationinsomeareassituncomfortablywiththedifferentialexperiencesofBMEofficersandstaffinothers.ThePanelurgestheMPS,inpartnershipwiththeMPA,tocontinuetheprogressithasmadeinbuildingrelationshipswith,andimprovingtheserviceitdeliversto,thediversecommunitiesofLondon;butwealsourgetheMPStostrengthenitscommitmenttotackle‘internal’inequalitieswithintheorganisation.Webelievethat,inadditiontothemoralimperativewhichjustifiesthisfocus,itisessentialtorecognisethatthewayinwhichpoliceofficersandstaffaretreatedinternallyhasadirectimpactonthelevelofconfidenceLondonershaveintheorganisationandtheirwillingnesstoengagewiththepoliceinthefightagainstcrime.
ThePanelbelievesthattheInquiryprocessandthesubsequentrecommendationshavethepotentialtodeliverpracticalandlastingchangeswhichwehopewillimprovetheexperiencesoftheMPS’sBMEandmulti-faithworkforce.Weareequallycommitted,however,totheimprovementofpoliciesandpracticesthroughouttheorganisationinordertodeliverpositiveoutcomesforalltheMPS’semployeesbetheyblackorwhite.
PeoplefromaBMEbackgroundorfaithintheMPSfeelunfairlytreatedandmarginalised.Notallofthemfeelthisway.Norisitthecasethatthisperceptionisalwaysinlinewithfactsaboutrecruitmentoradvancementthroughtheranks.Butsomeofthefactssuggestyouarestillmorelikelytobepromoted,andlesslikelytobedisciplined,ifyouarewhiteandmale.
BorisJohnsondecidedtosetupanindependentpaneltoinquireintoraceandfaithintheMPSastheresultoffourkeydrivers:
• thenewleadershipoftheMPA,MayorBorisJohnsonandtheappointmentofanewCommissionerofPoliceoftheMetropolis,SirPaulStephenson;
• therecognitionoftheneedforafocusedpieceofworkontheissuesofrecruitment,retentionandprogressionwithregardtoraceandfaithwithintheMPSinthecontextofthepost9/11and7/7atrocities.ThesetragiceventsbroughtanewprominencetofaithissuesinthepolicingofLondon’scommunitiesandintherelationshipbetweentheMPSanditsstaff;
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• toassesstheprogresswhichhasbeenmadeinimprovingthecultureoftheorganisation,withregardtoraceandfaithissuesintheyearofthetenthanniversaryofthepublicationoftheStephenLawrenceInquiryReport;and
• anumberofBMEofficersissuedEmploymentTribunalproceedingsagainsttheMPS,andin2008,theMetBPAissuedastatementofno-confidenceintheMPS’streatmentofBMEstaffandaboycottofrecruitmentofpotentialBMEapplicantsintotheMPS.
Culture and Values
TheMPSin2010feelsincomparablymoreopen,welcomingandprogressivethantheMPSof1993.Butitisonlythroughfurthermaturityandsophisticationthatthecultureoftheorganisationwillbecomesufficientlyflexiblefortheconstantlyshiftingnatureofitsstafftofeelreallyconfidentandathome.
“Nobody acting in such a bigoted form in an organisation… should be allowed to hide behind some definition and some sense that this is an organisational problem and [say] my bigoted behaviour comes out of some wider sense of the organisation. I think we’ve got to find those people who do behave in an outrageous fashion and not give them the cover of some sort of comfortable broader phraseology. Actually I think there’s real danger in that”.
Sir Paul Stephenson, Commissioner
ThePanelfoundmanypositiveexamplesofashiftingandmoreopenculturewithintheMPS.Thatsaid,wealsoencounteredanorganisationwhichcanbereluctanttochangeinordertomeettheneedsofanincreasinglydiverseworkforce.
Thespecificculturalchangeswebelieverequirefurtherfocusandattentioncanbebroadlybrokendownintotwomainareas:
• theneedtoreinforceandstrengthenthevaluesandbehavioursthattheorganisationwishestopromoteamongstitsstaff;and
• theneedtoenhanceandtoembedaculturewhichallowsstaffandtheorganisationasawholetolearnandimprovefromthemistakesitmakes.
Wesaymoreabouttheissueslistedabovefurtheroninthisreport.
Leadership and Accountability
Keytoshiftingtheculturemustbetheexamplesetbyleadersfromtoptobottom.Demonstrableandgenuinecommitmenttogettingthebestoutofpeopleandrecognisingtheirpotentialisanessentialpre-requisiteofculturechange.Leadersatalllevelsmustbegenuinelyandhonestlyaccountablebothforwhattheydeliverandforhowtheydeliverit.
ThePanel’svisiontherefore,reaffirmedthroughoutthisreport,isofanorganisationwhichunderstands,embracesandreflectstheprinciplesoftheequalityagendafromthetop
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tothebottomofitshierarchicalstructuresandacrossitsrangeoffunctions.Thebreadth,dimension,scaleandimpactoftheworkundertakenbytheMPScannotbeover-stated.
AkeypremisewhichissharedbythePanel,andreflectedasakeymessagebytheMPSLeadershipAcademy,isaspecificvisionofleadership,abeliefthateveryoneintheorganisationhasleadershipresponsibility;asamanagerofpeople,amemberofateam,providingasupportfunctionorwheninteractingwiththemembersofthepublic.
Thisconceptofleadershipasbeingacomponentofeverybody’srolewithintheMPSisclearlyofcentralimportancetotheorganisation’svisionthatthediversityagendaneedstopermeateallelementsoftheorganisation.Thisconcept,therefore,encompassestheexemplarynatureofleadershiprelevanttoeverypoliceofficerandmemberofstaffandthebeliefthatthisformsakeypartoftheirprofessionalresponsibilities.
ThePanelbelievesthatinorderfortheequalitiesagendatobeadvanceditisvitalthatthisagendabetakenseriouslyandpromotedacrossalllevelsoftheorganisation’shierarchicalstructure.ThispointisparticularlypertinentforanorganisationwhichhassuchastrictanddelineatedcommandstructureastheMPS.
Inapproachingtheissueofleadership,thePanelnotesthatthistopichasreceivedattentionfromarangeofpreviousinquiriesandreviews.Itisnottheintentiontoreviewanyofthismaterial,butrathertoaddresstheissueofleadershipintheMPSspecificallyinrelationtoraceandfaith.
Processes and Practices
Therearesomequickwinstobeachievedfromapragmaticde-clutteringofprocessesandpracticeswithintheMPS,particularlyinrespectofpromotionandselectionprocedures.Accretionsofbureaucracyandanunderstandablebutnowoutmodedadherencetoconsequencesofthecompetencybasedmodelofselectionblockeasyaccesstoopportunitiestoadvance,throughtheranksandgradesorsidewaysintootherspecialities,andwethereforemakeanumberofrecommendationsinthisarea.
Governance
TheMPSisheldtoaccountforeverythingitdoes,includingitsperformanceinproperlyhonouringallitsresponsibilitiesunderequalitiesandhumanrightslegislation,bytheMPA.ThisputsaverychallengingonusontheAuthoritytosetanexampleandtosethighstandardsandexpectations.WithinthisinmindwemakeanumberofrecommendationsonhowtheMPAcanimproveitsoversightandscrutinyinthisimportantarealaterinthereport.
What have we found?
Havewediscoveredawhollydysfunctional,institutionallyracistorganisation,riddledwithconsciousandunconsciousbiasandprejudice?No,unquestionablywehavenot.Butwehavefoundanumberofexamplesofpoorprocessesandpracticewhichgiverisetoperceived,andattimesreal,discrimination.If
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therecommendationswemakeareacceptedandactedupon–andsomealreadyhavebeen–weanticipatethatallofficersandstaffintheMPSwillbenefitandthattheMPSitselfwillbecomestrongerandmoreeffective.
Becausetheareasofsuboptimalprocessandpracticearediffuseandbecausethedeficienciesintheculturearelowkeyanddifficulttoisolatewedonotpretendtohavediscoveredapanacea,amiraclecure,asilverbulletthatwillrightalltheperceivedwrongsatastroke.AnorganisationaslargeastheMPS,withascomplexamake-upandaschallengingamission,callsforasophisticatedanalysisofitsproblemsandneeds.Andtimedoesnotstandstill.Asthefocusinsocietyingeneralmovesfromconcernsaboutthewaypeoplearetreated–ormistreated–becauseoftheircolourorracetoconcernsaboutattitudestodifferentfaiths,theMPSperhapslagsbehind.Byfaith,wemeanfaith,religionorbelief.ThroughouttheevidencesessionstotheInquirywefoundithardtogettothebottomofwhetherpeopledistinguishedbetweenwhathadhappenedtothembeingasaconsequenceoftheirraceoroftheirfaith.Asafollowuptothisreport,werecommendthattheMPSconsidersingreaterdetailhowissuesoffaithimpactonitsstaffandtheorganisationasawholeandwethereforerecommendthattheMPSengagesindiscussionwithorganisationswhohaveaparticularexpertiseinfaith,throughtheinterfaithnetwork.Inaddition,wewantfaithstaffassociationstobegivenafurtheropportunitytohighlightparticularissuesthatconcernthemandtheirmembers.
The Race and Faith Inquiry Panel recommends that:
Recommendation 1ThecultureandvaluesoftheMetropolitanPoliceService(MPS)mustshifttobecomemorerecognisabletominoritymembersofstaff.Thismeans:• puttinginplacebettergovernanceofStaff
SupportAssociations(SSAs)inorderthatbenefitsaremaximised;
• continuingtobuildanddeveloptherelationshipbetweenMPSandtheMetBlackPoliceAssociation(MetBPA);
• linkingstaffsurveyfindingsandmanagementactionmoreexplicitlyandtransparently;and
• ensuringthattheprocessbywhichlessonsrelatingtoraceandfaithissues(includingemploymenttribunals)arelearntandapplied,isclearlysetoutandunderstood.
Recommendation 2TheseniorleadershipoftheMetropolitanPoliceService(MPS)shouldreviewtheircommitmenttoensuringthatofficersandstaffarefairlytreated.Thismeans:• designatingtheDeputyCommissioneras
theleadfordiversityandchairofDiversityBoard(alreadyactionedbytheMPS);
• placingDirectorateofCitizenFocusandDiversity(DCFD)undertheDeputyCommissioner’sdirectcommand(NB:alreadyactionedbytheMPS);
• increasingtheresourcesandexpertiseavailabletoDCFD;focusingtheworkofDCFDonsupportingOperationalCommand
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Unit(OCU)commanderstodelivercorporatestrategydiversitycommitments;
• developingarobustinternalinspectionmodelwithinDCFDwhichcanbeappliedtoanypartoftheorganisation.Itsremitshouldencompasstwokeyfunctions:1)topromoteandpromulgatebestpractice2)investigatethosepartsoftheorganisationwhichgiverisetoconcerns;and
• taskingthePerformanceBoardtooverseecorporateperformanceondiversitytargets.
Recommendation 3DiversitymustmoreclearlybepartoftheleadershipphilosophyoftheMetropolitanPoliceService(MPS).Thismeans:• evaluatingtheextenttowhichthe
LeadershipAcademytrainingimprovesthewaydifferenceismanaged;
• aligningtheLeadershipAcademymorecloselywiththeDirectorateofCitizenFocusandDiversity(DCFD);and
• definingwhatintrusivesupervisionmeansinpracticeandmonitoringitsimplementation.
Recommendation 4Amoreflexibleapproachtorecruitment,toincreasediverserepresentationatseniorranksanddeveloptheentireorganisationanditsperformance,isrequired.Thismeans:• organisinganationalsymposium,hostedby
theMetropolitanPoliceAuthority(MPA),toexplorethebenefitsandpracticalityofmulti-pointentryforpoliceofficers,removingtherequirementtoprogressthrougheveryrank;and
• instigatingdiscussionswiththeGovernmentontheissueofmulti-pointentry.
• investinginstreamliningthechannelfromPCSOtopoliceconstablesothatsuitablecandidatescanbefasttracked.
Recommendation 5WorkingpracticeswithintheMPSthatinhibitconfidenceinHRpoliciesshouldberevised.Thismeans:• reviewingthe30+schemetoensureitisnot
blockingprogressionforofficerswithlessservice;
• managingtemporaryandactingpromotionscentrally;and
• reviewingvettingpolicyandpracticetoensureitisfair,transparentandproperlyunderstood.
Recommendation 6Disproportionatelyhighblackandminorityethnic(BME)resignationratesmustreduce.Thismeans:• analysingthereasonsforearlyresignations;• establishingamoresophisticateduseofthe
PersonalDevelopmentReview(PDR)systemtogiveearlywarningofdissatisfactionforindividualBMEofficers,allowingforintervention;
• identifyingkeypointsonthepromotionladderatwhichBMEofficersdisproportionatelyleave,andsettingretentiontargetsatthesepoints;
• reviewingandimprovingtheexitinterviewprocess;
• clarifyingtherespectiverolesofseniorofficerandlawyersdealingwithemploymenttribunals(ETs)andgrievances;and
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• designatinganAssociationofChiefPoliceOfficer(ACPO)leadforgrievancesandETdecisions.
Recommendation 7WithintheMetropolitanPoliceService(MPS),thetransparencyandfairnessofinternalpromotionprocessesneedstoimprove.Thismeans:• settingoverallblackandminorityethnic
(BME)progressiontargets.• removingtherightofmanagerstoveto
staffandofficersapplyingforpromotionortransfertospecialistposts;
• makinglateraldevelopmentopportunitiesmorewidelyavailablebyensuringspecialistunitsareheldaccountableforincreasingopportunitiesforminoritystaff;
• developingastrategyandsupportingactionplantoincreasetherepresentationofMPSassessorstoincludemoreBMEandfemalestaff;and
• appointingexternalassessorsforpromotionprocessestotheranksofinspectorandabove.
Recommendation 8Internalprocessestoimproveprogressionanddevelopmentofblackandminorityethnic(BME)officersandmembersofpolicestaffneedtobestrengthened.Thismeans:• ensuringthatallsupervisorsinthe
MetropolitanPoliceService(MPS)recognisethattheyhaveresponsibilityforpeopledevelopment;
• designingandimplementingawelldevelopedandadequatelyresourceddevelopmentprogrammeforpolicestaff;
• integratingphase2ofEquiptoAchieveintotheoverallHumanResourcesStrategyandeffectivelycommunicatingitsaimsandbenefits;and
• implementingaformal,structured,mentoringschemeexplicitlydesignedtobenefitmentees.
Recommendation 9TheMetropolitanPoliceAuthority(MPA)mustreinforceitsoversight,scrutinyanddirectionofMetropolitanPoliceService(MPS)diversitystrategyandperformanceandaddressthechallengeswhichcurrentlyexistwithintheMPA.Thismeans:• strengtheningtheequalityanddiversity
expertisewithintheorganisationatasufficientlyseniorlevelthroughtheappointmentofaHeadofDiversity(partlyactioned);
• arrangingfortheHeadofDiversitytositontheMPA’sSeniorManagementTeam;
• reviewingandmakingimprovementstoensureequalitiesareintegratedthroughoutALLoftheMPA’sworkandinparticularitscommitteesandsubcommittees;
• reviewingthefocusandtermsofreferenceoftheMPACommunities,EqualitiesandPeopleCommitteeanditssub-committees;
• ensuringequalitiesisadequatelyresourcedinthecurrentrestructuringexercisetodeliverMetForward;
• providingequalityanddiversitytrainingforMPAmembersandstaff;
• communicatingmoreeffectivelywithitspartnersandstakeholdersaboutitsprioritieswithregardtoequalityanddiversity;
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• beingexplicitaboutitsexpectationsofseniorpoliceleadersthroughtherecruitmentandpromotionprocessforAssociationofChiefPoliceOfficer(ACPO)officers;and
• championingthecaseforchangeinnationalstructuresthroughtheAssociationofPoliceAuthorities(APA).
Background
1.1 BorisJohnson,MayorofLondon,ontakingoverasChairoftheMetropolitanPoliceAuthority,askedCindyButts,afoundermemberoftheAuthority,tochairanInquiryintoraceandfaithwithintheMPS.(ThedetailedtermsofreferencefortheInquiryarefoundatappendixC).HisconcernsaboutapparentproblemswiththeMPS’sinternalapproachtomanagingadiverseworkforcewerecrystallisedbytwodisturbingevents.
1.2 InAugust2008AssistantCommissionerTariqueGhaffur,oneofthemostseniorBMEofficersinthecountrystartedemploymenttribunalproceedingsagainsttheMPSandthethenCommissionerSirIanBlair,alleginghehadbeendiscriminatedagainstonthegroundsofhisraceandfaith.Thiswasunprecedented.ShortlyafterwardstheMetropolitanPoliceBlackPoliceAssociation(MetBPA)withdrewitssupportfortheMPS’sBMErecruitmentcampaign,sayingitcouldnotsupporttherecruitmentofBMEofficersintoan‘unsafe’environment.
1.3 ItisessentialthatthepolicehavetheconfidenceofallLondon’scommunities.Itmattersacrossallthewaysinwhichpoliceinteractwiththepublictheyserve.ButitisabsolutelyvitalifthepolicearetosucceedintacklingthetwomajorpolicingchallengesfacingLondontoday;stemmingtheamountofgunandknifecrimewithinLondonandcombatingterrorism.BothoftheserequirethecompletetrustandconfidenceofLondon’sdiversecommunitiesandsotherelationshipbetweenthemandthepolicecannotbejeopardised.Successintackling
gun,knifecrimeandterrorismcanonlyhappenifthepolice,togetherwithLondon’sdiversecommunities,workhandinhand.
1.4 Thereisanobviouslinkbetweenthewaypeoplearetreatedwithinthepoliceserviceandexternalperformance.Ifthosewithinthepoliceservicetreattheircolleaguesunfairlyandthisisbasedonfactorssuchasrace,faith,genderorotherfactorsoutsidethedominantculture,peoplewillassumethatthisisanindicationofhowthepublicwillbetreatedbythepolice.
1.5 Therelationshipbetweenraceandpolicinghasbeensubjecttoreviewsincetheraceriotsintheearly1980s.TheScarmanReportandtheStephenLawrenceInquiryReportwerelandmarkreportsthatexploredtheimpactoftherelationshipbetweenpolicingandraceandledtoradicalshiftsinthedeliveryofpolicingandtothemanagementoftheservice.Sinceitwassetupin2000theMPAhasmadetheneedtoimproveinternalandexternalequalitiesperformanceatoppriority,commissioningseveralreviews,includingtheindependentlychairedMorrisInquiryin2004(chairedbySir–nowLord–WilliamMorris,formerleaderoftheTUC).
1.6 GiventhehugeamountsofeffortfromofficersandstaffwithintheMPStoimplementtherecommendationsemanatingfromthesevariousreviewsitisdisappointingthatproblemsstillpersist.AdetailedupdateonprogresswasreportedtotheMPAinlate2009.
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1.7 AsidefromthedebatesaroundthedefinitionsofracismwithinthepoliceservicethespeedinwhichbothScarmanandtheLawrenceInquiryweresetupandtheirrecommendations(Bowling,1999)sharpenedthefocusonpoliceandcommunityracerelationsdramaticallyalteringthepolicinglandscapeforgood.
1.8 TheStephenLawrenceInquiryinparticularwasaturningpoint.LordMacphersonmade70recommendations,39relatingtothepoliceservice.Intermsofoperationalpolicingthesecoveredaccountability,themanagementofracistincidentsandfamilyliaison.EmploymentmatterswerealsoaddressedincludingtargetsaroundtheretentionandprogressionofBMEstaffandtrainingonracismawarenessandcultural
diversity.ThethenHomeSecretary,JackStrawacceptedtherecommendationswholesaleandsignificantchangefollowed.Stretching,andintheeventunachievable,targetsaimedatchangingthevisiblefaceofthepoliceservice,wereadoptedbyallpoliceauthorities.
1.9 Sincethattimethepoliceservicenationally,andtheMetropolitanPoliceServiceinparticular,hasputconsiderableeffortintoaddressingtherecommendationsmadebytheStephenLawrenceInquiry.Thishasproducedsomestrikingresults.Intermsofservicedelivery,theapproachtoinvestigatingseriouscrimeandhomicidehasimprovedbeyondrecognition,theuseoffamilyliaisonofficersisnowstandardpracticeandallofficersreceivefirstaid
“I think without doubt, both my race and my faith have affected the way I work, how I’m perceived within the Organisation. Some is positive and some, on occasions, is perceived to be negative as well. As far as the positive side goes, of course as an Inspector I regularly conducted reviews as Duty Officer and I was able to use my faith and race, my language skills, with detainees in, in custody in order to reassure of, of what’s going on. I’ve obviously been able to provide the organisation with advice on cultural issues, on race issues, which are impacting on the workforce or the general public, policing issues which may have arisen in the media, being able to advise in relation to those matters.”
“These are the positive aspects of using the skills which I have. On the negative side, certainly the biggest one for me has got to be promotion, progression of myself and other BMEs within the organisation, especially from Inspector upwards. The processes seem to be working fine for the PC, the Sergeant, Sergeant Inspector; however, the glass ceiling appears to be the Chief Inspector rank, it is at entry into the Senior Management team on Borough’s which appears to be the biggest hurdle.”
Inspector Fiaz Choudhury
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trainingonaregularbasis.Althoughthereisfarbetter,transparentandregularscrutinyofitsuse,concernsremainaboutthedisproportionateuseofstopandsearchagainstBMEpeople(particularyoungpeople)inLondon.
1.10Internallytherehasalsobeenprogressinchangingthevisiblefaceoftheservice.TheproportionofpoliceofficerswhocomefromaBMEbackgroundhasdoubledinthelasttenyears.Nevertheless,thereisalsoevidence(forinstancetheBBCprogramme‘TheSecretPoliceman’in2005)thatrecommendationshavenotbeenmainstreamedandthateffortstoaddressoperationalpolicingarenotmatchedindealingwiththeinternalenvironment.TheMPSneedstolookbeyondMacpherson’sspecificrecommendationsinordertoachievetheobjectiveoratrulyrepresentativepoliceservice,onethatrespectsraceanddiversityanddoesnotjustseeproportionalrecruitmentasastatisticalgoal.
1.11February2009markedthetenthanniversaryofthepublicationoftheStephenLawrenceInquiryReportandtherehasbeenrenewedinterestinitsrecommendations,particularlyintheextenttowhichthereisminorityrepresentationwithinpolicingandmoreimportantly,whetherthereisfairtreatmentandequalityofopportunityforallofficersandstaffwithinthepoliceservice.
1.12InconductingthisInquiry,thePanelwasclearfromtheoutsetthatitwelcomedtheconsiderableachievementsbythe
MPS,suchassignificantincreasesinthenumberofBMEpoliceofficersandtheintroductionofPCSOs(whoareconsiderablymoreethnicallydiversethantheirpoliceofficercolleagues);thedevelopmentoftheLeadershipAcademyandofpositiveinitiativesforminoritygroups.ThesehavebeenreinforcedbycommunityinitiativesrunbytheMetBPA.GiventhenumberofInquiriestherehavebeentodate,itislegitimatetoaskwhatcouldbegainedfromanotherinquiry–“surelyeverythingthatcouldbesaidhasbeen”wasacommonresponsethroughouttheInquiryprocess.ButthehighprofilecasesthatcametolightlastyearandtheviewsoftheMetBPA,showthatproblemsclearlyremain.PartofthechallengethereforeforthisInquiryhasbeentounderstandwhy,despitealltherecommendations,alltheinvestmentandalltheactivity,thoseapparentproblemsremain.
“the structural change has been about mainstreaming. The functions are still there, although it is less clear that there is a proper strategic overview. The organisation, need to restate its position and the MPS needs to tell a coherent story about the journey it is on”.
Steve Allen, Former Deputy Assistant Commissioner
1.13TheInquirywasalsoclearthatitsfocuswouldbeonproducingaclearsetofpracticalrecommendationsthatwouldhelpmovetheorganisationforward.Inpractice,theInquiryhashadtocompromiseonthis,
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asitbecameclearthereareissuesthateitherrequirenationaldebateanddevelopment,orwherefurtherresearchisrequiredtogainafullerunderstandingofwhatremediesarerequired.
“I think what the Met has done is said Okay, we’ve got a diversity problem so we’ll set up a Diversity Directorate, we’ll make it an end in itself and do our best to influence through structures and processes the organisation to achieve that kind of fairness end. And the unintended consequences of that, sometimes, is that you create a bit of an egg-shells system, where people feel nervous about it because it’s a new area and they haven’t perhaps been used to it in the past; they’re uncertain about how to deal with it; it also, frankly, often separates out BME officers and staff as somehow different – different in that it can have a negative effect as well as a positive effect and I think that, to a certain extent, the way they’ve done it may have had that effect”
Kit Malthouse, Deputy Mayor for Policing and then Vice Chair, Metropolitan Police Authority
Context
2.1 ThefindingsandconclusionsoftheInquiryneedtobeseenincontext.Therearenoeasyanswers.TheInquiryfoundthattheMPShasputconsiderableeffortintoaddressingthemyriadofrecommendationsfrompreviousreportsandprogresshasbeenmade,althoughthereismuchmoretodo.ItalsofoundthattheMPSisavastandcomplexorganisation,andachievingsignificantorganisationalandculturalchangeinevitablytakestimeparticularlywhenithastobedeliveredagainstthebackdropofachallengingandconstantlychangingpolicingenvironment.Inthiscontext,thatprogressshouldberecognisedasanachievementandtheMPAandMPSshouldtakesomereassurancefromthis.
2.2 Thatsaid,thecomplexity,tensionsandpressuresthattheMPSfaceshavechangedconsiderablyinthetenyearssincetheStephenLawrenceInquiry.Demographic,politicalandsocialchangeprovidenewchallengesbothinternallyandexternally,andthereforeanyresponsetoraceandfaithissuesneedstobeaniterativelearningprocess.ItisnotpossiblefortheMPSto“tickthediversitybox”andmoveontothenextchallenge.Inthewordsofoneofthecontributors,totheInquiry“thereisnoratchetindiversityachievement.Youcan’tsaywellwe’vereachedthatpoint,thereforewe’renevergoingbackwardsfromthat…..it’stheconceptofarearviewmirror….ifyoudon’tkeepcheckingtoseewhat’sbehindyouthenyouloseasenseofwhereyouare.”
2.3 ThePanelfoundanorganisationthathasdoneaconsiderableamounttoaddressweaknessinpolicyandprocess.ThePanelalsofoundthatsomestafffromdiversebackgroundsremainunconvincedthattheorganisationhaslearntfromitspast.Engagementandownershiparecrucialtodeliveringstepchangeandre-establishingtrustanditisherethatmanagementfocusisnowrequired.
2.4 Thisreportisbasedonstatisticalevidenceanddata,onthetestimonyofthosewhogaveoralevidence(afulllistisatAppendixA),onthenotesofthefocusgroupsbut,importantly,onourownobservations,experienceandopinion.ThePanel’sobservationsandthecommentarywemakeonwhatwehaveheardandreadareasvalidandasimportantastherecommendationswemake.OneburningissuewhichrepeatedlyemergedthroughoutourevidencesessionsiswhethertheMPSshouldstillbelabelled‘institutionallyracist’.
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InstitutionalRacism
3.1 Macphersondefinedinstitutionalracismas: “the collective failure of an organisation
to provide an appropriate and professional service to people because of their colour, culture, or ethnic origin. It can be seen or detected in processes, attitudes and behaviour which amount to discrimination through unwitting prejudice, ignorance, thoughtlessness and racist stereotyping which disadvantage minority ethnic people.”
3.2 Theconceptofinstitutionalracismhasservedprogresswell.Whentheexpressionwasfirstcoinedithadapowerfulimpactandtheconceptundoubtedlyhadstrategicvalueindrivingchanges.TheMPSwasdeterminedtodemonstratethatitcouldimproveitsperformancebytacklinginstitutionalracismand,asweacknowledgethroughoutthisreport,ithasmadesignificantadvances.
3.3 Now,however,asaconsequenceofrhetoricalinflation,thetermisusedtoogliblyasablanketindictmentandassuchhasbecomeabarriertoreform.ParadoxicallytheconceptofinstitutionalracismhasbecomeamillstonearoundtheneckoftheMPS,obscuringourunderstandingofthenatureofanycontinuingendemicracism
inthatoranyotherlargeorganisation.Thereisalsoarisk,asSirPaulStephenson’squotationbelowhighlights,thatindividualresponsibilitywillbeobscuredwithinaquestforcollectiveresponsibility.
Defining a new vision
3.4 Ratherthanengageinsteriledebateaboutthemeritsofthe“institutionallyracist”labelthePanelcommendsanintelligentandbalancedapproachinwhicheverycaseinvolvingsuspicionsofracismshouldbeinvestigated,firstlyintermsofthebroadconceptionofracismbeforeprogressingontoanattempttodiscerntheparticularindividualorstructural(team,department,organisationetc)culpabilities.Thetruthisthatanysuchexampleofracismisboundtohaveindividualandcollectiveelements,andrecognitionofthisfactallowsforarationalinvestigative,disciplinaryandpolicy-developmentstrategytobedevelopedasaresponse.
3.5 Fortoolongdiversityhassufferedfromanumberofproblems.Ithasbeenjustifiedbya‘businesscase’orsomethingsimilar;
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“nobody acting in such a bigoted form in an organisation… should be allowed to hide behind some definition and some sense that this is an organisational problem and [say] my bigoted behaviour comes out of some wider sense of the organisation. I think we’ve got to find those people who do behave in an outrageous fashion and not give them the cover of some sort of comfortable broader phraseology. Actually I think there’s real danger in that.”
Sir Paul Stephenson, Commissioner
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treatedastheexceptionfromthenormalstateofthings;viewedassomethingthatstandsapartfromthecorebusinessofoperationalpolicing;andbecomesentangledwithina‘hierarchyofdiversities’wheregroupsbasedondiversitystrandscompeteagainsteachotherforrecognitionandaccesstolimitedresources,oftenateachothers’expense.
3.6 TheInquirywasspecificallycommissionedtolookatraceandfaithbut,tellingly,wefoundourselvesconsistentlydiscussingandreferringtodiversity.Althoughraceundoubtedlyhasatotemicsignificanceforthepolice,focussingjustonraceandfaithcouldcontinuetoperpetuatetheproblemstheMPSandtheMPAhaveencounteredinrecentyears.ThisreportdrawslessonsforthewholeoftheMPSandforallthediversitystrandsbecausetherearegenericissuesthatneedtobeaddressedwhichwillbenefittheentireworkforce.Anapproachthatlooksonlytothegeneralortothespecificwillfaileitherway.
3.8 Amorematureapproachisneeded.TheInquiryadvocatesanewvisionwhere:• diversityiswhatproduces,enablesand
isthemeasureofgoodperformance–notanadjuncttoit;
• diversityisaboutproducinganorganisationthatistransparentinitsprocessesandvaluesallofitsstaff–notaboutspecialmeasuresforafewpeople.
3.9 ThereisalotofprogressiveandconsideredthinkingintheMPS.Butthereisalsoamind-setproblemwhichiswhyanewvisionisrequired.Aphilosophicaldiscussionaboutdiversitywillnotmovetheorganisationon.Itisimportanttorecognisethatwhatisbeingadvocatedgoesbeyondtheconventionalargumentsfordiversity.Manycontributorsstressedthemoralcase–theneedtotreatpeoplefairlyandequitably.SirPaulStephensonandmanyothersintheMPSalsorecogniseandadvocateacompellingbusinesscase,tomaketheMPSan‘employerofchoice’,abletoselectandretainthebesttalentavailable.Afullyrepresentativeworkforce–intermsofoverallnumbersandlocationatgrades–isnotnecessarilythesamethingasafairandequitableemployer.Issuesoftrust,fairness,openness,transparencyandleadershipintheorganisationrequiresmorefocusandtobemonitoredcontinuallytoensurethattheMPSisgettingthebestfromitspeople.
3.10InadditiontothisthereisademographicargumentthattheMPSshould‘lookmorelikeLondon’andberepresentativeofthecity’sdiversecommunities.WhileitisimportantfortheMPStobe,andtolookmorelike,thecommunitiesitserves,thereisadangerthisbecomesafacilenumericalorstatisticalargument,wheresomepeopleinsistthattheMPSshould‘mirror’thepopulationofLondon.ThereisnotnecessarilyanautomaticlinkbetweenbetterrepresentationofLondon’sdiversityandcommunityconfidence.Confidencestill
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hastobeearnedandmaintainedthroughqualityofservice.
3.11Diversity–inallitsmanifestations–isnotsomething‘exceptional’orsomethingthatpoliceofficersandstaffencounter‘nowandthen.’Itiswovenintoalltheirencounterswitheachotherandwiththepublic.Itisthenormalstateofthings,notadeparturefromthat.TheMPSmustfocusonwhatdiversitycandeliverforitandfortheserviceitprovidesandtodothatitwillneedtocontinuetoworkonboththepublicfacingandinwardlookingaspectsofdiversityatthesametime.
3.12TheMPSneedstomoveawayfromtheinternal/externalmind-setthathasdevelopedinsidetheorganisation(thisisevidentinthesplitbetweenHumanResourcesDirectorate(HR)andDiversityandCitizenFocusDirectorate(DCFD))becausethesolecriterionthatshouldmotivatetheorganisationisthequalityofserviceitprovidestothepublic.AllMPSstaffshouldseethemselvesaseitherdirectlyprovidingthat,orasindirectlysupportingthefrontlinedeliveryofqualitypolicing.Itisimportanttostresstheparticularresponsibilitiesofseniormanagersinsomeplacesbutthatshouldnotbeseenassuggestingthatifonlytheproblemcanbefixedatthatlevelthenallelsewillflowfromthat.TheMPSneedstoseediversityasintegraltoallitsrolesandresponsibilities,notasanadd-on.
3.13Thefollowingsectionsoutlinetheemergingfindings,conclusionsandrecommendations.AppendixCsummarisesthekeyissuesandreflectthethemesoutlinedintheoriginaltermsofreference,agreedbytheAuthorityattheendof2008.Membersnotedatthetimethatdeliveringthetermsofreferencewouldbechallengingwithintheagreedtimescales.Thisprovedtobetrueandthereareasmallnumberofareaswherefurtherworkisrequired.
CultureandValues
4.1 TherewaswideconsensusfrommanagersandstaffthatinformalculturesareimportantwithintheMPS.TheInquiryheardmuchaboutthewaysinwhichvariouskindsofinformalnetworks–aroundtemporarypromotions,adrinkingculture,amachoculture–excludedsomeofficersandstaff(particularlythosefromaBMEbackground).No-onesuggestedthiswasdonedeliberatelyasamatterofcourse–andiftherewereanysuchevidencetheMPSshouldofcoursedealwithitpromptly.
4.2 Itistooeasyandtoomuchofageneralisationtoidentify‘policeculture’asaproblemandtocallfor‘culturalchange’.Therearesomeaspectsofpoliceculturesuchasa‘cando’attitudethatarevitaltotheworkthepolicedo.Variousculturalchangeprogrammeshavebeenattemptedovermanydecades,withprobablylimitedsuccess.
“you know, if you have a different voice within the organisation you have to work ten times harder to get your voice heard.”
Denise Milani, Director of Diversity and Citizen Focus Directorate
4.3 Theinformalculturesareseenasbothpartoftheproblem–inthattheymakeithardforBMEofficerstogetalookin,especiallyonpromotion–andpartofthesolution–inthat,alternativeinformalnetworksareproposedbytheMPS.ThePanelisawareofinformalnetworkssetupbyandforBMEofficers.Soinformalnetworkingperseis
nottheissueinitself.Itseemsmuchmorelikelythatwhatmakesadifferenceistheresourcesthatpeoplecanbringtothosenetworks.Forexample,thatonekeyissueisthatBMEofficerscannotgetthesamelevelofmanagementsupportindevelopingtheircareers–notleastbecausetherearesofewseniorBMEofficerstoprovidesupport,adviceandmentoring.
4.4 Abiggerproblemisacultureof“informalism”–atmanagementandsupervisorlevelwherethingsaredoneoutsidethewrittenprocesses.Tosomeextentandinsomewaysmanagerscolludewiththatbecausetheproceduresarethoughttobetoobureaucraticandunworkable.
4.5 TheMPShasseveralmechanismsfortestingthehealthoftheorganisation,corporatehealthindicators,itsrelationshipswithstaffassociationsandstaffsupportassociations,andthequarterlystaffsurvey.
4.6 Therearecurrently19staffsupportassociations(SSAs)withintheMPA.Theyhavegrownuporganicallyovertheyearsandwereestablishedbystaffandofficersprimarilytobringpeoplefromdistinctminoritygroupstogethersocially,toshareexperiencesandtopromotetheirculture,interest,needsandexperiencetotherestoftheorganisationwithaviewtogainingbetterunderstandingofthediversitywithintheMPS(andbydefaultwidersociety).Overtime,theorganisationhasusedthemasaconsultationmechanismforpolicy
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26 Race and Faith Inquiry Report
developmentandtheyareavaluablesourceofadviceinrelationtomediacampaignsandconflictresolution.
4.7 AnumbrellagroupofallSSAchairshasbeenformed–calledS.A.M.U.R.A.I.(StaffAssociationsMeetingUpRegularlyAndInteracting)whosepurposeistoensureeffectivecommunicationbetweengroupsandtoshareexperiences.TheyalsomeetregularlywiththeDirectorofHRtodiscusspolicychanges,particularlyHRanddiversityissuesthereof.TheMetBPA,thelargestMPSSSAisnolongeramemberofS.A.M.U.R.A.I.,theywithdrewin2007,statingthatitwasbeingusedbytheorganisationto‘tickboxes’.
4.8 StaffsupportassociationsarenotformallyrecognisedbytheMetropolitanPoliceServiceforcollectivebargainingpurposes;nordotheyhavetherepresentationalornegotiatingrightsofthePoliceFederation,Superintendents’Associationortherecognisedconstituenttradeunions.TheMetBPAdoesprovideadvocacyonbehalfofitsmembersinfairnessatworkinvestigations.
4.9 TheconstitutionandgovernanceofeachSSAisamatterfortheorganisation.Mostarefundedbycontributionsfrommembers.TheMPSdoesprovidesomesupport;fundingaco-ordinatorforS.A.M.U.R.A.I.,officefacilities,andfacilitytimeforSSAstoconductbusiness.Thisrangesfromadayperweekforsomeexecutivemembers/chairstoafulltimesecondmentforthechairofthe
MetBPA,thelargestoftheSSAs.Financialsupportisalsoavailable.Thisisaccessedgenerallyviabusinesscases.
4.10TheInquiryheardmixedviewsabouthoweffectivelytheMPSandSSAsengagewitheachother.Therewereconcernsthatsomestaffassociationshadmorepowerandinfluencethanothersandthatitisnotalwaysusedappropriately.AkeythemeemergingfromthefocusgroupswaswhethertheSSAswereabletoeffectivelyrepresenttheviewsofallmembersofanunder-representedgroupandwhethertheirprioritieswereinthebestinterestofminoritystaffwithintheorganisation.TheInquiryfailedtogainaclearsensefromseniormanagersofwhethertheMPSwasmaximisingthebenefitsofferedbysuchanextensiveandwell-developednetwork.
4.11TheInquiryisinnodoubtthatSSAsareahelpfulmechanismandcanaddvaluetopolicinginLondonandwewereparticularlypleasedtolearnabouttheimportantoutreachworkwhichstaffassociationssuchastheMetropolitanSikhAssociationperformsthroughoutLondonandtheworkbeingdonewithyoungpeoplethroughtheMetBPA’sVoyageprogramme.However,itisclearthattherelationshipbetweentheSSAsandtheorganisationneedstoberefreshed.GiventheextentofthebreakdownbetweentheMPSandMetBPA,andtherelativesizeoftheMetBPA,particularfocusisrequiredhere.ItisencouragingthattheMetBPAhasrecentlylifteditsboycottonrecruitment:
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theMPS,MPAandMetBPAareurgedtocontinuetostrengthentheirrelationship.
4.12Thereisscopetoimprovethegovernance,financeandtransparencyaroundSSAs.Therecentdecisiontointroduceamemorandumofunderstanding(MOU)betweentheMPSandtheSSAswillgosomewaytowardsthis.TheInquiryheardconcernsabouthowtheMPSwasapproachingthedevelopmentoftheMOU,inparticularanapparentlackofconsultation.ItsintroductionmustbedoneinpartnershipwiththeSSAs;andtheInquiryhopesthatthefinaldocumentwilloutlinewhateachsidecanreasonablyexpectfromeachotherandwhatresponsibilitiesthatbringswithit.TheInquiryrequiresthatthefinalMOUisagreedthereisregularevaluationofitseffectivenessandthattheMPAreceivesregularreportsupdatingthemonprogress.
4.13FollowingtheMorrisInquiryin2004,theMPSestablishedaregularstaffsurvey.Althoughindependentlyconductedbyanexternalprovider,thereissomecynicismwithintheMPSaboutthevalidityofthedataprovided,becausethetimeittakestoproducethequarterlyresults.TheInquirybelievesthisisbecauseofproblemswiththeproviderratherthananyattemptbyHRtosuppressthefindings(thePanelunderstandsthecontractisbeingreviewedin2010andwillbetightenedtoensurethetimelyanalysisanddeliveryofresults).TheinformationitprovidesisausefultouchstoneforManagementBoard,andshowstrendsovertime,butthereisscopetodemonstrate
abetterlinkbetweenthemessagesbeingdeliveredandtheactionbeingtakenasaresult.
4.14Althoughanonymous,thesurveydoesaskrespondentstocompleteadiversitysection.Nowthatthereissufficienttrenddataavailable,itisimportantthatanalysisisundertakentounderstandwhetherthereareanysignificantdifferencesbetweenBMEandwhitestaffsatisfactionandwherethesebecomeevident,investigatethereasonsforthis.
4.15Organisationallearningandtheprocessesputinplacetoensurethatgoodpracticeisdisseminatedwidely,andthatmistakesarenotrepeated,areimportantaspectsofimprovingtheprevailingculture.ToomuchoftheevidencegiventothePanelindicatedthatdefensivenessandblame,asopposedtolearninganddevelopment,isstillthedefaultpositionoftheMPS,particularlyintheareaofgrievances,fairnessatworkandemploymenttribunals(ETs).FollowingtheMorrisInquiry,andwiththeactiveinvolvementoftheRaceIndependentAdvisoryGroupandmembersoftheMetBPA,significantprogresswasmadeinresolvingmanylongstanding,race-relatedETcases,butthelessonslearntfromthatprocessareindangerofbeingforgotten.ThePaneliskeentoseefurtherevidencefromtheMPSthattheextenttowhichtheLeadershipAcademyisassimilatingexperienceandenablingtheorganisationtobestrategicallyanticipatoryaswellasreactiveinthefield
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ofemploymentrelationships.Itmaywellbethecase(aswassuggestedbyanumberofrespondents)thattheMPSmakessureeveryoneisawareoftheoutcomeofETswhenithasbeensuccessfulbutismorereticentaboutbroadcastinganoutcomewhenithaslostandthatifthisisindeedthecasethenthecurrentapproachtoETsdiminishestheopportunityfortheorganisationtolearnandimprove.
Recommendation 1ThecultureandvaluesoftheMetropolitanPoliceService(MPS)mustshifttobecomemorerecognisabletominoritymembersofstaff.Thismeans:• puttinginplacebettergovernanceofStaff
SupportAssociations(SSAs)inorderthatbenefitsaremaximised;
• continuingtobuildanddeveloptherelationshipbetweenMPSandtheMetBlackPoliceAssociation(MetBPA);
• linkingstaffsurveyfindingsandmanagementactionmoreexplicitlyandtransparently;and
• ensuringthattheprocessbywhichlessonsrelatingtoraceandfaithissues(includingemploymenttribunals)arelearntandapplied,isclearlysetoutandunderstood.
29 Leadershipandaccountability
5.1 TheInquirysoughtevidencefromallranksandlevelswithintheMPStoassesstheextenttowhichclearleadershipanddirectionisprovidedondiversityissuesandhowthiswastranslatedanddeliveredbeyondthecorporatecentretotherestoftheorganisation.TheMPSisundoubtedlyacomplexandverylargeestablishment,makingthetaskofeffectiveleadershipthroughouttheorganisationadifficultone.
5.2 WhilsttheMPSdemonstratesonpaperacommitmenttoequalityanddiversitythroughvariouspoliciesandstrategies,itisimportanttounderstandhowthisistranslatedintorealitywithtangibleandvisiblecommitmentbythoseattheverytop.Beyondtherhetoric,isManagementBoardleadingbyexample?
5.3 Ithaslongbeenunderstoodthatstrongleadershipandvisiblecommitmentisakeycomponentinsuccessfullypromotingequalityanddiversity.PriortotheStephenLawrenceInquiry,HerMajesty’sInspectorateofConstabulary(HMIC)initsthematicinspectiononpolicecommunityandracerelationsin1996foundthat:
‘there was clear evidence that even competently written policies and strategies can, in themselves, do little to change attitudes, perceptions and working practice.
The forces which demonstrated the greatest success were those with sound and positive equal opportunities and community and race relations policies, which were seen to have the unequivocal and visible support at the highest levels, especially by the Chief Constable.’
5.4 TheMPShasundertakenconsiderableworktodeveloptherightcorporatepoliciesinrelationtoequalityanddiversity.ButthereisageneralperceptionfrombothofficersandstaffthatcorporateleadershipisweakinrelationtoequalityanddiversitywithnoclearManagementBoardlead.
5.5 TheInquiryfoundtherewasaconfusionandlackofcleararticulationtotherestoftheorganisationofwhoisresponsibleatManagementBoardlevelforequalityanddiversity.Thiswasdemonstratedbyfollowingobservations:• someofficersandstaffmadereference
tothepreviousCommissionerSirIanBlairasa‘championofdiversity’;
• othersreferredtoDACTerritorialPolicinggiventhepost’soverallresponsibilityfortheDiversityandCitizenFocusDirectorate;and
• SirPaulStephensonsaidthatACJohnYateswastheManagementBoardDiversityLeadfrom2007.
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5.6 Aswellasalackofcleararticulationaboutwhoisresponsible,theseresponsesdemonstratethehighturnoverinseniormanagementresponsibilitywhichinturncastsdoubtonhowseriouslydiversityistakenatthemostseniorlevelsoftheorganisation.
5.7 StaffAssociationsandindividualMPSemployeestoldtheInquiryhowconfusedtheywereaboutwhowastheManagementBoardorAssociationofChiefPoliceOfficers(ACPO)leadondiversityissues.TheInquirydidnotseeanyrecognitionfromMPSManagementBoardmembersaboutwhatkindofunstatedsignalitsendsouttotheorganisationwhendiversityisaportfoliotobepassedaroundsocasually.ThislackofcontinuityandclaritydoesnothelptheMPSorthepeopleitemploysorserves.
“We have to question whether we’ve got leaders who are confident and capable enough to deal with the whole range of diversity challenges and my, my view of that is that I don’t think our leadership training and our leadership prepares leaders well enough and that’s something that we need to address.”
Stephen Otter, Chief Constable Devon and Cornwall
5.8 InterviewswithManagementBoardmembersdidlittletochallengethisperception.WhenquestionedaboutthefrequencyinwhichdiversitywithintheMPSwasdiscussedatManagementBoardmeetingsortheirawaydaystheresponsesfromthebothcurrentandformerCommissionercouldnotprovideexamplesofwhendiversitymattersweretabledasa‘stand-alone’item.
5.9 Thislackofdiscussionandconsiderationhighlightsagapintermsofconsideringtheequalityanddiversityimpactofstrategicpolicydecisions.Thisisparticularlysurprisinggiventhesignificantchallengestheorganisationfacedduring2008raceandfaithdiscriminationcases,theMetBPAstagingaboycottofrecruitmentactivityaimedatincreasingBMErepresentationandatanationalleveltheBBCinvestigation‘SecretPolicemanReturns’questioningprogressintherecruitmentandprogressionofethnicminoritypoliceofficers.
5.10Itisunderstandablethatoperationalpolicingissuestakeprecedence,butwewouldcontendthatdiversityhasadirectimpactonoperationalissues.Thefactthatdiversityappearsnevertobesubjecttoseriousandcriticaldebate,despitethehighlevelsofnegativecoveragespecificallyaroundraceandtoalesserextentfaithraisesquestionsregardingthewillingnessofthemostseniormanagersattheMPStounderstandtheirpersonalresponsibilitiesinrelationtoequalityanddiversity,reinforcingthemessagethatitisdownto‘someoneelse’.
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5.11ItisthereforenotsurprisingthatintheabsenceofaconsideredManagementBoardpositionintermsofdiversityrelatedmattersandarealunderstandingofthebusinesscaseforchange,officersandstaffacrosstheorganisationareleftconfusedastowhoisprovidingdirectionandwhattheyaresupposedtobedoing.ForthisreasonthePanel’sinterimreportrecommendedthattheDeputyCommissionershouldbecomethediversityleadandthattheDiversityDirectorateshouldmovetohiscommand.Thishasnowtakenplace,whichiswelcome.Itprovidesanopportunitytorevitalisetheorganisationalapproachtorace,faithanddiversitymattersingeneral.
5.12Butwegofurther.ThePanelfeltthatDiversityBoardandtheEqualitySchemeProgrammeBoardareineffectivemechanismstomonitoractivityacrosstheMPS,sincetheyfailtoappropriatelychallengepoorperformanceoroperatesanctionsonOperationalCommandUnits(OCUs)thatareunder-performing.
5.13OCUlevelcommitmentanddriveinrelationtodiversityishugelydependentonthedirectionsetbytheOCUcommander.Corporateoversighttoensureconsistencyacrosstheorganisationhasbeenverydifficulttoachieve.DespitelittleevidenceofactiveandsustainedleadershipfromManagementBoardtheInquirydidhearfromanumberofcommittedseniorofficerswhopossessedvisionandcommitmenttopromotingdiversitywithintheirbusinessgroups.Wheremiddlemanagersunderstood
thebusinesscaseforchangewefoundsomeexcellentexamplesofgoodpractice.HowevertheInquiryfoundthatinsuchinstancestherewasalackofcorporatesupportandengagement.Notwithstandingthelackofleadershipisdemonstrates,italsoleaveslocalleadersopentochallenge.
5.14TheDiversityandCitizenFocusDirectorate(DCFD)wasoriginallysetupinresponsetotheStephenLawrenceInquiryandhadresponsibilityfordrivingthediversitystrategyacrosstheMPS.IthasundergoneanumberoforganisationalchangessinceitscreationandatthetimeoftheInquirysatwithinTerritorialPolicing(TP)undertheDeputyAssistantCommissioner(DAC)(CapabilityandReformNeighbourhoodPolicingandPartnership).TheDirectorofDCFDreportedtotheDAC.
5.15WhilstwelcomingthemovetotheDeputyCommissioner’sCommand,thePanelfeelsthattheroleofDCFDascustodiansoftheequalityanddiversityagendaneedstobedeveloped,andpromoted.TheevidenceheardbytheInquirysuggeststhatDCFDhasstruggledtoengenderownershipwithintherestoftheorganisationtodeliverthediversitystrategyanddesiredoutcomesitanticipated.TheInquiryhasidentifiedanumberofreasonsforthis:• thegovernancearrangements–in
particularDiversityBoardandtheEqualitySchemeProgrammeBoarddonothaverepresentationatanappropriatelyseniorlevel;
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• thereisnoconsistentcultureofassessingpolicyandprocedureinthecontextofequalityanddiversityimplications;
• thedepartmentdoesnotcommandenoughinfluencetobringaboutsignificantchange;
• itsresourcesarespreadverythinlyforexamplethereareonlysevenprofessionaladvisorswhoareexpectedtocovertheentireorganisation;and
• thereisaperceptionthattheyareaTPresourceandthereforenotavailabletotherestoftheorganisation.Inpracticethisisnottrue,theyareacorporateresource.
“You can have all the processes in the world you like, but if you haven’t got people who whole-heartedly will recruit for you, then you’ll, you’re never going to succeed, so how is it that we have officers within Trident who have the confidence, the self esteem, the enjoyment of their work, to say that to other people, that’s been very key and we’ve been quite light touch around recruiting – increasing our recruitment levels; we’re taking it slow, because one of the consistent messages from the black officers who are within Trident is, make sure that the officers coming in are the high standard, they know how to do the job, they’ve got resilience, so that they will succeed when they come in and I think that’s vital that, having recruited, the officers are given the opportunity to, to achieve. And, perhaps I can just refer to my own experience as a, a female officer, that if I’d felt that I’d got a promotion or a job because they wanted to tick a diversity box, then I would be suffering from a most horrible lack of confidence in performing that role and I like the fact that I think the Met selection process, there’s a promotion processes, are sound”
Detective Chief Superintendent Helen Ball
5.16 TheevidencepointstoaneedforclarityregardingtheroleandinfluenceofDCFDontherestoftheorganisation.TheDiversityDirector,DeniseMilani,believesthereisanopportunityforManagementBoardtobemoreassertiveinarticulatingthebusinesscaseforchangeinthecontextofimprovingthewayLondonispolicedandtofacilitatemovingtheorganisationtoaplacewherethebenefitsofdiversityarerealised.Giventhe‘leadershipgap’theInquiryfound,thereisanopportunitytoaddressthisthroughgreaterengagementbetweenManagementBoardandDCFD.
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5.17DCFDcanalsoinfluencefromthebottomupusingitsexpertisetotranslatethediversitystrategytoalocallevel,andchallengingandsupportingthoseOCUsthatarestrugglingtodeliverand/orimprove.InparticularitshouldbeensuringgreaterconsistencyacrossLondonandthatbestpracticeiscelebratedandpromulgatedthroughouttheorganisation.DifferentlevelsofcommitmentareevidentacrosstheMPS.Someboroughsandunitsareveryproactive,othersdonothavethebasicsright.Inordertoachievethishowever,wewouldquestionwhethertheDCFDeveninitsnewstructure,hastherightskillsandresourcesavailabletoit.
5.18Initsemergingfindings,thePanelstronglyrecommendedthattheDCFDshouldberepositionedtoreportdirectlytotheDeputyCommissioner.Thishasnowhappened.
5.19However,theInquiryheardfromseveralseniorMPSmanagersthatthestructurallocationofDCFDinTerritorialPolicingwasnottheissue–orthatsimplymovingaroundstructureswasnottheanswer.SirPaulsaidthatheis‘alwaysnervousaboutstructureintheMet…[Because]theMetcanbecomeobsessedwithstructureandassoonasyoumentionstructureitwillconsumeitselfinthatandforgetabouttheproduct’.TheDirectorofHRsaidhefeltDCFDwasintherightplaceandstructuralchangeswouldnotenhanceitsprofile.HoweverBobQuick,thenheadofSpecialistOperations,wonderedwhetheramorecentrallocationorasmallercoreunitwouldleadtoamoreeffectiveDiversityDirectorate.The
Inquiryunderstandschangingandmovingstructurescausesdisruptionbutagreesthatthepotentialbenefitsoutweighthedisadvantages.
5.20Inmovingforward,clearleadershipfromtheDeputyCommissionerisrequiredandDCFDmustbecomepartofthecorporatecentre.InthatlocationtheInquiryenvisagesacorporatediversityunitthatwouldworkwiththeDeputyCommissionerinsupportingbusinessgroupsandinactingasan‘internalinspectorate’tomonitoranddriveimprovements.DCFD’staskshouldbetoenableandsupporttheorganisationtoembedanynewdiversitypriorities,thisshouldbebalancedagainstholdingtheorganisationtoaccountforactualdelivery.
5.21CurrentlyasignificantpartofthejobofDCFDistoengagedirectlywithmembersofunder-representedgroupsandtheirlinemanagement.EngagingfullywithstaffistheresponsibilityforeachandeverysupervisorandmanagerintheMPS,notsomethingthatshouldbedoneforthembyDCFD.DiversityAdvisorscansupportsupervisors,inthatrolebutitshouldbeclearthattheonusisonsupervisorstopromoteequalityandthattheirperformancewillbeassessedintheirPDRs.Assuch,DCFDshouldbemonitoringaswellassupportingsupervisors.
5.22AnotherkeyissueistherelationshipbetweenDCFDandHR.WhentheinquiryaskedtheDirectorofDCFDaboutthis,shesaidthat“HRisabusinessunitlikeanyother.Weworkcloselywiththemto
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supportthemindeliveringtheareasforwhichtheyhaveresponsibility.Inthiscaseitisprimarilyaroundworkforceissuesastheyrelatetodiversity”.Shefeltthatthiswastherightrelationshipasitexpandeddiversityfromamatterofrecruitmenttoabroaderconcernofemploymentpractice.ThePanelagreeswithmuchofthethinkingbehindthis.Diversityshouldbeaboutthewholeorganisationandallemploymentissuesincludingpeopledevelopmentandaswellasaboutservicedelivery.WhattheInquirywasnotsureaboutwaswhetherortowhatextentDCFDhavebeensuccessfulinachievingthisaspiration.TheInquirybelievestheimportanceoftherelationshipbetweenDCFDandHRcannotbeunderestimated.ThatdoesnotmeanthatDCFDhastositwithinorunderHR.However,itdoesmeanthatHRcannotbeabusinessunitasanyother-inotherwordstheremustbemuchmoreeffectivecollaborationbetweenDCFDandHRinensuringthattherestoftheorganisationisfulfillingitsresponsibilitiestowardstheirstaff.
5.23TheInquiryagreeswiththeCommissionerandthethenViceChairoftheMPAthattheeraof‘champions’fordiversityhasserveditstime.Itservedapurposeinidentifyingavisibleleaderbutitalsoenabledotherstoescapetheirresponsibilitiesbyassumingthatit‘wassomeoneelse’sjob’.Diversityispartandparcelofeveryone’sjobandthateveryoneshouldbeheldresponsibleforitineverythingtheydo–notjustasa‘lightbulb’thatcomesonwhen
dealingwithparticulargroups.TheDeputyCommissioner’sroleistobetheaccountableheadfordiversity,withawellresourceddirectoratesupportingandscrutinisingtheorganisation.
Recommendation 2TheseniorleadershipoftheMetropolitanPoliceService(MPS)shouldreviewtheircommitmenttoensuringthatofficersandstaffarefairlytreated.Thismeans:• designatingtheDeputyCommissionerasthe
leadfordiversityandchairofDiversityBoard(alreadyactionedbytheMPS);
• placingDirectorateofCitizenFocusandDiversity(DCFD)undertheDeputyCommissioner’sdirectcommand(NB:alreadyactionedbytheMPS);
• increasingtheresourcesandexpertiseavailabletoDCFD;focusingtheworkofDCFDonsupportingOperationalCommandUnit(OCU)commanderstodelivercorporatestrategydiversitycommitments;
• developingarobustinternalinspectionmodelwithinDCFDwhichcanbeappliedtoanypartoftheorganisation.Itsremitshouldencompasstwokeyfunctions:1)topromoteandpromulgatebestpractice2)investigatethosepartsoftheorganisationwhichgiverisetoconcerns;and
• taskingthePerformanceBoardtooverseecorporateperformanceondiversitytargets.
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Recommendation 3DiversitymustmoreclearlybepartoftheleadershipphilosophyoftheMetropolitanPoliceService(MPS).Thismeans:• evaluatingtheextenttowhichthe
LeadershipAcademytrainingimprovesthewaydifferenceismanaged;
• aligningtheLeadershipAcademymorecloselywiththeDirectorateofCitizenFocusandDiversity(DCFD);and
• definingwhatintrusivesupervisionmeansinpracticeandmonitoringitsimplementation.
Processesandpractices:recruitmentandprogression
6.1 TheMPA’sscrutinyoftheMPSapproachtosuccessionplanningandtalentmanagementconductedin2007foundthatthequalityandcompletionofperformancedevelopmentreviews(PDRs)intheMPSwasfrequentlynotgivenahighprioritybylinemanagersortheirstaff.Sincethentherehavebeenchangesandimprovements.TheDirectorofHRtoldtheInquiry:‘Ithinkwe’vecomesomeconsiderabledistanceonboththedevelopmentofanappropriatePDRsystemandonethatisseentobeworkingintheorganisation;Isaythatbecausewhen,whenIjoinedtheorganisationtherewasaPDRsystem,itwasprobablymoremeasurableintermsofthequantityofformsthatoneneededtofilloutratherthanthequalityoftheprocessthatwasgonethroughandnotsurprisinglytherewasverylittleattentiongiventoit.We’venowchangedthatpositiontoaveryshort,simpleform…Butwe’renowontothe90percentcompletionratesonPDRsacrosstheorganisation.’Theimprovedcompletionrateiswelcome,thoughitisnotjusttimelinessthatmatters.ThePanelwaspleasedthattheHRDirectorateconductsdip-samplingforqualityassurancespurposes.
6.2 Nonetheless,theInquiryPanelwereextremelyconcernedwiththealmostuniversalviewexpressedbywitnessesregardingPDRs;thePanelheardinfocusgroupsandothersessionsabouthowPDRsweretreatedasa‘tickbox’exerciseandthatmanagerssawitasunimportant.ThePanelalsohearddoubtsaboutthedataoncompletionrates–anumberofpeople
pointedoutthattheMPScanbequitegoodatmanipulatingnumbers(althoughwehavenoevidencetosupportthis).
6.3 Theperceptionmustbedealtwith–butinanycase,thequalityoftheprocessmattersmore.Somelinemanagersclearlyfailtousetheprocesstotacklepoorperformance,andattimesdeferredtheirresponsibilitiestomanageanddevelopstaffbylettingthemproceedtopromotionapplicationsthatwerelikelytofail.ApparentlysomeindividualshadbeenaskedtocompletetheirownPDRswithmanagersmerelysigningthemoffattheendoftheprocess.
6.4 AsnapshotofcommentswetypicallyheardinrelationtoPDRsincluded:• “allsystemscanbeopentoabuse–for
themajorityofpeopleintheMPSPDRareatickintheboxwithnorelevancetocareerprogression”;
• “theyworkonthebasisofyouwriteitandI’llsignit”;
• “PDRsaresupposedtobeakeytoolfortheMPSbutthevalueislostunlessyouhavealinemanagerthatunderstandsitandhasthetime/respecttodoitproperly”.
6.5 SomemanagersapparentlyfeelthatundertakingthePDRcangetinthewayofmanagingtheirrelationshipwithstaff.TheLeadershipAcademyisputforwardasamechanismforchangingthisculture.ThereismuchabouttheLeadershipAcademythatwesupportandtosomeextentwedohavetoacceptthatitisaprocessof‘slowsteady
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change’ratherthananydramaticbigbang.NeverthelesswedonotthinkthattheHRDirectorateortheMPSshouldexpecttheLeadershipAcademyalonetochallengetheculture.WewouldlikeseniormanagementintheMPSactivelytoconsiderwhatothertacticsmightbedeployedtospeedupculturechange.
6.6 AstheMPAstrategyMetForwardnotes,ithasbecomeaclichétosaythatpeoplearethemostimportantresourcestheMPShas,butitbearsrepeatingbecausetheInquirywasnotconvincedthattheMPSManagementBoardarticulatesthismessagewithconviction.Itistooeasytosee‘peopleissues’asamatterfortheHRDirectorate.TheMPSshouldbestartingfromanotherplace.Ifthegoalisanoutwardlooking,citizenfocussedandengagedpoliceorganisationseekingtoprovideaqualityservice,thenallemployees–policeofficersandstaff–shouldseethatastheirgoalanditshouldbedemonstratedandreiteratedbytheCommissionerandManagementBoard.Alltheprocessesintheorganisationshouldbegearedtowardsdeliveringthatservice.
6.7 TheMPSarerightlyproudoftheprogressmadeinrelationtotherecruitmentofBMEofficersandstaffwithintheMPS.TheachievementissignificantandsuccessisnotednotjustinternallybutalsobyexternalorganisationssuchastheEqualityandHumanRightsCommissionandACPO.
6.8 Itistruethatthissuccessfallsconsiderablyshortoftheoriginaltargetof25%BME
recruitmentsetbytheHomeOfficeafterthepublicationoftheStephenLawrenceInquiryReportandtheCREformalinvestigationintothepoliceservice,butinretrospectthistargetwashugelyover-ambitious.Theaspirationtochangethepoliceservicetoreflectthecommunityitservesistherightone,buttheoriginaltarget(setin1999),wasneverachievable,giventhelowturnoverwithintheMPSandthecurrentemploymentframeworkwithinwhichitmustwork.ItisworthnothingthatBMEofficersintheMPSaccountfor46%(i.e.2594/5619)oftheoverallBMEpoliceofficerstrengthinEnglandandWales.Inrespectofthisapparentfailure,onecontributortoldthePanelthata‘targetisatarget’andastheMPShadclearlyfailedtoachievethat–thattheMPAhadfailedtoholdtoaccounttheMPSandtheDirectorofHR.Weunderstandwhythatviewisexpressedbutitremainsthecasethatthetargetwasunachievable.
6.9 TherecruitmentofPCSOshasremainedconsistentlydiverse,withBMErepresentationataround30%.Intheareaofrecruitment,theMPShasdemonstratedapositiveproactiveapproachinattractingcandidatesfromunder-representedgroupsandcommunitiesthroughanumberoftargetedcampaignsandhighprofilebrandingandmarketing.Again,thisefforthasbeenrecognisedexternallybytheNPIA.
6.10HRalsohasaCommunityEngagementStrategywhichseekstorecruitfromspecificunder-representedcommunitiessuchasSomali,BangladeshiandPolish.Weconsider
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thistobegoodpractice.However,wewouldencourageconsiderationofpossibledisincentivestocertaincommunitiesandfaiths.WeheardfromanumberofevidencegiversthattheMPScoulddomoretoaddressthespecificfaithneedsofpotentialrecruits.Forexample,wouldtheMPSattractmoreJewishrecruitsifSaturdayworkingweremadeoptional?Aclearpolicyonworkingpatterns,consistentlyappliedacrosstheMPS,wouldbepreferabletothecurrentpracticeofleavingthistolocalmanagementdiscretion.Apartfromtheinherentunfairnessofthisapproachitmayactasadisincentivetoprogression,asofficersandstaffwhohavenegotiatedfavourablelocalworkingarrangementsmaybereluctanttomoveon.
6.11TheMPSmustbuildontheprogressithasmadeinrecruitingfromminoritygroups.DuringthecourseoftheInquiryanumberofpotential‘quickwins’wereidentified.Recruitmentprocessesarecomplicated,everchanginganddonotinspiretrustandconfidence.Potentialofficersarenotalwaystoldwhytheyfailandiftheydochoosetore-applytheyhavetostartagain
fromscratch.SimilarlyPCSOswhoconverttopoliceofficershavetogothroughthesamerecruitmentprocessandprobationperiodasotherrecruits,despitehavingbuiltupconsiderableexperienceduringtheirtimeasaPCSO.Theargumentputforwardtosupportthisarrangementisthatitisnecessarytomaintainquality.ThePanelwouldinnowayendorsechangethatwouldimpactadverselyonthequalityofrecruitscomingthrough,butinourview,itispossibletoestablishaprocessthatrecognisestheexperiencePCSOsbringwiththemwhentheybecomepoliceconstables.WerecommendthattheMPSinvestsinstreamliningthechannelfromPCSOtopoliceconstablesothatsuitablecandidatescanbefasttracked.
6.12ItisofcoursethecasethattheMPSworkswithinanationalframeworkandthattherearesomesystemsandprocessesthatarebeyonditscontrol.Anationalfocusonensuringrecruitmentprocessesremainmodernandaimedatimprovingrepresentationofminoritygroupsisrequired.
“I am just very keen that, having reviewed the process ad nauseam, in terms of the promotion process, I cannot think that there is a fairer, more objective process than we already have. It’s been tested by just about every possible means it can be tested by. I worry about whether people get in to the system. I am concerned about whether ever people get into that system in the first place, but I am assured that once people get into that system, then the process itself does take care of it and it is as fair and as objective as it can possibly be. I’ve really spent more time personally on this in the last couple of years, than any other activity to ensure that fairness and yet I’m thrown by two promotion processes that fail to promote one ethnic minority.”
Martin Tiplady, Director of Human Resources
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6.13ThestatisticsshowthattherehasbeensignificantimprovementinBMErepresentationintheorganisation.AppendixFanalysesthedataindetail.However,aprofileoftheorganisationshowsthatBMEofficersareconcentratedatthelowerrankswithintheorganisation–sergeantandconstable.Promotionandprogressionarediscussedlaterinthisreport,butmulti-pointentryisoneareawherethePanelbelievessignificantbenefitscouldbederived.IfpoliceofficerscouldjointheMPSatrankshigherthanconstabletheMPScouldchangeitsprofileradically.Discussionsaroundprogressionandcultureoftenidentifya‘permafrost’inthemiddleoftheorganisationwhichmitigatesagainstchange.Multi-pointentrywouldaffordanopportunitytochallengetheprevailingculturalnormswithintheorganisation.Bringinginexperienceandexpertisefromoutsidecouldbehugelybeneficial.Thereareprecedents–thearmedforceshaveanofficerclass–andwhileitcouldbearguedinthecaseoftheforcesthatthisinhibitsdiversity,itdoesdemonstratethatfrontlineexperiencemaynotbeanecessaryrequirementforsuccessatmoreseniorlevelsoftheorganisation.Anothermodelistheprisonservice,whereseniorofficersstart‘onthelandings’inordertounderstandthedynamicsofprisonlife,butthenhaveacceleratedpromotiontogovernor.
6.14ThePaneldiscussedthismulti-pointentrywithmanycontributorstotheInquiry.Itisapolemicissue;seniorMPSmanagersdonotseeitasimpossiblebutareunderstandably
cautiousabouthowitwouldsuccessfullybeimplemented.Theywerealsoconcernedthatveryfewapplicantswouldbesuccessfulandthattheriskofitgoingwronginthefirsttranchewouldjeopardisethefutureoftheprogrammeandcarryrealrisksforthatfirstwaveofofficerswhowerepreparedtojoinatarankaboveconstable.
I’m in favour of the principle, no other organisation has a single point of entry, but don’t underestimate the huge challenge it presents and the importance of time on the beat, but this does need revisiting. Training would be crucial and given the culture the first few entrants would probably have difficulties.
Kit Malthouse, Chair MPA
6.15Policeofficerswithinfocusgroupsandinterviewswereagainstthisconcept,emphasisingtheneedforexperienceateveryrankfromconstableupwardsinordertrulytounderstandthebusinessofpolicing.Concernswereraisedabouttheperceivedlackofcredibilityanyofficersrecruitedthroughmulti-pointentryforthepurposesofincreasingthediversityofofficersofmanagementrankswouldleadtoabacklashfromofficerswhofelttheywereunfairlygiventheopportunitypurelybecauseoftheirraceand/orgenderratherthanhavingtoworkanddemonstratecommitmentandcompetenceasapoliceofficer.Fromthefeedbackreceivedinthefocusgroups,thereisabeliefthatofficerswoulduniteagainsttheproposal.Thiswassupportedbythe
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negativefeedbackreceivedbytheHomeOfficetotheirconsultationontherecentgreenpaperwhichputforwardtheideaofmulti-pointentry.
6.16NationalorganisationssuchasACPOandHMIChighlightedsignificantrisksinintroducingmulti-pointentrywithoutathoroughconsiderationofthepracticalandculturalimplications,bothintheshortandlongerterm.ExampleswereprovidedfromothercountrieswhohadintroduceddirectentrytoseniorrankswithinthepolicesuchasPortugalwhointroduceddoublepointentry.Thosewhowererecruitedintoseniorpositionswerelargelyfemalewhothenhadtomanageapredominantlymaleworkforce,whichcreatedunintendedandunanticipatedconsequences.Giventheseimplications,HMICarguedtheneedforacomprehensive,measuredandwellresearchedexaminationoftheconceptandthePanelrecommendsthatinthispieceofworkiscarriedoutatanationallevelbearinginmindanymovetowardsmultilevelentrywouldrequireachangeinnationalpoliceregulations.TheInquirywouldencouragetheHomeOfficeandNPIAtoholdanationaldebateonthisissue.
6.17Werecognisethatmulti-pointentryisaradicalchangetothestatusquoandthattherearesomewhobelievethatitwouldbedivisiveand‘unworkable’.However,thePanelbecameincreasinglyconvincedthatmultipointentrycouldbringawiderangeofbenefitstotheMPSandpolicingingeneral,
whichgofarbeyondincreasingdiversity.Inourviewthepotentialbenefitscould:• enhancetheMPS’sabilitytoattractthe
brightestandthebestindividuals;• improvethecultureoftheorganisation;• directlybenefitfromtheexperiencesand
skillswhichthosewantingtoembarkonasecondcareerintheMPSwouldbring;and
• allowtheMPStobetterpositionitselfwithinanincreasinglycompetitiveLondonLabourmarket.
6.18ThePanelwelcomestheagreementoftheMPAtoorganiseaday-longsymposium,chairedbytheMPAChairKitMalthouse,onmulti-pointentryassoonasispracticable.Participantswillofcourseincludethetripartitepartners–APA,ACPOandtheHomeOfficebutwillextendmuchmorewidelytoallowtheexperienceofthearmedforces,theprisonservice,theprivatesector,thinktanksandacademicstoinformthedebate.Fortoolongthepotentialbenefitsofextendingthepoolofapplicantsforseniorjobsandofacceleratingpromotionhavebeenthesubjectofdesultory,anecdotaldiscussion.Apracticalsymposiumwilldeliverrobustandspecificrecommendations.
6.19Thatsymposiumwill,thePanelbelieves,kickstartafundamentalreviewoftermsandconditionsforpoliceofficersmoregenerally.Multi-pointentryisacentralplankofachievingamodernemploymentstructureforthepoliceservice.Wehaveidentifiedanumberofotheroutmodedpracticeswhich
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needurgentreviewandwhich,likemulti-pointentrywould,ifreformed,notonlybenefitofficersfromminoritybackgroundsbutthewholeworkforceand,byextension,theMPSasanorganisation.
6.20The30+scheme,wherebyofficersarere-engagedwithtaxfreelumpsumanddeferredpensionisamixedblessing.WefullyacceptthattheMPS,havinginvestedintraininganddevelopingstaff,willwanttoretainthosewhoarecontinuingtomakeapositivecontribution.Buttheobverseisthatpromotionopportunitiesdiminishandthereisaperceptionthatpostsarecreatedforlong-servingofficerswho,becauseofthetimescalesinvolvedandtheperiodatwhichtheywererecruited,arepredominantlymaleandwhite.Werecommendthereforethatabalanceneedstobestruck.
6.21ThesecondareaofconcernthatfeaturedprominentlyintheevidenceconsideredbythePanelistemporarypromotionandactinguptoamoreseniorrank.ThePanelisfirmlyoftheviewthattheprocessfordecidingwhoshouldbegiventemporaryoractingpromotionshouldbemanagedcentrally.Thecurrentdevolvedsystemgivestoomuchpowertoindividuallinemanagersandisnotperceivedasfairortransparent.
6.22VettingpolicyandpracticeintheMPSgivesrisetomuchangst.Again,thewholeprocessisperceivedtobeopaqueandinequitable.Weurgeathoroughreviewofthepolicyitself,thewayinwhichitisadministeredand,inparticular,thecommunication
strategyforinformingofficersandstaffofwhyandhowvettingisconducted.
6.23ManycontributorstotheInquiryidentifiedtheneedtoprofessionalisepolicingandtheimportanceofindividualstakingownershipoftheirprofessionalandpersonaldevelopment.Inthisrespectwehaveheardthatonesolutionmightbetoencouragethedevelopmentofapolicefoundationcourseavailablethroughhighereducationestablishments.ThisisanissuethatisraisedperiodicallybutwouldneedtobetakenforwardatanationallevelandtoanextentreflectsthepointsmadebyDrRichardStoneabouttheneedforofficerstohaveuniversitylevelqualifications.Thatsaid,thePaneldoesnotendorsethatviewdirectlyasitwouldexcludealargenumberofcapablepeopleand,couldpotentiallydiscriminateagainstBMEcandidatesintheshorttermandwethereforethinksomefurtheranalysiswouldbebeneficial.
6.24GreateruseofpositiveactionisanotherpotentialsolutiontoensuringmorepeoplefromBMEandfaithcommunitiesaresuccessfulintherecruitmentprocess(andwesaymoreaboutthecurrentpositiveactioninitiativescurrentlyinplacewithintheMPSlateron).ThisformedakeyelementoftheevidenceputforwardtousbytheMetBPA.Indeedtheyareinfavourofpositivediscriminationandaffirmativeaction.Botharecurrentlyillegalandwedonotsupporttheirstance.TheMPSisindiscussionwithEHRCaboutwhatmoreitcoulddointhisarea;theimplicationsofthe
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recentEqualitymayprovideausefultooltoincreaserepresentationforexampleACPOarelookinginto‘genuineoccupational’requirementsoftheEqualityActtoassistwithpolicingdiversecommunitiesand,inaddition,theActwillallowemployeestotakepositivesteps(‘positiveaction’)torecruitgroupswhoareunder-representedintheworkforcewheretheyhaveachoicebetweentwocandidateswhoareequallysuitable.ThisisnotthesameasallowingpositivediscriminationandtheEHRCwillpublishguidanceontherangeofactionsemployeeswillbeabletotake.Whatevertheoutcomeofthesediscussions,thefocushastobeongettingtherightcalibreofofficerrequiredtokeepLondonsafe.
“There are quite a lot of reasons why I think it might be better all round if the Met declared UDI from national pay negotiations, terms and conditions. I think what happens nationally doesn’t work for the Met; I think it doesn’t on ACPO selection, for instance, where we’re not looking for one person to fit in to a very small team with a set of skills and experience; we are looking for something much more generic and, and we are constrained by the various protocols that exists in terms of selecting ACPO ranks, but if there’s nobody in the pool, that’s not relevant in terms of race and diversity and faith, because, if they’re not there whatever system you have in place, you can’t choose them”.
Catherine Crawford, Chief Executive, Metropolitan Police Authority
Recommendation 4Amoreflexibleapproachtorecruitment,toincreasediverserepresentationatseniorranksanddeveloptheentireorganisationanditsperformance,isrequired.Thismeans:• organisinganationalsymposium,hostedby
theMetropolitanPoliceauthority(MPA),toexplorethebenefitsandpracticalityofmultipointentryforpoliceofficers,removingtherequirementtoprogressthrougheveryrank.
• instigatingdiscussionswiththeGovernmentontheissueofmulti-pointentry.
• investinginstreamliningthechannelfromPCSOtopoliceconstablesothatsuitablecandidatescanbefasttracked.
Recommendation 5WorkingpracticeswithintheMPSthatinhibitconfidenceinHRpoliciesshouldberevised.Thismeans:• reviewingthe30+schemetoensureitisnot
blockingprogressionforofficerswithlessservice;
• managingtemporaryandactingpromotionscentrally;and
• reviewingvettingpolicyandpracticetoensureitisfair,transparentandproperlyunderstood.
Retention
6.25ItisawasteofresourcesifthoserecruitedandtrainedbytheMPSsubsequentlyleave.This,ofcourse,isparticularlyseriousiftheMPSstrugglestoretainBMEofficersfollowingtheintensiverecruitmentanddevelopmentprogrammesaimedspecificallyatthem.
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6.26RetentionforBMEstaffwithintheMPShaslongbeenanareaofconcern.TheStephenLawrenceInquiryrecommendedtheuseofperformanceindicatorsinrelationtoretentionandthatpolicingplansshouldcontaintargetsforretention(recommendations2and64respectively).SimilarlytheMorrisInquiryandCREFormalInvestigationalsoidentifiedconcernswithBMEretention,particularlyearlyonininitialtraining.
6.27HoweverarecentHMICreport(DutyCalls:HMICInspectionofRaceEqualityCompliance2006/07)foundlittleevidencetosuggestthatmeasurestosupporttheattainmentofretentiontargetshadprogressedbeyondthecollectionofthedataandexitinterviews:
‘The energy applied to securing BME recruits has been substantial and ongoing….conversely the retention and progression of BME officers has not been supported by comparable resources, energy and innovation and the consequences will be felt in the foreseeable future.’
6.28TheDirectorofHumanResourceswasclearinhisinterviewbeforethePanelthattheMPSwasretainingitspersonnel:
“There is now a myth that we are losing people; we’re not, according to the attrition rates that I monitor weekly/fortnightly”.
6.29ThisisborneoutbyMPSdatathatrevealsturnoverhasdeclinedfrom6.5%duringthetimeoftheStephenLawrenceInquiry(1998/99)to4.4%in2007/08,withfurtherdeclinespredicted(MPSWorkforceDiversityPack,September2008).TheCharteredInstituteofPersonnel&Development(CIPD)inits‘EmployeeTurnoverandRetentionguidance’statesthepublicsectoraverageforemployeeturnoveris13.5%,withtheoverallemployeeturnoverfortheUKslightlyhigherat17.3%.Therefore,incomparisonwithotherpublicsectorbodies,theMPShassignificantlylowerturnoverrates.
6.30ItisalsoworthnotingthatmanyindividualsinterviewedbythePanelspokeoftheirloyaltytotheorganisation,evenwhentheyhadcomplaintsconcerningthecultureorindividuals.Whenaskedwhytheychosetostaymanyspokeoftheiraffectionfortheirrole:
“I love this job; it is a great job I’ve enjoyed being a Detective and investigating the hardest of crimes.”
Anon
6.30DatashowsthatturnoverofBMEofficershasalsodecreased;between1998/99and2007/08,from6.4%to3.7%(actuallylowerthantheMPSoverallturnover).RetirementaccountsforthemainreasonsofficersleavetheMPSoverall(42.9%during2007/08).HowevertheprimaryreasonforBMEofficersleavingtheMPSisresignation(52.2%
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during2007/08),andthispercentagehasonlyreducedslightlysince1998/99(57.9%).
6.31Whatthisindicatesisthat,proportionally,moreBMEofficersarechoosingtoleavetheMPSvoluntarilyincomparisontotheirwhitecounterparts.GiventheconsiderableeffortstobringmoreBMEofficersandstaffintotheorganisationthereisclearlyaproblemifasignificantlyhighproportiondonotwishtostay,forwhateverreasonthatmaybe.
6.32FurtherevidenceexaminedbytheCIPD(EmployeeRetentionandTurnover,September2008)stronglysuggeststhatsocalled‘pushfactors’(dissatisfactionwiththeirpresentjob)areagreatdealmoresignificantinmanyresignationsthanmostmanagersappreciate.TheCIPDfurtherstates:
‘It is relatively rare for people to leave jobs in which they are happy, even when offered higher pay elsewhere.’
6.33CIPDresearchalsohighlightedtheimportanceoffrontlinemanagersandhowtheirbehaviourrelatesdirectlytoemployeeengagement,jobsatisfaction,advocacyandperformance.Linemanagershaveacriticalparttoplayinstaffretention:
‘A perception of unfairness, whatever the reality when seen from a management point of view, is a major cause of voluntary resignations’, employees turnover and retention.’
6.34TheMPS,likemostorganisations,conductsexitinterviewsinordertomonitorthereasonsforpeopleleavingandtoidentifywaystoimproveretention.In2005theMPSHumanResourcesDirectoratesetupadedicatedcentralExitTeam.Thisteam,consistingoftworesearchersandaprojectmanager,waschargedwiththeroleoffindingoutwhypeopleleavetheMPS.
6.35TheExitTeamisresponsibleformakingcontactwithall‘prematureleavers’.TheExitTeammakesthreeattemptstocontactindividual‘resigners’byphone.Ifsuccessful,andtheindividualiswilling,anexitinterviewbytelephonequestionnaireisconducted.Iftelephonecontactisunsuccessfulapostalquestionnaireisdispatched.TheExitTeamalsoconductsface-to-faceinterviewswhererequested.Allofthesemethodsaredesignedtodelocalisetheinterviewprocessfromtheinterviewees’locationandmanagement.
6.36Analysisofexitinterviewdatashowsthat‘desireforcareerchange’isthemostfrequentlycitedreasonforleavingtheMPS.GiventhedisproportionatelevelsofBMEresignation,itisclearthatthisanalysisalonedoesnotdrilldowntotheappropriatelevelofdetail.Itisthereforeunclearthe
46 Race and Faith Inquiry Report
truemotivationsforacareerchangewhichmaybedrivenbyeitherpositiveornegativeexperiencesofemploymentwithintheMPS.
6.37Tosupportthisnotion,thePanelwouldliketodrawattentiontotheworkofProfessorSimonHoldawayspecificallyonresignations.ThroughhisstudyintoblackandAsianofficerswhoresignedfromthepoliceservice,ProfessorHoldawayassertsthatexitinterviewsareaninadequatetoolinunderstandingandaddressingtheissueofBMEretention.Resignationsarenotonedecisionbutaseriesofdecisionsaspartofanoverallprocess.Atthepointoftheexitinterview,whenaskedfortheirreasonsforresigningmostaredisillusionedandfedup.Therealreasonsfortheirunhappinessanddissatisfactionwiththeirworkingenvironmentarenotpickedupthroughtheexitinterviewprocess.
6.38Inviewofthedisproportionateresignationratesandlackofspecificinformationinrelationtotheirmotivationstoresign,thePanelrecommendstheMPSconductfurtheranalysisintoandemploymentexperiencesofBMEofficersstatingtheirreasonforleavingisduetoadesireforacareerchange.Thisresearchshouldbeconductedthroughaface-to-faceinterviewratherthanquestionnaire.Itmayalsobeusefultoamendtheexitinterviewquestionnaireinordertocapturemoredetailsintothemotivationsforchangingthecareertounderstandifitisbasedonnegativeexperienceswithintheworkplace.
Recommendation 6Disproportionatelyhighblackandminorityethnic(BME)resignationratesmustreduce.Thismeans:• analysingthereasonsforearlyresignations;• establishingamoresophisticateduseofthe
PersonalDevelopmentReview(PDR)systemtogiveearlywarningofdissatisfactionforindividualBMEofficers,allowingforintervention;
• identifyingkeypointsonthepromotionladderatwhichBMEofficersdisproportionatelyleave,andsettingretentiontargetsatthesepoints;
• reviewingandimprovingtheexitinterviewprocess;
• clarifyingtherespectiverolesofseniorofficerandlawyersdealingwithemploymenttribunals(ETs)andgrievances;and
• designatinganAssociationofChiefPoliceOfficer(ACPO)leadforgrievancesandETdecisions.
Progression
6.39AsignificantelementofthecontributionstotheInquiryfocusedonpromotionanddissatisfactionwithcurrentprocessesleadingthePaneltowonderwhetherMPSis‘progressionobsessed’.Afocusonprogressionreinforcesthehierarchicalmentalityofthepoliceserviceinwhichrewardsandstatusaregainedandevidencedbyprogressingupthecommandchain.Weheardfromourfocusgroupsandothersaboutthe‘distorting’effectithadontheorganisationwhentheactionsofsomeindividualsappeartobeguidedbynothing
47
morethanhowtheyclimbtheladderandthemeansofcollectingevidencetoenablethemtodothat.SuchconcernsaboutprogressiondonotseemtohaveregisteredwiththetenyearsaftertheLawrenceInquiryreviewsfromtheEHRC,theRunnymedeTrustandtheHomeAffairsSelectCommittee.Theyhavetakentoonarrowafocusandfedintoratherthanchallenged–a‘stickingplaster’mentalityinwhichprogressionbecomesthelatestgaptobepluggedafterrecruitmentandretentionhavebeentakencareof.
6.40Weidentifiedanumberofnegativeanddamagingconsequencesofthisapparent‘obsession’withpromotionincluding:• atendencyforstaff,andinparticular
officerstomovefromposttopostfrequentlywhichcanleadtoanegativeimpactonstaff,servicedelivery,destabilisationofrelationshipsandpartnershiparrangementswithlocalauthoritiesandotherkeystatutorypartners;
• seniorofficersspendinginordinateamountsoftimepreparingforselectionprocesseswhichistimenotspentdoingthejob;
• inabilitytoputinplaceeffectivesuccessionplanningstrategiesandmechanisms;
• encouragesshorttermpoliciesandpracticesasmanynewincumbentsintothevacantrolesseektomaketheirmark.
6.41ThePanelthereforeassertsthatawiderpeopledevelopmentapproachisneeded.
6.42WhilstprogressionshouldremainanaspirationforallsuitablyablestaffthePanelcannotstressstronglyenoughourcontentionthattheMPSdoesnotdoenoughtoencourageandsupportlateraldevelopment(despitetheeffortandthefindingsoftheMPA’sTalentManagementScrutiny).WearealsokeentostressthatthisisnotanissueconfinedtoBMEmembersofstaff.ItisamatterwhichcannegativelyaffectalloftheMPS’sstaff,theperformanceoftheserviceasawholeandconsequentlytheserviceprovidedtothosewholiveandworkinLondon.
6.43Lateralprogressionshouldalsobeencouragedandrewarded.Policingisanunusualcareerenvironmentinwhichithasnothistoricallybeenregardedasafailuretostayasaconstable.Manystaffwillremainatthegradetheystartedat,andasignificantcohortofPCswillretireatthatrank.Doingagoodjobdayinanddayoutisanintrinsicrewardinitselfandaservicetothepublic.MPSseniormanagementneedtosendoutthatclearmessagethatreinforcestheviewthatprogressionisnottheonlymarkerofsuccess.
6.44MPSmanagersalsoneedtoencourageanddevelopothersystemsofreward.Thereareotherkindsofrewardssuchasdignityandrecognition.Theseusuallyfallundertheheadingof‘valuingdiversity’andweareconsciousthatprobablyfeelslikeanemptymanagementphrasetosomestaffassociationsandotherMPSemployees.Ablandcalltovaluediversitywillbe
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meaninglessunlesstheMPScanshowhowinpracticaltermstheycandemonstrateitindeedandnotjustinwordstotheextentweentirelyagreewiththeCommissioner’sviewsabout‘actionsnotwords’.WecallupontheMPSmanagementtoensurethattheyinculcateanewapproachwhereMPS,staffasawhole,aremadetofeelpositivelyincludedindeliveringthevisionandvaluesoftheMPS.WewanttoseemonitoringandoversightofallstaffissuestobeincludedintheMPSstaffsurvey.
6.45Inordertoconvincetheorganisationthatlateraldevelopmentisequallyrewarding,thereismuchtodotoprovidethosedevelopmentopportunities.AnalysisshowsthatmanypartsoftheorganisationremainclosedtominoritygroupsandweheardfromseveralcontributorsabouttheadditionalchallengesexperiencedbyBMEofficersinspecialistOCUs.Havingsaidthat,wealsoheardsomegoodpractice,includingtheworkdonebyTridenttoattractBMEdetectivesandtheopendaysheldbythefirearmscommandCO19.Inordertoremovethisbarrier,allOCUsshouldberequiredtoproduceastrategyonhowtheywillincreaserepresentationwithintheirunits.ThisshouldbesubmittedtoDiversityBoardandtheMPAwithclearactionplansandtimescales.DiversityBoardshouldensureeffectivemonitoringisinplace.
6.46Alackofcareerprogressionisoneofthemainreasonspeopledecidetochangetheircareer.IftheMPSistosucceedinretainingBMEstaffithasworkedhardtorecruitin
thefirstplace,itmustfocusonthebarrierstoprogressionandcareerdevelopment.
6.47Weencounteredrealstrengthoffeelingfromthefocusgroupsinparticularabouttheneedforofficersandstaffseekingalateralmoveintootherpoststoobtainapprovalfromtheirlinemanagers.Whilewecanallsympathisewithanyconscientiousmanagerwhowantstoenhanceperformanceinhisorherpartofthebusinessbyretainingskilledandexperiencedstaff,therecanbenojustificationforeffectivelyblockingtheprogressionofindividuals.Nocomparablepublicsectororganisationofwhichweareawareoperatesavetopolicyofthisnature,whichinhibitsindividualprogressandopportunityandmustalsomilitateagainstspecialistunitsbeingfreetorecruitfromafullydiverseworkforce.Itisclearthismustbeaddressed.
“As I said to Boris Johnson, when we had a meeting the other day, he asked me, has race relations improved inside the Service? And I said, Well, if you call when I joined in 1980, I was called a nigger. Well, now, I’m treated like one. So, no, it hasn’t improved, it just comes in a different way, from overt to covert and that’s what we need to address. So what I’m saying, it looks like coffee, smells like coffee, tastes like coffee, it is coffee, it is coffee and that’s what we’re dealing with, clear and simple.”
PC David MacFarlane, Executive Member, Metropolitan Black Police Association
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6.48ThroughouttheevidencegatheringprocessitwascleartherewasarealdifferenceinviewbetweenseniorMPSandnationalmanagersandtherespondentsinlowergradesandrankswhotookpartinthefocusgroupsandinterviews.Intheirviewtherewereconcernsoverthefairnessandtransparencyofthepromotionprocessesadministeredinternallywhicherodedconfidenceinthesystemtoappointtherightpersonforthejobbasedontheirskillsratherthanfavouritismand‘facefitting’withthestatusquo.
6.49TheMPSPromotionPolicyestablishesclearguidanceandaccountabilityandsetsoutcorporatestandardsformanagingpoliceofficerpromotionanddetectiveselection.Thepolicyisaccompaniedbyastandardoperatingproceduredocumentwhichdescribestheprocedurestobefollowedforeachselectionprocess.
6.50Policeofficers,regardlessofrank,raceorfaith,werealmostunanimousintheirviewthattheindependentlyadministeredpromotionprocessesforsergeantsandinspectorsarefairandtransparent.UptotherankofinspectorpromotionprocessesfollowthenationalNPIAprocesses.TheMPShasitsowninternalprocessesforpromotiontoChiefInspector,SuperintendentandChiefSuperintendentanditisaboutthetransparencyandfairnessofthesethatconcernsweremanifest.
6.51WhenrespondentstotheInquirywereaskedtoprovidetheirfeedbackonthepromotion
processes,theygenerallyacknowledgedthattheMPShasworkedhardtocontinuallyimprovetheprocessesandsystems.However,progressionisoneareawhichprovokedstrongfeelingsacrossthewholeorganisationregardlessofrole,rank,raceorfaith.AnumberofseniorMPSmanagersinterviewedbythePanelraisedgeneralconcernsaboutthepromotionprocesses–thatthesystemremainsaprobleminthatitrarelyprovidessufficientcandidatesandthattheMPShaslurchedfromoneprocesstothenextwithoutsettlingononeandmakingitwork.Theadequacyofthesupportprovidingtoofficerswhonearlymakethegradewasalsocriticised.Thereisanopportunitytoreviewhowtheseofficersaresupportedandreassessed.
6.52Officersgenerallyfeltthatpromotionprocesseslackedtransparencyandtherewaspotentialformisinterpretationofthepromotionpolicy.Whilstsomeoftheconcernsrelatedtothedesignofthesystemsinplace,muchofthisfocussedonthosewhooperatedthesystemsratherthanthesystemitselfincludingconcernsabouttherankofassessorsandwhethertheyweresufficientlyseniortotheranksbeingassessed.Therewerealsoconcernsabouttheuseofinternalassessorsforappointmentsaboveinspector.
6.53RespondentsfeltthatBMEpromotionstalledafterinspectorlevelbecausetheprocesswasnolongerindependentandthereforebiasandsubjectivitywasallowedtoinfluencethedecisionmaking.
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TheperceptionthatpromotionbeyondinspectordisadvantagesBMEapplicantsisunderstandable;inthepasttwoyearsoutof47applicantsforthesepostsonly4(9%)weresuccessfulwhereasoutofthe793non-BMEapplicants,186(23%)weresuccessful.WenotethattherehasbeenmoresuccessduringtheperiodwhenthePanelwastakingevidence.
6.54Itisimportanttofactorinlengthofservicewhenconsideringprogressionrates.Thevastmajorityofofficersabovetherankofinspectorhave15yearsormoreservice.Puttingthelengthofserviceintocontextproducesamuchmoreaccurateandreliablepictureofprogression.Whenlengthofserviceistakenintoaccount,asignificantlysmallerproportionofBMEofficershavemorethan10yearsservice(nationallyaround37%ofBMEofficescomparedto55%whiteofficers).
6.55Asignificantamountoffeedbackwasreceivedinrelationtoassessors,whoareresponsiblefortestingcandidateswithinthedesignedassessmentprocessandidentifyingdemonstrableevidenceofsuitabilityforimmediatepromotion.SomeBMErespondentsfeltthatalackofdiversitywithintheassessorpoolwascontributingtothelackofBMEofficersatseniormanagementlevels.Respondentsfeltthatassessorsrecruitedintheirownimagewhichwascontributingtoalargewhitemalecohortofsuccessfulapplicants.Somefeltthataswhiteassessorswouldassesswhitecandidatesfavourably,andthereforeBME
assessorsarenecessaryinordertoensurethatBMEcandidatesarealsosubjecttoensurethereisnoperceptionofbias.Amoreproportionatebalancecanonlybeanadvantage.
6.56WhilstthePanelagreesthatdiversitywithintheMPSmustbereflectedacrossthewholeorganisationatalllevelsandroles,andthatthereismuchtobegainedfromutilisingtheexperiences,skillsanduniquequalitiesthatadiversepanelcanbringtotheassessmentprocess,itdoesnotsharetheviewfromasmallnumberofrespondentsthatBMEassessorsareapre-requisiteforBMEcandidatestosucceed.TheMPSHRDirectormadeavalidpointinhisinterviewwhenhesaidthathedidnotwant‘diversityforthesakeofdiversity’;assessorsmustbeselectedonthebasisoftheirabilitytoassessobjectively,basedonclearevidenceratherthansubjectiveopinions.ThePanelagreeswiththisbutrestatestheviewthatassessorsneedtobemorerepresentative.
6.57InhisevidencetothePanel,MartinTipladytoldusthatpoorperformingassessorsareremovedasaresultofthequalitycontrolsystems.However,weheardevidencefromarangeofindividuals(someofwhoarethemselvesassessors)whichleftusunconvincedthatthoseassessorswhoadoptpoorpracticearenotdealtwithinasufficientandappropriatewayandarethereforeallowedtocontinueinthisimportantandinfluentialrole.Wedonotassertthatallassessorsoperateinthiswayonthecontrary,webelievethatthereare
51
manyassessorswhoperformthisroleinaconscientiousandcommittedwaydespitetherebeingnoadditionalrewardforthetimetheycommit.WethereforerecommendthattheMPSreviewsthewayinwhichpoorperformingassessorsaremanagedanddealtwith.
6.58TheMPShasrecognisedthatthereisaneedtoprovidespecifictrainingforassessorsondiversityawarenessandaprogrammewasintroducedinApril2009.ThePanelissupportiveofthisintervention.
6.59Forthepurposesofrecruitment,promotionandperformancemanagement,thepoliceserviceinEnglandanWalesusestheIntegratedCompetencyFramework(ICF),consistingofanumberofcorecompetenciesforpolicingroles,oneofwhichis‘RespectforRaceandDiversity’.
6.60Ingeneral,respondentswereconvincedthattheICFwasthemosteffectivetooltotestacandidate’sabilitytodothejob;rather,itwasfeltthatittestedtheabilityofthecandidatetofillintheform.Itmeantcandidatesprovidingevidenceofmeetingthecompetenciesfocussedonindividualexamplesratherthanevidencingconsistentandsustainedoutcomes.SomealsofeltthattheICFdidnotallowcandidatesdemonstrateexpertiseoutsidethecompetencies,likelanguageskillsorknowledgeofothercultures.Manyalsofeltthatitdidnottestthemanagementabilityofcandidates.
6.61ThePanelidentifiedaneedtoprovidefurtherguidancetobothapplicantsandthoseassessingwrittenapplicationsagainstsuchcompetencies.
6.62ThePanelhearddisturbingexamplesofwhereBMEofficerswerenamedbywhiteofficersintheirapplicationformsandinterviewsforthepurposesofprovidingevidencetomeettheequalityanddiversitycompetency(‘RespectforDiversity’)requiredforpromotion.Thisphenomenonwasnotlimitedpromotionbutalsooccurredwiththepersonaldevelopmentreview(PDR)process.ExamplesofthisincludedBMEofficersallegedlybeing‘mentored’bymorethanoneofficerandtheconcernthatofficerswerebeingcitedinapplicationformsandinterviewswithouttheirconsentorknowledge.Wewantthisprocesstostop.Mentoringmustbeprimarilyforthementee,notthementor.
6.63SuchfindingsexposethedeficienciesofacompetencyevidencebasedsystemwhichhadtheunintendedconsequenceofcreatingBMEandotherminoritygroupsofofficersandstaffastargetsformajoritygroupofficerstomeettheirequalityanddiversitycompetency.
6.64RespondentsalsofeltthattheICFencouragedatickboxapproachtodiversityandothercompetencies.Thismeantthatonceanapplicanthadsecuredoneortwoexamplesdemonstratinghowtheymetthestandardthatwasallthatwasrequiredandtherewasnoneedtodemonstrate
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ongoingcommitmentbeyondthis.Oncetheexampleshadbeensecuredtherewasabeliefthatdiversityhadbeen‘done’.
6.65ThePanelwelcomesNPIA’splantorevisetheICFandestablishasimplifiednewpoliceprofessionalframeworkbyDecember2010inordertosupportthedeliverymoreeffectiveHRpolicyandprocesses.
6.67AsaresultoftheMPATalentManagementandSuccessionPlanningScrutinyin2007theMPSestablishedtheEquiptoAchieveinitiative,apositiveactionschemeaimedatdevelopinghighpotentialBMEsergeantsandinspectors,withaviewtoequippingthemtojointhenationalhighpotentialdevelopmentscheme.
6.68ThePanelcouldnotidentifywhatcouldbedescribedasacoherentprogrammeestablishedtoassistpeopleinprogressing.InafocusgroupheldwithparticipantsfromtheprogrammethePanelwasleftwiththeclearimpressionthatmanyofthemdidnotknowwhattheyweregettingfromit,orwhattheyweresupposedtoget.Theofficerswereatverydifferentlevels–fromconstabletoinspector–andhadquitedifferentneeds.Therewasnoclarityaboutobjectivessuggestingthatthecontentsandstructureofthecoursechangedonanadhocbasistomeettheneedsoftheparticipants.Hencesomesaidthattheprogrammehad‘notbeendesignedproperly’intermsofoutcomesandlateraldevelopment.Manysawitasa‘short-termfix’inanorganisationthatfailedtoembedpreviousinitiativesandgavenosign
thatitunderstoodhowdamagingthatwastomoralandtothecredibilityof(yet)morenewinitiatives.
6.69OnthisbasisitisimportantthatafullevaluationoftheprogrammeisundertakenbeforetheMPSlaunchesPhase2ofEquiptoAchieve.AsfarasthePanelisawarethishasyettobedone,soanytenderingforPhase2canonlybebasedonlimitedinformation.
6.70TheobservationsofEquiptoAchieveraisedtwobiggerissues:howwellplannedisHRtrainingpolicy;andwhatpositiveactionpoliciesdoestheMPSneedtodeveloptoimproveitsdiversityprofileingeneralanditsraceandfaithprofilespecifically?IntermsofHRtraininggenerally,theHRDirectorateproducesatrainingplanannually.OurconcernisthatifEquiptoAchieveisrepresentativeofthequalityoftheplanninganddeliveryofHRtrainingitisnotabeacontouphold.Itfelttouslikea‘stickingplaster’approachtotheproblemofprogressionandtalentmanagementidentifiedinreportsinthepasttwoyearsratherthananintegratedandwellthoughtthroughpartofHRstrategy.ThisisnottosaythatanHRstrategydoesnotexist.Howeverweremaintobeconvincedthatithasbeenasclearlyarticulatedandcommunicatedasitcouldbe–andthatpeopledevelopmentisseenasanintegralresponsibilityofallsupervisorsintheMPS.
6.71Thedevelopmentandprogressionneedsofpolicestaffalsocallforaholisticand
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professionalapproach.Thisisimportantfortheindividualmemberofpolicestaffbutalso,withincreasedcivilianisationandtheincreaseduseofpolicestaffinspecialisedfrontlinesupportroles,fortheeffectivenessoftheorganisation.Manypolicestafffeelthattheyare‘secondclasscitizens’indeed,asonecontributortotheevidencesessionsputit,withintheMPSthereisarguablyaseventhstrandofdiversity,withpolicestafffeelingdiscriminatedagainstonthegroundsoftheirstatus.
6.72 Mentoringiswidelyrecognisedasaneffectivemeansofincreasingconfidenceandselfawarenessandclearlyhasaroletoplayinpreparingcandidatesforpromotion.WhiletherearegoodexamplesofindividualmentoringforBMEofficers(thoughpossiblynotstaff)intheMPS,thesetendtobeinformalandadhocarrangements.Mentorsneedtobetrainedandsupported.And,crucially,thepurposeofmentoringmustbeclearlystructuredtobenefitthementee,nottoenhancethecurriculumvitaeofthementor.Phase2oftheEquiptoAchieveshouldincludeaformalisedandstructuredmentoringschemedesignedtohelpthementeessucceed.
Recommendation 7WithintheMetropolitanPoliceService(MPS),thetransparencyandfairnessofinternalpromotionprocessesneedstoimprove.Thismeans:• settingoverallblackandminorityethnic
(BME)progressiontargets.
• removingtherightofmanagerstovetostaffandofficersapplyingforpromotionortransfertospecialistposts;
• makinglateraldevelopmentopportunitiesmorewidelyavailablebyensuringspecialistunitsareheldaccountableforincreasingopportunitiesforminoritystaff;
• developingastrategyandsupportingactionplantoincreasetherepresentationofMPSassessorstoincludemoreBMEandfemalestaff;and
• appointingexternalassessorsforpromotionprocessestotheranksofinspectorandabove.
Recommendation 8Internalprocessestoimproveprogressionanddevelopmentofblackandminorityethnic(BME)officersandmembersofpolicestaffneedtobestrengthened.Thismeans:• ensuringthatallsupervisorsinthe
MetropolitanPoliceService(MPS)recognisethattheyhaveresponsibilityforpeopledevelopment;
• designingandimplementingawelldevelopedandadequatelyresourceddevelopmentprogrammeforpolicestaff;
• integratingphase2ofEquiptoAchieveintotheoverallHumanResourcesStrategyandeffectivelycommunicatingitsaimsandbenefits;and
• implementingaformal,structured,mentoringschemeexplicitlydesignedtobenefitmentees.
Governance
7.1 Althoughoutsidethetermsofreference,itbecameclearwhenthePanelinterviewsstarted,thattheroleoftheMPAcouldnotbeignored.GiventhescrutinyandoversightroleoftheMPAaswellastheresponsibilityforappointingACPOofficerswithintheMPS,itisrighttoexaminetheroleoftheAuthorityintermsofleadershipandtheeffectivenesswithwhichitfulfilsitsscrutinyrole.
7.2 TheMPAwassetupin2000toscrutiniseandsupporttheMPSandimprovepolicingandthetrustofcommunitiesinLondon.TheAuthoritywasestablishedintheaftermathof(albeitnotasadirectresultof)thepublicationoftheStephenLawrenceInquiryReportandtookitsequalitiesresponsibilitiesextremelyseriously.Withinitsfirstadministrationitundertookthreesignificantreviewsinthisarea–abestvaluereviewofequalities(inconjunctionwiththeGLAgroup),ascrutinyintotheuseofstopandsearchandinstigatedtheMorrisInquiry.Theresourceallocationduringthistimealsoreflectedtheemphasisplacedonequalities,bothintermsofstaffnumbersandbudgetspend,asdidthecommitteestructure,initiallythroughtheConsultation,DiversityandOutreachCommittee(thislaterbecametheEqualOpportunitiesandDiversityBoard).InternaldiversitymonitoringwasalsodonethroughtheHumanResourcesCommittee.
7.3 Whilstitscommitmentisclear,moreimportantisanassessmentofwhetherithasbeensuccessful.Theevidencegatheredthroughoutthereviewwouldsuggestthatithas,butnottotheextentitwouldhaveexpected.WhilstManagementBoardmemberspointedtoapositiverelationshipwiththeMPAwithbothsupportandchallengeprovided,officersandstaffinterviewedaspartoftheInquiryaswellasthosethatparticipatedinthefocusgroupsdidnotsharethisviewandquestionedtheextenttowhichtheAuthorityhaseffectivelydischargeditsscrutinyrole,particularlyinrelationtotherecruitment,retention,progressionanddisciplineofBMEstaffandmoregenerallyintermsofinternaldiversitymatters.
7.4 SomeintervieweesreferredtothesuccessofEqualOpportunitiesandDiversityBoardandnotedthepositivesupportanddirectionprovidedbyaseparateEqualityandDiversityUnitwithdedicatedpolicyofficersandaHeadofUnit.Theevidencesessionsalsoindicatedthatasaresultofthechangeofadministrationandthesubsequentoverhaulofthecommitteestructure,andthechangestointernalstructuresoftheMPA(includingadecisiontoabolishtheHeadofEqualitiesandDiversitypostinJuly2008)therewasalackofconfidenceinthenewstructurestoimprovethesituation.ItistruetherehasbeenareductionintheproportionofMPAresourceallocatedtoequalityanddiversity,butthiswasdoneasareflectionoflackofresourcesavailabletootherpartsoftheMPAthatundertakekeyscrutinyroles.And
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thereareseveraldedicatedequalitiesofficerstoprovideprofessionaladvice,supportandchallenge.
7.5 TheevidencegatheredthroughouttheInquirythrowsupsomeinterestingparallelswiththecriticismslevelledattheMPS–includingafailuretoshowadequateleadershipinthisarea,andinabilitytosufficientlyembedequalityanddiversityintoeverythingtheMPAdoes(internallyandexternally),leavingitasaresponsibilityofafew.Alackofpro-activity,alackoffocusonlong-termdeliveryandatendencytowardsfire-fightingwerealsoidentifiedaskeytraits.
7.6 Asnotedabove,therehavebeensomesignificantchangesinthelastyear.TheChiefExecutiveoftheMPAhasmadeacommitmenttoreviewtheeffectivenessoftheinternalchangesinduecourse.AllMPAstaffhavereceiveddiversitytrainingaimedatensuringtheyareequippedtoaskthechallengingquestionsoftheMPSthatshouldbeexpectedofapoliceauthority.ThereisalsoacommitmenttotrainMPAmemberswithinthenext12months.
7.7 TherehavebeenotherchangesthatshouldalsoimpactonthefocusandleadershiptheMPAprovidesinthisarea.ThethenChairoftheMPA,MayorBorisJohnson,hadamanifestopledgetoincreaseBMErepresentationwithintheMPSwhichisnowreflectedintheMPA’snewstrategicframework,MetForward.ThisInquiryisthestartingpointforthatrenewedfocus
inthatitwillprovideanactionplan,fromwhichprogresscanbemeasured.ThisshouldprovidethestrategicleadershiprequiredtoMPSManagementBoard.KitMalthouse,nowChairoftheAuthority,agreedwiththePanelthatthesuccessfulimplementationoftheactionplanarisingoutofthisInquirywouldbeincludedwithintheCommissioner’sPDR.TheInquirywouldgofurtherandsuggestthattheDirectorofHumanResourcesandtheDeputyCommissionershouldalsobeheldaccountablethroughthePDRprocess.
7.8 TherearesomespecificareaswheretheMPAcouldexerciseitsinfluencebetter.Policeauthoritiesareresponsibleforappointingallofficersabovechiefsuperintendent.Inthelastnineyears,veryfewoftheappointmentsmadehavebeenfromaBMEbackground.InpartthishasbeenbecauseofthelimitednumbersapplyingandinthisrespecttheMPA,likeotherpoliceauthorities,hasonearmtiedbehinditsback.TobeeligibleforpromotiontoACPOranks,chiefsuperintendentsmustparticipateinanationalassessmentcentreandsuccessfullycompletetheStrategicCommandCourse,andveryfewBMEofficershavebeensuccessfulin2008/9,noBMEcandidatewasdeemedsuitable.TheMPAhasnotbeensufficientlychallengingofthissituationeitherwiththeMPSinensuringitisprovidingcareerdevelopmentsupporttochiefsuperintendentstogetthemtothestandardtobeacceptedontotheprogrammes,ortoCentrexandnowtheNationalPolicingImprovementAgency(who
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runtheprocesses)inrespectofwhetherthereisanyculturalbiaswithintheirselectionprocesses.Wearenotsuggestingthatthereisanysuchbias,butinthePanel’sview,thereisclearlyaproblem.Attheveryleast,NPIAshouldbereviewingtheschemesandprovidingpoliceauthoritieswithanassurancethatthereisnot.
7.9 NotwithstandingthenationalchallengesaroundACPOappointments,theMPAdoeshaveafurtheropportunityfortheMPAtoprovideleadershipandinfluenceoverseniorleaderswithintheMPSinensuringthatastrongperformanceonequalityanddiversityisanessentialspecificationwithinjobdescriptions,anessentialrequirementforselectionandismonitoredandevaluatedthroughthePDRprocess.
Recommendation 9TheMetropolitanPoliceAuthority(MPA)mustreinforceitsoversight,scrutinyanddirectionofMetropolitanPoliceService(MPS)diversitystrategyandperformanceandaddressthechallengeswhichcurrentlyexistwithintheMPA.Thismeans:• strengtheningtheequalityanddiversity
expertisewithintheorganisationatasufficientlyseniorlevelthroughtheappointmentofaHeadofDiversity(partlyactioned);
• arrangingfortheHeadofDiversitytositontheMPA’sSeniorManagementTeam;
• reviewingandmakingimprovementstoensureequalitiesareintegratedthroughoutALLoftheMPA’sworkandinparticularitscommitteesandsubcommittees;
• reviewingthefocusandtermsofreferenceoftheMPACommunities,EqualitiesandPeopleCommitteeanditssub-committees;
• ensuringequalitiesisadequatelyresourcedinthecurrentrestructuringexercisetodeliverMetForward;
• providingequalityanddiversitytrainingforMPAmembersandstaff;
• communicatingmoreeffectivelywithitspartnersandstakeholdersaboutitsprioritieswithregardtoequalityanddiversity;
• beingexplicitaboutitsexpectationsofseniorpoliceleadersthroughtherecruitmentandpromotionprocessforAssociationofChiefPoliceOfficer(ACPO)officers;and
championingthecaseforchangeinnationalstructuresthroughtheAssociationofPoliceAuthorities(APA).
59 Conclusion
8.1 Sincewebegantakingevidence,thesandshaveshiftedandtheycontinuetoshift.ActingupontherecommendationsinourinterimreporttheMPShasmovedresponsibilityforequalityanddiversitycentrestagetothepersonalremitoftheDeputyCommissionerandhaspublisheditsnewdiversitystrategy“AchievingEqualityImprovingConfidence”.TheHomeOfficehaspublisheditsEqualityDiversityandHumanRightsStrategyforthePoliceService,whichre-emphasisesthetripartitedutiesofalltheplayersinthepolicingworldtoworkinamorefocussedandjoinedupwaytoimprovefairnessoftreatment.TheMetBPAhaslifteditsboycottofrecruitmentactivitiesandisnowworkingconstructivelywiththeDeputyCommissioner.SincethePanelcompletedtakingevidence,twopromotionboards,tochiefinspectorandsuperintendent,haveincreasedthenumberofBMEseniorofficersattheseranksfrom11to19andfromtwotosevenrespectively.TheMPAhasrestructureditssupportstaffingandisintheprocessofrecruitingaseniormemberofstafftoheadupitsequalitiesandengagementteam.
8.2 Complacencythoughwouldbeirresponsible.FollowingtheconvictionofAliDizaei,someveryfoolishandill-informedmediacoveragesuggestedthatconcernsaboutfailuretoensureinternalfairnessofopportunityhadbeenoverdone.Thisisnotourview.Everythingweheard,andeveryopinionweformed,basedonwhatweheardandfromwhatweknewfromourcollectivespecialisedexperiences,pointedtoaneedforafresh
andenergeticcommitmenttomakingtheprinciplesofequality,diversityandhumanrightsapracticalrealityforpeopleintheMPS.
8.3 Wehavemadeanumberof,wetrust,constructiverecommendations.Inconclusionwewouldsingleoutthreeforparticularattention.• Linemanagersshouldnolongerhave
therighttovetomembersoftheirstaffapplyingforpromotionorforsidewaystransferintodevelopmentposts.Webelievethisdisproportionatelydisadvantagesminoritygroups,womenaswellasBME,butitisunfairtoeveryoneandremovingthisrestrictionwillenrichopportunitiesforindividuals,reduceresentment,improvemoraleandgivemanagersacrosstheMetawiderandmoreelectricpoolofcandidatesfromwhichtoselect.
• Themeritsofmulti-pointentryshouldbethoroughlyexaminedintheMPA’snationalsymposiumandaconclusionreachedandactedupon.AgainthepotentialbeneficiariesarenotjustfromBMEcommunities.Theyareindividualsfromallbackgroundand,crucially,thepoliceserviceitself.Openinguptheseniorlevelsofthepolicetopeopleofdifferentbackgrounds,cultures,races,faithsandlifeexperiencescanonlymakeleadingandmanagingthiscomplex,andvitalbusinessmorecreativeandeffective.
• Lastly,wearedeterminedthatmomentumshouldbemaintainedand
60 Race and Faith Inquiry Report
thisisthejoboftheMPA,itsChairandtheMayorofLondon.SoourrecommendationthattheCommunities,EngagementandPeopleCommitteeshouldoverseetheimplementationofour(andother)raceandfaithrecommendationsandmonitorprogressagainsttheMPS’sactionplanisparamount.Asindividualswewillexpecttoseehardevidencethatthisishappeningconsistentlyandthatoccurringacrosstheboardasaresult.
8.4 ThisreportisallaboutpeopleintheMPS.Theydeserveouractivesupport,respectandencouragement.AsdoestheMPSitself.
61 Appendices
A Contributions to the Inquiry •PanelMeetings •ReferenceGroup •WrittenSubmissionsandFocusGroups
B Methodology
C Terms of Reference
D Bibliography
E Focus Group Summary
F Analysis of recruitment, retention and promotion
G Acronyms
62 Race and Faith Inquiry ReportAppendixA:ContributionstotheInquiry
Panel Interviews
MPS Officers and staff interviews:Steve Allen–DeputyAssistantCommissionerHelen Ball–ChiefSuperintendentOperationTridentSir Ian Blair–FormerCommissionerFiaz Choudhury–InspectorBill Griffiths–DirectorofLeadershipDevelopmentAlfred Hitchcock–DeputyAssistantCommissionerRod Jarman–DeputyAssistantCommissionerDenise Milani–Diversity&CitizenFocusDirectorateBob Quick–AssistantCommissionerSir Paul Stephenson–CommissionerSultan Taylor–ChiefSuperintendentMartin Tiplady–DirectorofHR
MPS Staff Associations:Andy Garrett–MPSDisabilityStaffAssociationAlfred John, David McFarlane, Leroy Logan and Patricia Fenton–BlackPoliceAssociationLee Jane Yates–ChairoftheMPSChineseandSEAsianStaffAssociationMat Shaer–JewishPoliceAssociation
Trade Unions:Russell Mills–PROSPECT(MPS)Stan Benefield–Unite(MPS)
MPA interviews:Catherine Crawford–ChiefExecutiveKit Malthouse–ViceChair(attimeofinterview)Membersoftheauthorityalsoparticipatedinafocusgroup
Independent Interviews:Professor Simon Holdaway–ProfessorofCriminology,SheffieldUniversityDoreen LawrenceDr Richard StoneBen Owusu, John Azar, Harmander Singh and Marcia DaCosta–MPSRaceIndependentAdvisoryGroup(IAG)
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Angela O’Connor–ChiefPeopleOfficer,NationalPolicingandImprovementAgencyEverett Henry–HeadofEqualityandDiversity,NationalPolicingandImprovementAgencyDenis O’Connor–HerMajesty’sChiefInspectorofConstabularyRobin Field-Smith–HerMajesty’sInspectorofConstabularyChief Constable Stephen Otter & Deputy Chief Constable Christine Twigg–onbehalfofACPO
Reference Group
Andy Garrett–Chair,DisabledStaffAssociationAlfred John–BlackPoliceAssociationArchie Torrance–Secretary,Superintendents’AssociationDavid Michael–formerMPSpoliceofficerFiaz Choudhary–Chair,MetropolitanAssociationofMuslimPoliceGamal Turawa–LeadershipDevelopmentTrainer/FacilitatorJuan Pimienta–Chair,MPSIbero-AmericanAssociationKathleen Miller–DiversityCo-ordinator,SouthwarkKevin Boyle–GayPoliceAssociationLee Jane Yates–MPSChineseandSouthEastAsianStaffAssociationMat Shaer–Chair,JewishPoliceAssociationMukhtiar Singh–Chair,MPSSikhAssociationNigel Adams–Chair,ChristianPoliceAssociationPenelope Banham–AssociationofSeniorWomenOfficersPerry Nove–FormerCommissioner,CityofLondonPolicePhilip Van Tromp–EqualityLead,PoliceFederation(MPS)Ron Nunn–HRManagerMETTUSSatya Minhas & Maninder Desoura–ChairandSecretary,MetPoliceHinduAssociationRaj Kholi–Superintendent,PartnershipandCommunity
64 Race and Faith Inquiry Report
Interviews undertaken by MPA staff, to support the Panel investigations
Maqsood Ahmad–HomeOfficeEqualitiesAdvisorGlen Allison–DetChSupt,DCFD,MPSDr Jeffrey Braithwaite–ExecutiveCoachandOrganisationalManagementConsultant,MPSWayne Clarke–ManagingPartner,BestCompaniesPartnershipEsme Crowther–HeadOfEmploymentTribunal,MPSMike Harwood Greyson–Training&DevelopmentStrategy,MPSTamsyn Heritage–HeadOfCareerManagement,MPSShaun Kennedy–HeadOfRDLDP,MPSKatie Miller–FaithintheNeighbourhoodProjectManager,MPSGeorge Mills–EHRCLondon&South,Michael Motto–AcademicPhil Pavey–EHRCPolice/CriminalJusticePolicyManagerEllie Ryan–DirectorHRStrategy,MPSDavid Skelton–LeadForDCFAdvisors,Diversity&EqualityPerformance,MPSEd Solomons–DirectorofLegalServices,MPSDr Marie Stewart–Director,TaylorStewartAssociates
Written Submissions & Focus Group sessions
ThePanelwouldliketothankallthosewhoparticipatedinthefocusgroupsandthosewhoprovideduswithwrittensubmissions.ThePanelwouldalsoliketothankthoseofficersthatspoketothePanelinprivatesession.
AppendixB:Methodology 65
TheChairoftheMPA(MayorofLondonBorisJohnson)announcedtheintentiontocarryouttheInquiryinNovember2008andaliteraturereviewwasundertakentoinformanddevelopthetermsofreference.ThePanelwasconvenedinJanuary2009.CindyButts,anindependentmemberoftheMPAchairedtheInquiry.ThePanelmemberswereMargaretBlankson,BobPurkissandAnthonyJuliusallofwhomareindependentoftheMPAandMPS.
FromFebruary–April2009,thePanelconductedaseriesofinterviews,structuredtoensureanumberofperspectiveswerecaptured.TheseincludedindividualBMEofficersanddiversitystaffsupportassociations;boroughcommanders;MPSseniormanagersandManagementBoardmembers,nationalandgovernmentorganisationsandindependentadvisorsandacademics.Wherepossible,theinterviewstookplaceinpublic.InadditionanumberofinterviewswereconductedoutsidethePanelmeetingsbyMPAofficers.
AnimportantpartoftheInquirywastolistenandunderstandtheexperiencesofthosewithintheMPS.Twelvefocusgroups,facilitatedbytwopanelmemberstookplacewithadiverserangeofofficersandstaff.
ArequestforwrittensubmissionsfromMPSofficersandstaffwaspostedontheintranetsystemandmembersofthepublicwerealsoencouragedtosubmittheirviewsontheimpactofthepublicisedemploymentcasesontheirconfidenceintheMPStopoliceLondon.
AReferenceGroup,consistingofstatutoryandstaffsupportassociationchairsandindependentadvisorswasalsoestablishedtoinform,testandchallengetheworkoftheInquiry.
66 AppendixC:TermsofReference
Terms of reference
FocusCentraltotheInquirywillbetounderstandthefirsthandemploymentexperiencesofblackandethnicminority(BME)staffandofficerswithintheMPS,namelyintermsofrecruitment,retention,careerdevelopmentandmanagingdifference.
TheInquirywillexaminetheprogressmadebytheMPSasaresultofanumberofinvestigationsintoracewithinthepolice,mostnotably:• theStephenLawrenceInquiryReport,
whichreachesits10thanniversaryinFebruary2009
• theCommissionforRacialEquality(nowEqualityandHumanRightsCommission)FormalInvestigationintothePoliceServiceinEnglandandWalespublishedinMarch2005
• theMorrisInquiry,commissionedbytheMPAwhichpublisheditsreportandrecommendationsinDecember2004
• theMPA’sTalentManagementScrutinypublishedin2007
Bearinginmindtheconsiderableamountofscrutinyintoemploymentmatters,bothwithintheMPSandthepoliceserviceoverall,itisappositetoexaminepoliceofficerandstaffexperiencesfrom2005inordertoevaluatetheimpactofthiswork.
WhilstitisnottheintentionoftheInquirytorevisitpreviousreviewsintheirentirety,itisimportanttounderstandwhathasandhasn’tworkedasaresultofrecommendationsmade.ItwillalsohelptodetermineiftheapproachtakenbytheMPSasaresultofsuchreviewshasbeenthemostbeneficialtoachievingculturalchange.
TheInquirywillalsoconsiderissuesthatarenotdirectlyinthecontroloftheMPAandMPSe.g.theNPIAPeopleStrategy,theroleoftheSeniorAppointmentsPanelandtheStrategicCommandCourse.WhererelevanttheMPAwillmakerecommendationsaimedatotherbodies.
ThemesTheInquirywillexplorethefollowingfivethemes.(NB.Thequestionssetoutundereachofthethemesareexamplelinesofenquiryandshouldnotberegardedasacompleteandexhaustivelist)
Leadership & direction• Whohastheoverarchingresponsibilityfor
race,faithandwiderdiversityissueswithintheMetropolitanPoliceService?Doesdiversityhavetherightprofilewithintheorganisationandatwhatlevelofseniority?
• WhatdoweexpectfromtheleadersoftheMPSbothACPOofficersandSeniorManagementstaff?
• Whoarethedriversfordeliveringculturechangee.g.DiversityandCitizenFocusDirectorateandHumanResources?
• HowdoestheMPSbuildthecapacityofitsleadersandhoweffectiveisthis?
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• Howdoestheorganisationbuildorganisationalconfidenceonrace,faithandwiderdiversityissues?
• Whatistheprocessfordealingwiththeorganisationalimpactandcommunity/publicimpactofhighprofilecasesinvolvingrace?
Communication and relationships• Howdoestheorganisationcommunicate
andbuildpositiverelationshipswithallstaffandofficersandhoweffectiveisthis?
• Howdoestheservicetestthe‘health’oftheorganisation–especiallyBMEstaffandofficers?
• Whatroleisplayedbystaffsupportassociations?WhatistheirrelationshipwithMPSleadership?Whatvaluedotheyprovidetotheirmembers,thewiderorganisationandLondon’scommunitiesasawhole?
• WhatroleisplayedbyotherrepresentativebodiessuchasthePoliceFederationandTradeUnions?
Organisational development and learning• Whatfactorshavecontributedto
organisationalsuccesses?• Whatarethedriversandbarriersto
achievingculturalchangearoundrace,faithanddiversity?
• HowdoestheMPSembedapeoplefocussedapproach;doestheorganisationunderstandthevalueofadiverseworkforce(bothinstitutionallyandoperationally)?
• HowdoestheMPSlearnfromelsewhereandwhatcomparatorsexistwithinthepoliceservice,otherpublicsectorbodiesandtheprivatesector?
• WhatlearningcanbegainedtheexperienceofthePoliceServiceofNorthernIreland?
Work force development (recruitment, retention, progression)• Whatisthecurrentdemographicprofile
inrelationtorecruitment,retentionandprogression?Howhastheprofilechangedsince2005?
• Isrecruitmentactivityconsistentacrossallbusinessgroups–howaccessiblearespecialistareas?WhatlearningcanbegainedfromthePSCOrecruitmentexperience?
• Whatprocessesareinplacetopromotecareerdevelopment?Wheretheexamplesofsuccessandwhatarethebarriers?
• Howarepositiveactionandcareerdevelopmentinitiativesappliedinpractice?Aretheymakingadifference?Whatisavailableandtowhom?Howaretheyaccessed?AretheseinitiativeshelpingtheMPStogetthebestoutofitspeopleandaretheyvalueformoney?
Managing behaviour• Whatisthecapacityofmanagersin
managingdifferencewithintheMPS–bothinformalandformalpractices?
• DoesacomparativeanalysisofdisciplineoutcomeshowthatBMEstaffdealtwithfairlyandinthesamewayastheirwhitecounterparts?
• IstheFairnessatWorkproceduredeliveringwhatitwasintendedtodeliver?Dostaffandofficershaveconfidenceinthisprocess?
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• HowdoestheorganisationlearnfrombothdisciplineandETcases,whichcaseshaveheldtheorganisationtoaccount?
Objectives1. Assesstheextenttowhichthereisa
commonunderstandingofdiversitywithintheorganisationandhowittranslatestotheemploymentexperiencewithintheMPS.
2. Assesstheextenttowhichthereiseffectiveleadershipandaco-ordinatedapproachonissuesofraceandfaith.
3. DetermineifthereareappropriatestructuresandresourcesareinplaceacrossallbusinessgroupsandatB/OCUleveltodeliverthediversityagendainternally.
4. Determinetheconfidencelevelsofmanagersacrosstheorganisationinmanagingissuesofraceandfaithandexaminethesupportandtrainingprovided.
5. EvaluatetheorganisationalresponsetodiversityagainstthepersonalexperiencesofBMEpolicestaffandofficers.
6. ExaminetheMPA’soversightroleinrelationtodiversityandequalitywithintheMPS
7. Identifyanygapsinthecurrentapproachthatneedtobeaddressed
8. Examineworkundertakentoaddressinternalracialdisproportionalityinmanagingbehaviour.
9. Identifyinternalgoodpracticeandlearningtobesharedacrosstheorganisation.
10.Identifyappropriateexternalcomparatorsandgoodpractice.
11.ConsidernationalprogrammesnotdirectlyinthecontroloftheMPSandMPArelevanttoraceandfaithandtheimpactonMPSDiversityStrategy.
12.Topublishareportwithitsfindingsandrecommendations
ExclusionsTheInquirywillfocusonemploymentwithintheMPS;operationalandservicedeliveryelementsofpolicingwillnotbeexamined.TheInquirywillnotconsidercurrentorpendingcasesofindividualschallengingtheforceonthegroundsofraceorfaithdiscrimination.
ApproachCindyButts,anindependentmemberofthepoliceauthoritywillchairtheInquiry.Apanelofexternalexpertswillbeconvenedtosupporther.Thepanelwillfocusongatheringinformationtoanswerquestionsrelatingtotheidentifiedthemes.Panel-ledsessionswill,wherepossible,beheldinpublic. Thepanelwillbesupportedbyateamofofficerswhowillgatherinformationinseveralways:
• Takingoralandwrittensubmissions,harnessingtheexperienceandexpertiseofabroadrangeofindividualsandorganisationsfromtheMPS,thepublicsectorandtheprivatesector.
• Gainingawiderangeofstaffexperiencethroughfacilitatedfocusgroups(considerationisalsobeengiventowhetherastaffsurveyispossible)
• Analysisofworkforcedatainkeyareas(e.g.recruitment,retention,discipline)
• Backgroundresearchandidentificationofbestpractice.
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AnInquiryReferenceGroupwillalsobeestablishedtotest,challengeandinformtheworkoftheInquiry.
DeliverablesTheInquirywilldeliverawrittenreportsettingout:• Whatwasreviewedandwhy;• Howthereviewwasundertaken(including
witnesslist);• Findings• Conclusions• RecommendationsfortheMPS,MPAand/or
otherswithrationale;• Nextsteps.
CostsItisanticipatedthattheInquirycanbedeliveredwithinMPAresources,usingstafffromtheOversightandReviewteam.Itisanticipatedthatextrasupportmayberequiredtoaidthedeliveryofthefacilitatedworkshops.Panelmemberswillbeprovidedwithasmallhonorarium.Thebudgetisunlikelytoexceed£100k.
RisksThisInquiryhasbeeninstigatedinresponsetoaseriesofdifficultandsensitiveevents.ThesensitivitiesintherelationshipbetweentheMPSandstaffsupportassociationswillhavetobeverycarefullymanagedbythePanel.TheauthorityneedstobeawareofthepotentialreputationalrisksassociatedwiththeInquiry,particularlyinrespectoftherecommendationsitmakes.Asnotedabovetherehavebeenseveralreviewsinthisarea,yetitappearsproblemsremain.Oneofthechallengesforthepanelwillbetounderstandthebarrierstoanddriversfor
changeinordertodeliveraproductthatenablestheorganisationtomoveforwardpositively.ThisincludesconsideringtheoversightroleoftheMPA.
Managingstaffexpectationswillalsobeakeychallenge.Thepanelneedstoidentifymechanismsthatensureconfidentialityisassuredtothoseparticipatinginstafffocusgroups.
TheMPSisdealingwithanumberongoingemploymentissues(tribunalsandotherwise).TheInquiryneedstobeveryclearthatitisnotaddressingindividual“live”cases.Nevertheless,whenpublishingfindings,thetimingofemploymenttribunalsneedstobecarefullyconsidered.Thepanelmayalsowishtoreconveneoncethesecaseshavebeencompleted,inordertoconsideranynewevidencearisingoutofTribunaljudgements.
70 Race and Faith Inquiry ReportAppendixD:Bibliography
Bowling,Ben(1999)‘ViolentRacism:victimisationpolicingandsocialcontext’inClarendon Studies in Criminology(Oxford:OxfordUniversityPress)
CommissionforRacialEquality(2005)The Police Service in England and Wales: Final Report of a formal investigation by the Commission for Racial Equality (London:CRE)
CharteredInstituteofPersonnelandDevelopment(2008)Employee, Retention and Turnover(London:CIPD)
EHRC(2009)Police and Racism
Ghaffur,T.(2004)Thematic Review of Race and Diversity in the Metropolitan Police Service
Holdaway,S.andO’Neill,M.(2004)‘The Development of Black Police Associations’ inBritishJournalofCriminology(44854-865)
HerMajesty’sInspectorateofConstabulary(2007),Duty Calls: Inspection of Race Equality Compliance. (London:HomeOffice)
HomeOffice(2001)Religious discrimination in England and Wales (London:HomeOffice)
HomeOffice(2005)Assessing the impact of the Stephen Lawrence Inquiry (London:HomeOffice)
Loftus,M.(2008)‘DominantCultureInterrupted:Recognition,resentmentandPoliticsofChangeinanEnglishPoliceForce’inBritish Journal of Criminology (48756-777)
Matravers,A,Motto,MandTseloni,A.(2006)Disproportionality in the Metropolitan Police Service (Cambridge:UniversityofCambridgeInstituteofCriminology)
MetropolitanPoliceAuthoirty(2008)Internal Audit report: Equalities and Diversity application and monitoring
MetropolitanPoliceService(2009)Dialogue to Delivery: MPS analysis
MorrisInquiry(2004)The case for change: people in the Metropolitan Police Service (London:MorrisInquiry)
NPIA(2009)Stephen Lawrence Inquiry 10 years on: Conference Report (London:NPIA)
Rollock,Nicola(2009)The Stephen Lawrence Inquiry 10 years on. A critical review of the literature. (London:TheRunnymeadeTrust)
ScarmanL.(1981)The Brixton Disorders, 10-12 April 1981 (London:H.M.S.O)
Taylor,W.(2005)Review of Police Disciplinary Arrangements Report
VirdiInquiry(2001)The Virdi Inquiry Report. (London:VirdiInquiry)
Wagstaff,MandCunningham,SReflecting London: diversity of PCSOs recruits compared to police officer recruits in to the MPS (MPA)
Wilson,SuptPaul.Report on five focus groups conducted to establish the experiences of BME Police personnel working in the London Borough of Lambeth
WorkFoundation(2004)Survey of Metropolitan Police Officers and Staff (PreparedfortheMorrisInquiry)
71 AppendixE:FocusGroups–Summaryoffindings
Leadership and development
TheremustbeagenuineandongoingcommitmenttodiversityatthetopoftheMPS,notjustthroughputtingsystemsinplacebutbyexplainingdiversityintermsthatwillmakesensetoeveryoneintheorganisation.ThereisconfusionaboutwhohasoverallresponsibilityfordiversitywithintheMPSwithnoobviousleadatManagementBoardandaperceivedlackofstrategicdirectioninthisarea.Leadersshouldmakeitclearthatthatdiversityisaboutprofessionalism,thatitmakesgoodbusinesssenseandthat‘doingthingsrightistheonlywayofdoingthings’.Thoughtherearepeoplewhohaveresponsibilityfordiversity;bothgivingadviceandmonitoring,itshouldbemadeclearthattheyarenottheonlypeoplewho‘do’diversity.
TheMPSneedstoensurethatitsfirstlinemanagers(sergeantsandinspectors)areequippedwithpeoplemanagementskills.Thisshouldincludehowtodealwithdiversityissues,theconfidencetomanageBMEstaffandhowtosupportstaffwhochallengeinappropriatebehaviour.Therewassomeconcernthatnotallmiddlemanagers‘boughtinto’diversityandthattheytooshouldhavetheskillstoequipthemwith21stcenturyissues.Seniormanagersoftenhadnotundertakenmanagementordevelopmenttrainingformanyyearsandthisneededtobeaddressed.Thisprocessmaytaketimebuttheorganisationshouldbeequippedtochallengeforchange.Moreconsiderationshouldbegiventoboththeinternalandexternaleffectsofhighprofileemploymenttribunals.
Communication and relationships
TheMPSstructuremadecommunicationacrosstheorganisationdifficultasthereisstillaconsiderableamountofsiloworking.
Staffsupportassociationsareworthwhile,therearesomegoodrelationshipsbetweenthemandtheMPS;othersaremoreproblematic.TheMPSdoesn’tengagewellwithstaffassociations,somewereseemasmorefavouredwithunequalresourceallocationandtherewasaconcernthattheremaybetoomanyfortheMPStobeabletoengagewithsuccessfully.Theassociationsshouldbeseenaspartofthesolutionratherthanpartoftheproblem,givingadvicetotheMPSandactingasconduitstocommunities.Theirvoluntaryworkwiththecommunityshouldbebetteracknowledged.IndependentAdvisoryGroups(IAGs)alsooffertheMPSthechancetohearothervoices.
Therearebothpositiveandnegativereactionstotheproposednewmemorandumofunderstandingforstaffassociations.SomestaffassociationsfeeltheyarebeingcaughtupintheissuesbetweentheMPSandtheBlackPoliceAssociation.
TherewouldappeartobeadisproportionallylowBMEmembershipofunionswhichthenmakesitmoredifficulttorecruitBMEreps.ThereisabeliefthatthismaybeduetoBMEstaffandofficersnotwantingtobeseenastroublemakers.Thereisapoorrelationshipbetweentheunionsandsomestaffassociations.
72 Race and Faith Inquiry Report
TheMPScouldnotaffordtorelyoncurrentlinkswiththecommunity.Londonisinastateofconstantchangeandsotheorganisationmustconstantlybeplanningahead,buildingnewrelationshipsandmakingnewcontacts.ItwasfeltthatsuccessfullyimplementingdiversitywithintheMPSwouldresultinbothanimprovedrecruitmentofBMEofficerswhowouldseetheMPSasafairplacetowork,andimprovetherelationshipswithcommunitiesacrossLondon.
Organisational development and learning
TheMPSisseenashavingmadeconsiderableprogressondiversityandsomepeoplebelievethatthereislessracismwithinitthanotherorganisationsthattheyhaveworkedwithin.However,thoughsomefelttheorganisationwasleadingthewayinanumberofareas,thereisstillawaytogo.Externallytherearestillissuesaroundstopandsearchandinternallytherewereseenasissuesaroundrecruitmentandprogressionandwiththewaythatdisciplinewasdealtwith.Wherethereisracismthisshouldberobustlychallengedandthosewhospeakoutandchallengeitshouldbesupported.Thereisaconcernthat,thoughtherearefewinstancesofovertracism,thereisstillcovertracism.Concernwasalsovoicedthattheimprovementsmaderegardingraceandfaithexternallyhavenotbeenmatchedinternallyandthatperhapstheorganisationwasjustlearningtomaketherightnoisesortickingboxes.
Understandingofcommunitieshasimprovedconsiderablybuttherewasaconcernthatthisunderstandingdidnotpermeateallranksequally.Somestatedthattherewasablockatthemiddleleveloftheorganisation,occasionallyreferredtoas‘permafrost’,othersthattheywerenotconvincedthatthecommitmentofseniormanagersreachedthefrontline.Converselytherewereotherswhosaidthatyoungofficers,raisedinamorediverseenvironmentthemselves,particularlythosebroughtupinLondon,weremorelikelytoseediversityasbusinessasusualandwerearesourcethatcouldbebetterutilised.
Thereisstillalackofunderstandingaroundaspectsoffaith.Thoughtheorganisationwilltrytobeflexiblethereisnodocumentthatsays‘thisishowwewillbeflexible’.SomeraisedtheissueofwhetherthefocuswasonBMEgroupsorVisibleMinorityEthnic(VME)groupsandifthefocusshouldbeondiversityorequality.
Policestaff,alongwithPCSOs,werethoughttobeaffordedlowerstatusthanpoliceofficerswithintheMPS.Theirpromotionandadvancementopportunitieswerelimitedandtherewasabeliefthattheyweretreatedlessfavourably.
TheMPSshouldavoidkneejerkreactionstosituations,settingupnewinitiativesandthendroppingthemsomemonthslater.
Howleadersbehavedwhen‘theirbacksareagainstthewall’isimportant.TheMPSisseentonotlearnfromoracknowledgemistakesandcanputmoreeffortintoprotectingthe
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organisationthanputtingthingsright.Itisnotanorganisationthatfindsiteasytosaysorry.
TherewereanumberofnegativecommentsaboutthePerformanceDevelopmentReview(PDR)system.Contributorsfeltthatitwasineffective,tendedtowardsatickboxmentalityandwasnotalwayslinkedtodelivery.
Workforce development
Itwasfeltbymanythatthepromotionsystemdelivereddisproportionality.Somecontributorsfeltthatthereweretimeswhenthelackofsuccesswasconsideredtobeduetoraceorfaithmorebecauseofpeople’sperceptionsratherthanbecauseofreality.However,evenwherethismaybethecaseitwasnotthoughttobeareasonfortheMPStoignorethesituation.People’sperceptionsbecometheirrealityandwereoftenbasedonmistrustandpastexperience.Therewasaconcernthatmanypeopleself‐deselectedfromapplyingforposts,eitherbecausetheydidnothavefaithinthesystemorbecausetheydidnotwanttobethetrailblazerortheonetoputtheirheadabovetheparapet.TheMPSwillneedtofindwaystoovercomethis.ItwaspointedoutthatgettingmoreBMEseniorlevelstaffandofficerswillnotnecessarilyincreaseconfidenceinthesystemunlesstheunderlyingmistrustisresolved.
Networkingandmentoring,bothformalandinformal,wereconsideredtobeamajorcontributortounfairnessinthepromotionprocess.Commentsincluded:• itiswhoyouknownotwhatyouknow
• somepeoplearegivena‘greenlight’• peopleopeneddoorsforsomethatshould
beopenforall• somepeopleget‘adopted’• networksandsponsorshipexcludepeople• needtobeinwiththeincrowd• telephonecallsaremadetosay“there’sa
jobcomingup”
Strongbondingcouldbearesultofthenatureofthework,describedasoneparticipantas“longperiodsofboredomfollowedbydanger”carriedoutbypoliceofficers,particularlyincertainroles.Howeveritisimportantthatthisdoesnotresultinothersbeingexcluded.Therewasafeelingthatsomepeoplehadaccessto‘practiceboards’andusefulmaterialbecauseofthepeopletheyknewanditwasmentionedthatsomeassessmentboards‘leaked’information.Theproblemwithnetworkingwasconsideredbymanytobemadeworsebytheneedforsupervisorstogivepermissionforsomebodytoapplyforpromotion.Contributorssuggestedmoreuseshouldbemadeofindependentpeoplefortheassessmentpanelsandthatpanelsshouldalsobemorediverse.
TherewasastrongfeelingthattheMPStendedtopromoteinitsownimagewithafeelingthat‘youmustbelikeustobeintheclub’.Peopleweredisadvantagediftheydidnotlooklike,soundlikeorbehaveintheMPScoreimage.Thisdifferencecouldmanifestinmanyways:race,faith,class,culture,genderordisability.Toquoteoneparticipant“Iwouldsaytherewasadifferenceissue,whichequallyappliestorace”.Themoreobviouslydifferentyouaretheharderitbecomes“…ifyouhaveadifferentvoicein
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theorganisationyouhavetoworktentimesharder”.Inadditiontheorganisationisnotseentovaluedifferentwaysofworking,losingitvaluableskillsandresource.TheMPSshouldberecruitingfromthebestfromallcommunities,andnotjusttryingtogetnumbersupinsomeareas.
ThedifficultygettingintospecialistareasoftheMPSsuchasSO,COandSCDwasmentionedbymanypeople.Theseareasareseentobebothworkingandrecruitinginsilos,makingitdifficultforanyonewhoisn’talreadyinthemtogetthroughpromotionortogainexperience.ThisisparticularlypronouncedforBMEandfemalestaffandofficers.AnotherexamplegivenwascateringstaffwherethemajorityofmanagersarewhitewhilstthemajorityofstaffareBME.
TheMPSdidnothaveawideenoughviewoftheskillbaseofapplicantsanddidnotalwaysgivesufficientprominencetothe‘softer’skillsthatpeoplehavewhenconsideringthemforpromotionornewjobs.Therewasaconcernthattheprocessdidnotnecessarilyassessskillsneededfordoingthejobbutskillsfordoingassessments.
Theappointmentof‘actingup’postswasconsideredtobespecificallyunfairandopentofavouritism.
TheMPSshouldbehonestaboutthechancesofpromotionandnotsetunrealisticexpectations,leavingpeopledisappointedandfeelingletdownbytheprocess.
Therewasanambivalentresponsewhenparticipantswereaskedaboutmultipointentry.Thoughsomeconsidereditaninterestingideatherewasaconcernaboutitsnegativeaspects,specificcommentsincluded:
• EntryatInspectorlevelwouldstillrequireconsiderabletraining–fouryearswasmentioned
• Itwouldbedifficulttoworkatthislevelwithouthavingdonethe‘deepwork’
• Ittakesexperiencetodothistypeofwork• TheMPSwouldlosetheoperationalbenefits
ofjobexperience• Multipointentrycouldcausetensionor
resentmentfromthosewhoworkedtheirwayupthroughtheranks
TheMPScouldlookatcivilianizingseniorrolesthatdonotrequirewarrantedofficersasawayofbringingpeopleintotheorganisationatamoreseniorlevel.Thismightalsogosomewaytocountertheperceivedimbalanceinstatusaffordedtoofficersandstaff.
Severalpeoplementionedtheneedforaprofessionalformalisedcareersadviceserviceforalllevelsandranks,supportingthosewithtalentandambition.
Managing behaviour
ManagerswereconsideredtobebothillequippedtodealwithpersonnelmanagementandtobefrightenedofdealingwithissuesaroundBMEstaff.AsaresultitwasfeltthattherewasatendencytodealwithBMEstaff
75
inanoverformalway,institutingdisciplinaryprocessesandescalatingproblemsratherthan‘nippingtheminthebud’ornotdealingwithaproblematalluntilitbecomesacrisis.Somesituationsaredealtwithover‐harshlyusinga‘sledgehammertocrackanut’.ItwasfeltthattherewasmoreacceptanceoffailureofwhitestaffandofficersthanBMEstaffandofficersandthatBMEstaffandofficersweregivenlesstimetorecoverfrommistakes.Therewasnotthoughttobesufficientsupportformanagersdealingwithfairnessatworkclaims,trainingwasverybasicandadvisorystaffweremovedtoooften.Theorganisationneededtodealwithbullyingandfavouritism.
MPA
TheMPAshouldholdtheMPStoaccountmorerigorously.
TheMPAshouldensurethattheMPSknowswhatisexpectedofitanddeliversagainstit.
TheMPAshouldengagebetterwithunions.
TheMPAshouldnotbeseentocolludewiththe‘informalchats’thatoccurduringpromotionprocesses.
76 Race and Faith Inquiry ReportAppendixE:QuantitativeDataAnalysis
General
TheLondonBMEpopulationcurrentlystandsat29%(2001Censusdata).ThenumberofSpecialConstablesandPCSOsareinlinewiththeLondonaverageintermsoftheBMEpopulation,with32%ofSpecials,and30.1%ofPCSOsdescribedasBME.TheproportionofpolicestaffisalsoclosetotheLondonaverage,with23.4%describedasBME.Theproportionofpoliceofficers,howeverismuchlower(8.8%).(March2009MPSWorkforceDataReport)
ThepredictedstrengthofBMEofficersfor2012/13is12%(MPSWorkforceDiversityPack)1.ThisisstillsignificantlybelowtheLondonBMEpopulation(29%).Butthingsareimproving–theproportionofallpoliceofficerswhohave0-4yearsexperienceandareBMEis15.4%.
Withjustover33,000MPSpoliceofficers,itwilltaketimeforthenumberofnewrecruitstomakeanimpactespeciallyasfewerpoliceofficersarechoosingtoretireandthusbepotentiallyreplacedwithBMEofficerrecruits.
DatashowsthatTerritorialPolicingonboroughshas10.3%BMEstrength,andrecruitswereat15.8%(2009).TheboroughwiththehighestBMEproportionisEaling,with13.93%.HQunitshaveamuchlowerproportion:CO4.8%,SO6.8%,SCD5.7%,HR4.4%,DOI2.7%(NBtheseareofficerratesonly).
Promotion
Evidencefrompanelinterviewssuggeststhatthereisa“glassceiling”atChiefInspectorlevelforBMEofficers.Asseeninthetablebelow,theproportionofofficersofBMEorigindoesindeeddeclineasyoumoveuptheranks.
Strength by Rank Total Female Total MaleBME strength as % of rank total
Commanderandabove 2 5.13%
ChiefSuperintendent 1 2.08%
Det.ChiefSuperintendent 0.00%
Superintendent 7 5.98%
DetectiveSuperintendent 1 1.20%
ChiefInspector 2 5 2.90%
Det.ChiefInspector 13 6.17%
Inspector 4 41 3.85%
DetectiveInspector 2 30 5.01%
Sergeant 16.56 165.23 4.50%
DetectiveSergeant 20.3 68 5.12%
Constable 528.055 1517.325 10.36%
DetectiveConstable 131.46 309.17 9.89%
TOTAL 704.375 2159.725 8.80%
(Black and minority ethnic strength as at the end of March 2009).
1TheprojectionsassumethatBMErecruitmentissustainedat26%,andturnoverremainsconstant.
77
However,ittakestimetoreachthoseranksandassuch,theremaybeasmallerpoolofBMEofficerswithrequisiteexperienceduetothelowlevelofBMErecruitstoPClevelinpreviousyears.ThepercentageofBMEofficersselectedfortheChiefInspectortoSuperintendentpromotionprocesshasbeensteadilyincreasingoverthelastfiveyears.
ThedataalsoindicatesthatBMEofficersexperiencelowersuccessratesthannon-BMEofficersintheSergeanttoInspectorpromotionprocesses,InspectortoChiefInspector,andConstabletoDetectiveConstableprocesses(MPSDutyinEmploymentReport2008-09).Thesepercentageshowever,fluctuatewidelyduetothelownumberofBMEapplicationsandshouldbetreatedwithcaution.Forexample,therewerejust39BMEapplicationstotheSergeanttoInspectorprocess(Part3),comparedto522non-BMEapplications.Itseemslikelytherefore,thatvariationsinsuccessratesarecurrentlyaffectedbythelownumberofBMEapplications.
ThedecliningproportionofBMEpoliceofficersatChiefInspectorlevelandabovemaybeduetolengthofserviceservedbyofficers.Theaveragelengthofservicebyrankisshownbelow(asofOctober2009).Thisgivesanindicationoftheaveragetimetakentoreacheachrank.
RankAverage of Length of
Service in MPS
ACPOlevel 25.98
ChiefSuperintendent 27.59
DetectiveChiefSuperintendent 25.73
Superintendent 26.11
DetectiveSuperintendent 26.64
ChiefInspector 24.82
DetectiveChiefInspector 24.91
Inspector 23.55
DetectiveInspector 23.48
PoliceSergeant 18.49
DetectiveSergeant 20.00
PoliceConstable 9.87
DetectiveConstable 13.85
MPS Average 13.10
Superintendent and above
• PoliceofficerswhoareatSuperintendentlevelorabovearemostlikelytohaveworkedfor25yearsormore.Thereare156.7BMEofficerscurrentlyintheMPSwhohaveservedmorethan25years–11ofthesearerankedSuperintendentorabove(7%).
• Incontrastthereare5036non-BMEofficerswhohaveserved25yearsormore–315ofthesearerankedSuperintendentorabove(6.3%).
78 Race and Faith Inquiry Report
Inspector and Chief Inspector (including Detectives)
• PoliceofficerswhoareatInspectororChiefInspectorlevelaremostlikelytohaveworkedfor20-24years.Thereare184.79BMEofficerscurrentlyintheMPSwhohaveachievedthislengthofservice–98ofthesearerankedInspectororChiefInspector(53%).
• Incontrast,thereare4234.1non-BMEofficerswhohaveservedbetween20-24years–2114.19ofthesearerankedInspectororChiefInspector(49.9%).
ThepercentageofBMEInspectors/ChiefInspectorsandSuperintendentsandaboveis
actuallyhigherthanthatofnon-BMEofficersalsoservingthesamelengthofservice.
ThisindicatesthatthesmallnumbersofBMEofficerscurrentlyatInspectorleveloraboveisduetothelowlevelsofBMEofficersrecruited20-25yearsago.Forexample,tenyearsagoblackandminorityethnicofficersaccountedforjust3.4%ofpolicestrength.Aslengthofserviceincreases,soshouldthenumberofBMEofficersinthehigherranks.
Currently,thelargestproportionofBMEofficershasserved0-4years(36.7%),or5-9years(34.3%).LengthofserviceforbothBMEandNon-BMEofficersisshowninthegraphbelow.
0.00
1,000.00
2,000.00
3,000.00
4,000.00
5,000.00
6,000.00
7,000.00
8,000.00
9,000.00
0-4 years 5-9 years 10-14 years 15-19 years 20-24 years 25-29 years 30-34 years 35-35 years 40 and over
Tota
l pol
ice
offi
cers
Length of service (years)
Length of service for police officers - October 2009
BME total Non-BME total
79
Wastage
MPScorporatereport(WorkforceDiversityPack,September2008)statesthatBMEofficersarefivetimesmorelikelytoresignthanwhiteofficers.Thelargestnumberofwhiteofficersislostthroughretirement.ThesefiguresarelikelyskewedbythefactthatthoseapproachingretirementagearepredominantlyWhite-BritishorWhite-Irish,withotherethnicbackgroundsexperiencinghigherproportionsofstaffthathavejoinedwithinthelast5years.
MPSexitsurveydataalsofoundthatBMEOfficerswhohadresignedwere1.5timesmorelikelytobedissatisfiedwithworkingfortheMPSthanwhiteofficersandwere12.5timesmorelikelytocitediscriminationandbullyingasthemainreasonsfortheirdecisiontoresign.TheexitsurveydataalsofoundthatBMEofficerswere3timesmorelikelytoresignduringthefirst2yearsofservicethanwhiteofficers(WorkforceDiversityPack,September2008).
Discipline
Duetothelargerpopulationsizeofwhitepoliceofficers,thenumberofinformaldisciplinecaseshavebeenanalysedasaproportionofthepoliceofficerpopulation.Forexample,inthefinancialyear2008-09,1312policeofficersweresubjecttoinformaldiscipline.Giventhatthepoliceofficerpopulationwas32,936(asat31stMarch2009),thisequatesto25policeofficersforeverpoliceofficerinvolvedinaninformaldisciplinecase.Thenumbersofformalmisconducthearingsaremuchsmallersoanalysiscannotbeperformedonthisdata.
Asseeninthetablebelow,notknownandBMEofficershaveamuchhigherratioofinformaldisciplinecases.Thereare13BMEpoliceofficersforeverydisciplinecase,ascomparedto28non-BMEofficers.
TheBMEandnonknownpopulationhavesmallfigureswhichmayskewtheresultsslightlybutthisdifferenceisstillofsignificance.
Ethnic Background Police Officer population Informal Discipline CasesNo. police officers for every discipline case
Non-BMEOfficers 29974 1082 28
BMEOfficers 2881 219 13
Notknown 81 11 7
(MPS Duty in Employment Report 2008-09)
80 Race and Faith Inquiry Report
Employment Tribunals
TheratioisalsolowforemploymenttribunalsinitiatedbyBMEMPSstaff(policeofficerandpolicestaffclaimants).Asseeninthetablebelow,stafffromblackandAsianbackgroundsmostlikelytobeinvolvedinemploymenttribunals.
Ethnic Background No. Employment TribunalsNo. of staff for every employment tribunal
WhiteBackground 60 737
BlackBackground 27 115
AsianBackground 20 141
Otherbackground(includesmixed) 8 230
Notknown 2 344
(MPS Duty in Employment Report 2008-09)
Theratioisevenlowerforpoliceofficersonly.Blackpoliceofficersaremostlikelytobeinvolvedinanemploymenttribunal,with85officersforeachcase.Incontrast,therewere789whitepoliceofficersforeachcase.
Police Officers only
Ethnic BackgroundPolice Officer
populationNo. Employment
TribunalsNo. of police officer for every
employment tribunal
WhiteBackground 29974 38 789
BlackBackground 846 10 85
AsianBackground 1116 10 112
Otherbackground(includesmixed) 919 8 115
Notknown 81 0 0
81
Conclusion
HigherproportionsofBMEofficersarebeingrecruitedthaneverbefore.ThedataindicatesthatastheseofficersprogressthroughouttheorganisationandaccruemoreservicethenumberofBMEofficersclimbinguptherankswillalsoincrease.
Currently,thesmallnumbersofBMEofficersskewsanalysiswhencomparingwithwhiteofficernumbers.However,thefiguresdoindicatethattheremaybeahigherrateofdissatisfactionwithinBMEpoliceofficers–whoarefivetimesmorelikelytoresignthanwhiteofficersandinitiateahigherrateofemploymenttribunals.BMEofficersalsohaveamuchhigherratioofinformaldisciplinecasesthannon-BMEofficers.
82 Race and Faith Inquiry ReportAppendixG
Acronyms
ACPO AssociationofChiefPoliceOfficers
APA AssociationofPoliceAuthorities
BME BlackandMinorityEthnic
CIPD CharteredInstituteforPersonnelandDevelopment
CO19 FirearmsCommand
CRE CommissionforRacialEquality
DAC DeputyAssistantCommissioner
DCFD DiversityandCitizenFocusDirectorate
EHRC EqualityandHumanRightsCommission
ET EmploymentTribunal
HMIC HerMajesty’sInspectorateofConstabulary
MetBPA MetropolitanPoliceBlackPoliceAssociation
MPA MetropolitanPoliceAuthority
MPS MetropolitanPoliceService
NPIA NationalPoliceImprovementAgency
OCU OperationalCommandUnit
PCSO PoliceCommunitySupportOfficer
PDR PersonalDevelopmentReview
S.A.M.U.R.A.I StaffAssociationsMeetingUpRegularlyandInteracting
SSA StaffSupportAssociation
TP TerritorialPolicing
TUC TradeUnionConference
Metropolitan Police Authority July 2010
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