Making Jersey Safer: States of Jersey Police – Policing Plan 2011.

MAKING JERSEY SAFER

States of Jersey Police Policing Plan 2011

Presented to the States on 8th February 2011 by the Minister for Home Affairs

2011   Price code: C  R.11

CONTENTS

Page Introduction by the Chief Officer  3

About States of Jersey Police  5 Context of the 2011 Policing Plan  7 Developing the 2011 Policing Plan  9 Our Way of Working  11 Roles, Responsibilities and Resources  13 Our Policing Priorities for 2011  18 Effective Resource Management  21 Key Performance Outcome Measures  26 Appendix 1: Public Priorities for Policing  27 Appendix 2: Resource Management Framework  28 How to Contact Us  31

INTRODUCTION BY THE CHIEF OFFICER

Welcome to the 2011 Policing Plan for States of Jersey Police.

Everybody in Jersey has a vested interest in how our Island is policed. Good policing  is  essential  to  the  safety  and  prosperity  of  our  community.  This Policing Plan helps explain how we intend to deploy our resources and focus policing  effort  in  the  year  ahead  to  help  protect  the  public  and  keep  our community safe.

Jersey continues to be a safe place to live, visit and do business. This doesn't just happen by accident and it is evident that the Force has enjoyed some significant success in reducing crime and bringing offenders to justice over the last few years. This is reflected in very positive perceptions of neighbourhood safety and strong levels of confidence in the Police as evidenced by recent Jersey Annual Social Surveys.

The challenge we now face is not only to do better still, but to do so with fewer resources. Over the next 3 years, States of Jersey Police will be required to achieve  nearly  £1.9 million  in  savings  as  required  by  the  Comprehensive Spending Review. It is worth noting that whilst expenditure on policing in England and Wales has increased enormously over the past ten years, the real value  of  the  Police  budget  in  Jersey  has  declined.  The  Force  is  therefore already well versed in maintaining standards of performance with shrinking resources. The obvious commitment to delivering efficiency and effectiveness is evident throughout this Plan and will serve the organisation well in meeting the challenges that lie ahead.

There is little doubt that financial pressures will require a fundamental review of law enforcement in the Island. Throughout this process, we must always ensure that cost cutting decisions are balanced against threat, harm and risk. We must also ensure that public trust and confidence in the Police is sustained. It will also be more important than ever for the Force to engage with the people of Jersey to ensure that they remain confident in our ability to protect our community from harm and deliver an efficient and effective service.

It is evident that States of Jersey Police have been longstanding proponents of a corporate approach to some of the key community safety issues in the Island, particularly with regard to the night-time economy of St. Helier . It would seem that some progress has been made in bringing key partners to together to discuss the way forward. This initiative now needs to gain momentum so that Jersey can benefit from joined up approaches that are demonstrably working elsewhere.

Our partnership with the Honorary Police continues to be vital to the security and  well-being  of  our  community.  Over  the  next  few  years,  it  will  be increasingly important for States of Jersey Police and the 12 parishes to work

together and explore new ways of working that will make our relationship even more effective.

Throughout this Plan there is a clear desire to ensure that our resources are effectively utilised to make a difference. The aim, as always, is to ensure that we provide a quality service to those who turn to us for help and to play our part in making Jersey safer.

Mike Bowron Chief Officer

ABOUT STATES OF JERSEY POLICE

States of Jersey Police serve a resident population of 92,500 people, as well as over 700,000 visitors to the Island each year.

At face value, the  challenges involved in policing Jersey would appear to equate to those of policing a small town in the United Kingdom. But Jersey's status as a Crown Dependency with its own government and legislation create a distinct policing environment.

The  fundamental  difference  is  that  States  of  Jersey  Police  must  be largely self-sufficient in developing and maintaining services that are provided through a local, regional and national level Police Service infrastructure in the United Kingdom.

States of Jersey Police are also required to provide a range of functions that  would  normally  be  delivered  by  other  service  providers  in  the United Kingdom. For example, we play an enhanced role in supporting the administrative requirements of the criminal justice process, provide a vetting and barring service, manage and maintain the town CCTV system and maintain the Island's central firearms register.

The Service must also police the Island's ports. Jersey Airport serves about  40 different  destinations  and  handles  around  1.5 million passengers  a  year.  Another  750,000  travel  through  the  Island's  sea ports.

Jersey's role as an international finance centre means that the Service has a key function as a Financial Intelligence Unit that works with enforcement agencies around the world to combat money laundering and terrorist funding.

States  of  Jersey  Police  currently  operate  with  a  funded  establishment  of 236 police officers and about 90 civilian staff. The high ratio of police officers to  civilian  staff  reflects  a  practical  requirement  to  maintain  operational resilience.  There  is  no  immediate  recourse  to  reinforcements  from  outside Jersey.  Many  officers  are  trained  in  specialist skills  over  and  above  those required for their normal duties so that they can be called upon at any time to perform  specialist  roles  such  as  firearms,  search,  surveillance,  siege negotiation, collision investigation, public order, CBRN response and family or sexual  offence  liaison.  Keeping  officers  at  the  requisite  level  of  expertise requires significant investment in training.

Further  information  about  the  Service  can  be  found  on  our  website  at www.jersey.police.uk

Honorary Police

Jersey has a unique tradition of Honorary Policing, with each parish engaging volunteer police officers who contribute their time and energy to informal policing and their pivotal role in the local criminal justice system. The partnership between the Services will play an important part in supporting the policing philosophy and priorities set out in this Plan.

Strategic Priority 7 Steering Group

States of Jersey Police are one of the key partners charged with delivery of Strategic Priority 7 of the States Strategic Plan 2009–14: Protect the public and keep our community safe. Responsibility for this priority is vested in a Steering Group which brings together senior managers from across the States to identify key community safety issues and develop cross-departmental solutions.

CONTEXT OF THE 2011 POLICING PLAN

In 2009, the States approved a Strategic Plan setting out what the government of  Jersey  hoped  to  achieve  over  the  next  5 years.  This  Policing  Plan demonstrates  how  our  planned  service  delivery  for  2011  is  aligned  to  the government's strategic priorities.

Our Purpose

The Strategic Plan states that the public have the right to expect that the fundamentals of the state are in place, such as protection from harm, effective law enforcement and security, a fair and functioning criminal justice system, secure borders and clear rights and responsibilities for individuals'.

States of Jersey Police exist in order to help deliver these core services. Our contribution is reflected in the common statement of purpose for policing:[1]

The purpose of the police service is to uphold the law fairly and firmly; to prevent crime; to pursue and bring to justice those  who  break  the  law;  to  keep  the  Queen's  Peace;  to protect, help and reassure the community; and to be seen to do all this with integrity, common sense and sound judgement.'

Our Vision

Priority 7 of the States Strategic Plan states that: people need to feel safe in their homes and community' and sets an expectation that: Islanders should all be able to enjoy a safe, just and thriving community. This means securing public  confidence  in  our  ability  to  deal  successfully  with  all  aspects  of community safety.'

Jersey is already a safe community but we want to keep making a difference. Low levels of crime don't just happen. Individually and as an organisation, we will do our utmost to make our Island an even safer and better place in which to live. Our vision statement demonstrates our commitment to this goal.

An Island where our residents and visitors are safe and feel secure

What to Expect

In delivering our vision, we are committed to providing a high quality service:

RESPECTFUL We treat all people with dignity, compassion, respe ct and understanding

RESPONSIBLE We act with professionalism, calm and restraint and accept responsibility for our actions

RELIABLE We adhere to high standards of service and keep our promises

REASONABLE We are fair and impartial and apply common sense an d sound judgement in everything we do

DEVELOPING THE 2011 POLICING PLAN

Daily business as usual for States of Jersey Police encompasses activities as diverse as call handling and response, reassurance patrols, crime investigation, managing intelligence, port security, custody of prisoners and supporting the needs of the criminal justice system. The Service must deal with challenges as diverse as anti-social behaviour, road safety, domestic and child abuse, street violence, drug trafficking and international money laundering. At any time, the Police may be called upon to deal with a major incident or emergency. In every area, the nature of the work means that the standards required are exacting and the expectations of service users are high.

Our planning process determines how to deploy our resources to deliver an effective service and best deal with these simultaneous but competing threats to community safety in Jersey. Getting this right means aligning what we do to what the government and the public expect in return for their investment in policing. This Plan –

conforms to the direction provided by the Strategic Plan 2009 – 2014. This prescribes a number of requirements that impact upon the Police Service –

- protect Jersey's international reputation and viability as an offshore finance centre...'

- ensure  that  the  Island  is  as  resilient  as  possible  to  threats  to  its security and way of life'

- be prepared to deliver an effective response in the event of critical incidents and emergencies...'

- help  people  feel  secure  in  their  homes  and  local  communities  by driving  down  levels  of  crime,  anti-social  behaviour  and  disorder, vulnerability and harm'

- enhance support services to vulnerable children, families and others at risk'

ensures that the public has a voice in how Jersey is policed. The 2011 Plan is informed by public feedback from the 2009 and 2010 Jersey Annual Social Surveys.[2] The policing activities given the highest priority ratings by the people of Jersey are –

- Responding quickly to emergency calls

- Tackling the neglect or abuse of children and other vulnerable people

- Patrolling areas where crime or anti-social behaviour are a problem

- Reducing anti-social behaviour and disorder in the town centre at night

- Reducing the supply of illegal drugs

builds upon our own analysis of trends in community safety and the social and economic issues that might influence demand on policing services in the Island.

takes into account our role and responsibilities arising from partnerships with other agencies in the criminal justice system.

Together, these inputs have helped determine our organisation structure, resource allocation and our operational policing priorities for the year ahead.

OUR WAY OF WORKING

Over  the  next  3 years,  the  public  sector  in  Jersey  will  undergo  a Comprehensive Spending Review. The pace and scale of the change and the driving  imperative  to  achieve  cashable  savings  will  require  a  fundamental rethink  of  how  law  enforcement  is  delivered.  Throughout  this  process, however, we must remain focussed on the key themes that underpin everything we do as a Police Service.

EFFECTIVE INTELLIGENCE- COMMUNITY  EFFECTIVE  CUSTOMER

RESOURCE LED POLICING ENGAGEMENT PARTNERSHIPS SERVICE

MANAGEMENT

These themes are implicit in the delivery of the policing services and priorities described throughout this Policing Plan.

Intelligence-Led Policing

Intelligence-led  policing  is  key  to  the  efficient  and  effective  use  of  our resources.  By  continuing  to  enhance  the  way  we  gather,  analyse  and disseminate intelligence and focus effort on key offenders and locations, we will improve service delivery.

Community Engagement

We will ensure our decision-making and service delivery reflects an in-depth understanding  of  the  needs  and  expectations  of  individuals  and  local communities. This means that the public will have a voice at all levels of policing: from neighbourhood focused problem-solving initiatives through to decisions about the Service's overall priorities and service delivery strategies.

Effective Partnerships

The Police cannot deliver community safety alone. Many effective working partnerships already exist but the Service welcomes the opportunities for a co- ordinated  approach  to  key  community  safety  issues  presented  by  the  new Strategic Priority 7 Steering Group.

Customer Service

We are committed to the consistent delivery of a first-class service to people who need our help, from first contact through to follow-up. Our approach, individually and organisationally, must be to appreciate and care for the needs of the people we serve.

Effective Resource Management

Our resources (staff, equipment, facilities, etc.) are funded with public money assigned to the Police budget by the States. Both government and the public therefore have a vested interest in seeing a return on their investment and expect to see tangible results in terms of community safety and policing performance. Managing Police performance is about making effective decisions about how best to prevent and detect crime. It also entails continually reviewing whether what we are doing is proving its worth and can be justified in the face of other competing demands.

ROLES, RESPONSIBILITIES AND RESOURCES

Organisational Structure

States of Jersey Police are organised around five key service areas. Uniformed Operations,  Partnerships,  Intelligence  and  Crime  Operations  deliver operational  policing  whilst  Support  Services  provide  a  range  of  specialist services that underpin front line policing.

Figure 1: Organisation Structure

75

Resource Allocation

Figure 2 shows the planned deployment of our staff resources across the five service areas in 2011.[3]

Figure 2: Planned Personnel Deployment, 2011

Roles and Responsibilities – Operational Policing

93% of our Police officers and about 42% of our civilian staff are deployed in the  4 policing  service  areas.[4]  The  functional  responsibilities  of  the  units assigned to these Service areas are depicted below.

Roles and Responsibilities – Criminal Justice Unit

The Criminal Justice and Administration Unit provides the crucial link between operational policing and Jersey's unique criminal justice system. Nearly 8% of the Service's personnel are deployed in this department, including about one in five of all the civilian support staff employed by the Police.

Roles and Responsibilities – Support Services

Our  other  support  services  are  designed  to  support,  facilitate  and  improve front-line policing. They are essential to the efficiency and effectiveness of the Service. It should be noted that Finance and Human Resources functions now come under the remit of the Home Affairs Department.

Just over 12% of States of Jersey Police's personnel resources are deployed amongst the remaining Support Services. These are all civilian support staff roles except for –

• six  police  posts  which  provide  specialist  in-house  training  for  the Service;
• two police officers deployed in the Professional Standards Department.

The functional responsibilities of the other Support Services departments are depicted overleaf.

OUR POLICING PRIORITIES FOR 2011

States  of  Jersey  Police  are  committed  to  making  Jersey  an  even  safer community for our residents and visitors. Delivering our priorities will ensure that the Jersey remains a low-crime, safe place where people live, work and spend leisure time. Whilst Jersey is a safe place, we also want people to feel safe and to have confidence that we are doing a good job of policing the Island. We are confident that in delivering our priorities we will achieve that.

VIOLENT CRIME

We will help reduce the incidence of violent crime, bring offenders to justice and protect vulnerable adults and children from harm and abuse

Violence can be separated into 2 broad categories – that which occurs in public spaces and that which takes place in private, often in the home. It is important to develop strategies to address violence in the context in which it occurs. The response required to tackle public space violence, which is often spontaneous, alcohol-related and generally involves men as both offenders and victims, is entirely different to that required for violence in the home, where physical and sexual abuse, usually towards women and children, is more often a sustained pattern of behaviour.

What are we going to do?

Participate in the States Strategic Plan Priority 7 working group tasked to consider  the  joined-up  strategy  needed  to  ensure  a  vibrant,  safe  and successful night time economy in St. Helier .

Implement  a  new  Night-Time  Economy  Policing  Plan  providing  high visibility patrols, licensing checks, stop/searches and a timely response to incidents of violence and disorder.

Further improve the investigation of public space violence and disorder in order to bring more offenders to justice.

Further  develop  intelligence-led  tasking  of  enforcement  activity  and preventative measures to reduce the level of public space violence.

Work with partner agencies to encourage reporting of domestic abuse, help protect and support victims and reduce repeat offending.

Work with partner agencies to deliver interventions and management plans for the purpose of protecting vulnerable children against abuse.

Identify  individuals  who  are  prolific  violent  offenders  and  work  with partner agencies to address their offending.

PROTECT AND REASSURE LOCAL COMMUNITIES

We will help identify and address the community safety issues that cause the most harm to individuals and neighbourhoods

Only a small percentage of the population in Jersey are directly affected by serious  crime.  In  contrast,  issues  such  as  anti-social  behaviour,  dangerous driving or vandalism can have a greater impact on most people's day-to-day lives because they are far more visible. Regular exposure to these problems can have a profound impact on people's feelings of safety and their quality of life. That is why it is so important that we engage effectively at a local level and understand  local  problems  as  they  affect  different  neighbourhoods  and communities in the Island.

What are we going to do?

Participate in the States Strategic Plan Priority 7 working group tasked to consider  a  cross-departmental  strategy  addressing  anti-social  behaviour problems in Jersey.

• Deliver policing services based around local police officers who are visible, accessible, skilled, knowledgeable and known to the community.
• Enhance our capability and capacity to identify those at risk from chronic crime and anti-social behaviour problems in terms of both victims and locations.
• Engage with local communities to identify the issues which are causing the most harm to individuals and neighbourhoods and agree how the police, other agencies and the public can work together to do something about them.
• Improve  feedback  to  local  communities:  exploring  opportunities  to  use community  messaging,  new  technology  and  newsletters,  aligning  with partners wherever possible.

EFFECTIVE RESOURCE MANAGEMENT

Context

The  economic  downturn  has  placed  significant  pressures  on  government revenues  and  spending  in  Jersey.  The  States  Strategic  Plan  already  gives priority to ensuring sustainable public finances and reforming the public sector to improve efficiency but this has been given further impetus by the decision to implement a Comprehensive Spending Review. This process is intended to reduce departmental expenditure across the public sector by 10% by 2013. To date, proposed savings worth £1.9 million from the Police budget have been agreed.

To put these cost savings into perspective, it is worth noting that the real value of the Police budget has already decreased by nearly £2 million since 2001. Between 2001 and 2010:

- overall expenditure by the States increased by over 91%

- the States of Jersey Police net revenue budget increased by only 27%[6]

- the cost of living in Jersey increased by nearly 38%.

Given what has already been achieved, the Comprehensive Spending Review poses significant challenges. About 90% of the Police budget is spent on staff salaries or other unavoidable commitments such as property rental. This means that  difficult  choices  will  have  to  be  made  about  reducing  or  prioritising different services and managing demand. At the same time, we must retain community  confidence  and  trust.  It  is  therefore  vital  that  we  demonstrate efficiency and effectiveness.

There are 2 key elements to meeting this challenge: we must manage change to ensure we maintain efficiency and we must continue to deliver demonstrable results  in  tackling  the  crime  and  disorder  issues  that  matter  most  to  our community.

Managing Change

Over the past 2 years, States of Jersey Police have pursued a significant reform programme intended to release staff capacity by restructuring the organisation and  refining  work  processes.  This  has  helped  us  sustain  operational performance  by  re-investing  resources  where  they  were  needed  most  and developing the skills and expertise we need.

As part of this process, the Service has developed a new resource management framework based around the 6 criteria set out below.

Partnerships  Resource Leadership Governance People Processes and  and Asset

Engagement Management

Self-assessment against this framework helps ensure that the Service is able to identify  potential  organisational  risks  and  develop  solutions  as  part  of  a structured change programme.[7] A short description of current key projects for 2011 is set out overleaf. It should be emphasized, however, that the framework is a dynamic tool which will stimulate new initiatives throughout the year as new issues, opportunities and priorities emerge.

2011 CHANGE PROGRAMME INITIATIVES

Implement a project programme to deliver required savings and reshape organisation structure and services in light of funding cuts planned for the 2012 phase of the Comprehensive Savings review. (Leadership)

Implement a programme of peer review and external audit to ensure that that  the  organisation  is  operating  ethically  and  efficiently  and  drive continuous improvement. (Governance)

Undertake an organisational skills audit at all ranks and grades to ensure that necessary skills are in place and that the training plan is accurately informed. (People)

Identify alternative approaches to training, learning and development to realise  efficiency  savings  where  possible  and  improve  the  delivery  of training and improve how we develop staff. (People)

Implement the agreed recommendations arising from a review, carried out with  the  support  of  Sussex  Police,  of  current  custody  and  prosecution processes. (Processes)

Implement the agreed recommendations arising from a review, carried out with the support of Essex Police, of the management of States of Jersey Police records and information. (Processes)

Implement  the  agreed  recommendations  arising  from  a  review  of emergency planning, event planning and business continuity. (Partnerships and Engagement)

Continue to plan and manage the relocation of Police Headquarters into new accommodation. (Resource and Asset Management)

Implement  the  agreed  recommendations  arising  from  a  review  of  call handling and incident command and control arrangements. (Processes)

Support  the  independent  feasibility  study  into  the  reform  of  law enforcement services in Jersey and plan for the implementation of agreed recommendations arising from the process. (Leadership)

Support the independent review of the criminal justice system in Jersey and plan for the implementation of agreed recommendations arising from the process. (Leadership)

Managing Performance

Our change programme ensures that the Service is constantly looking for ways to make our resources go further. Ultimately, however, value for money is measured by effectiveness, not cash savings. We must be effective at making Jersey safer, reducing criminality, protecting vulnerable people and building public trust and confidence. Performance management is central to efficiency and  effectiveness –  we  measure  and  manage  our  performance  in  order  to deliver effective results.

Collect and  More informed  Improved

analyse  decision- organisational  Better value performance  making performance for money information

What are we seeking to achieve?

Overall progress towards our stated aim of making Jersey safer is monitored against a set of key performance outcomes.

Low levels of recorded crime

Low levels of the most serious offences

Strong public perceptions of community safety

High levels of trust and confidence in the Police

A high proportion of crime results in offenders being brought to justice

A high proportion of prolific and other priority offenders are brought to justice.

The  likelihood  of  these  key  performance  outcomes  being  achieved  often depends not only on the Police but also on other agencies and wider influences in society. Whilst the Police may be best placed to measure an outcome, this does not mean they are solely responsible for the result.

Measuring Key Performance Outcomes

Measuring outcomes is invariably complex. If we strive for the simple, we risk making policy and resource investment decisions on the basis of simplistic and inadequate information.

We understand, for example, that the level of recorded crime is seen by many people as the definitive measure of police effectiveness. However, we would caution against placing too much reliance on any single performance indicator. Recorded crime, for example, is greatly influenced by factors such as proactive policing of drugs offences, greater awareness of child protection issues and victims being more confident in reporting sensitive crime to the police.

The outcome indicators published in this Policing Plan represent the high level outcomes for community safety in Jersey. They are underpinned by detailed performance measures that detail operational performance and workload in order to inform management decisions and monitor trends in crime locally. Comprehensive performance data and analysis will be published regularly during 2011.

KEY PERFORMANCE OUTCOME MEASURES

APPENDIX 1: PUBLIC PRIORITIES FOR POLICING

JASS 2009 included a comprehensive list of eighteen police duties and services and asked the public to prioritise each into "Very high", "High", "Medium" and "Low" priority. Respondents were also able to choose the option "Don't know".

Very high High Medium Low Don't know

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APPENDIX 2: RESOURCE MANAGEMENT FRAMEWORK

The resource management framework is based upon six criteria against which organisational effectiveness can be assessed.

Partnerships  Resource Leadership Governance People Processes and  and Asset

Engagement Management

Each  of  these  criteria  is  supported  by  a  number  of  objectives  which  the organisation  should  strive  to  achieve  if  it  is  to  be  fully  effective.  A  self- assessment referring to these objectives provides the opportunity to identify strengths and weakness and address potential organisational risks.

Leadership

The organisation has the leadership capacity and capability to implement strategy and deliver the desired culture.

Organisation  structure  is  designed  to  maximise  the  efficiency  and effectiveness of the Service.

New legislation, policies and procedures adopted by the States of Jersey are implemented efficiently and effectively at Service level.

Internal  communication  policies  and  systems  support  effective  service delivery and encourage teamwork, trust and loyalty.

Governance

The management strategies, processes and systems that are essential for the sustained delivery of effective performance are in place.

Health and safety risks are identified, assessed and eliminated in so far as is reasonably practicable by appropriate protection and prevention measures.

Police  information  and  information  systems  are  protected  from unauthorized access, disruption, modification, recording or destruction.

People

The organisation has the capacity and capability to deliver and sustain efficient, effective and sustainable levels of service.

The organisation has the correct workforce mix to deliver an efficient, effective and sustainable service.

The Service has the capacity and capability to deliver change and new initiatives.

Staff are supported and trained to deliver optimum performance and achieve their potential.

All staff act with professionalism and integrity.

The policies and procedures required for the management of discipline and professional standards are in place.

Processes

Key Police processes (call handling, intelligence, investigation, custody, file preparation and prosecution) are systematically designed and improved to deliver optimum performance.

Partnerships and Engagement

Policy and strategy are based on present and future needs and expectations of stakeholders.

People experience an accessible policing presence in their neighbourhoods and are able to influence local policing delivery.

Stakeholders have an informed insight into policing performance and community safety outcomes.

Community safety partnerships to promote joint working, provide direction and ensure value for money are in place.

Partnership arrangements to prepare for, and respond to, major incidents and emergencies are in place.

Business continuity plans are in place to build resilience for critical functions and ensure effective recovery in the event of major service disruption.

Plans are developed and implemented to ensure public safety and security at major public events.

Resource and Asset Management

Information and Communications Technology infrastructure and systems software are managed, maintained and improved to meet Service needs and provide value for money.

Buildings, vehicle fleet and clothing and equipment are managed, maintained and improved to meet Service needs and provide value for money.

Records management policies, systems and procedures are in place to collate, structure and manage information and knowledge and provide appropriate access whilst assuring validity, integrity and security.

Procurement and service contracts are managed to meet Service needs and provide value for money.

Contain spending within the approved cash limit for the year with no supplementary allocations being sought other than in exceptional circumstances.

Seek best value for money in services which should always include considerations for quality, risk to sustainability, environmental impact and local economic development as well as price.

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