SCOTTISH FINGERPRINT SERVICE REPORT TO ESTABLISH AN APPROPRIATE AUTHORISED BUREAU ESTABLISHMENT OF FINGERPRINT EXPERTS

Transcription

1 SCOTTISH FINGERPRINT SERVICE REPORT TO ESTABLISH AN APPROPRIATE AUTHORISED BUREAU ESTABLISHMENT OF FINGERPRINT EXPERTS Inspector Graham Jones September

2 Index 1. Introduction 2. Recorded Crime - Origins of Demand 3. SFS Key Performance Indicators Cases Analysis 4. Activity Analysis 5. Proposed Establishment Based on Cases/Marks Per Expert 6. IDENT 1 / PALM 2 7. Recommendation 8. Additional Considerations 2

3 Fingerprint Trainee Recruitment Supporting Data 1. Introduction The principal focus of this paper is to examine the current distribution of Scottish Fingerprint Service (SFS) resources with a view to determining an appropriate establishment of fingerprint experts necessary to match capacity with demand. Given the number of trainee fingerprint experts within the service at the present time it will take several years to achieve this desired authorisation level. The number and placement of future appointments in the role of trainee fingerprint officer will be considered as a separate issue based around a predicted attrition rate. By considering a series of key performance indicators pertaining to submissions, resources and crime trends within Scotland it is envisaged that additional resources can be apportioned more effectively to meet the ongoing and future needs of the service. Ideally each Bureaux will have sufficient resources to meet local customer demand. In the event that volume outstrips capacity the option to redistribute caseload is always available, ie. to load share. Given that the SFS is to be integrated into the Scottish Forensic Service it would seem both sensible and entirely appropriate that the Fingerprint Service is fully resourced prior to this move occurring. This paper provides the basis for an agreed authorised establishment level. 2. Recorded Crime Origins of Demand Equally important as examining caseload within Bureau is the fluctuation in reported crime across Scotland and how variances in these figures mirror what is happening with case submissions. Table 1 illustrates the percentage of cases that arise from total recorded crime and yearly variations. Case Submissions as a Percentage of Total Recorded Crime (Groups 1-5) Table 1 Aberdeen Dundee Edinburgh Glasgow Total 2003/ % 3.3% 2.5% 3.4% 3.3% 2002/ % 3.2% 2.3% 3.7% 3.3% 2001/ % 1.7% 2.8% 4.6% 3.6% Total reported crime when considered within the context of the regional SFS structure shows relatively minor fluctuations over a four-year period, a slight increase followed by a decrease as highlighted in Table 2. 3

4 Table 2 Total Recorded Crime by Regional Responsibility Groups 1-5 Aberdeen Dundee Edinburgh Glasgow Total 2003/ ,409 (-1.2%) 62,691 (+3.2%) 80,833 (-2.3%) 217,306 (-3.3) 414,239 (-1.0%) 2002/ ,039 (-6.7%) 60,724 (+2.3%) 79,006 (-1.1%) 224,615 (-2%) 418,384 (-1.9%) 2001/ ,942 (-2.3%) 59,383 (+6.8%) 79,862 (+1.8%) 229,124 (+1.8%) 426,311 (+1.9%) 2000/ ,309 (-2.9%) 55,612 (-5.3%) 78,478 (-6.7%) 225,104 (-2.5%) 418,503 (-3.8%) 1999/ ,100 58,699 84, , , /2004 Figures unavailable at present Identification rates for cases arising from Group 1-5 crimes are highlighted in Table 3 below. Group 1 5 Crimes Identification Rate 2003/4 Table 3 Violent/Sexual Housebreaking Auto Other Total Idents Total Cases Received Aberdeen Dundee Edinburgh Glasgow Total 30 (14) 9 (21) 30 (26) 174 (257) 243 (318) 210 (250) 138 (123) 255 (228) 549 (548) 1,152 (1,149) 95 (47) 147 (123) 94 (82) 284 (433) 620 (685) 279 (251) 201 (283) 170 (159) ) 1,413 (1,946) 614 (562) 495 (550) 550 (495) 1,770 (2,491) 3,428 (4,098) 2,276 (1,881) 2,127 (1,940) 2,028 (1,827) 2002/2003 figures in brackets. Idents relate to individuals identified. 7,566 (8,338) 13,997 (13,986) It is predominantly within the area of Group 3 Crimes of Dishonesty, where demand for fingerprint examination occurs. Of the 8,338 cases received by the Glasgow Bureau in 2002/2003 a total of 6,581 fell into the category of Group 3 crime. As with caseload the number of Group 3 crimes has, with the exception of shoplifting, fallen over the four-year sample period. With the exclusion of the Dundee Bureau, reported crime across Scotland in this category has been consistently reducing. When Group 3 crimes are examined in more detail all categories of offence are found to have fallen as a total by 8.1% in 2000/2001, 4.1% in 2001/2002, 7.4% in 2002/2003 and 6.2% in 2003/

5 Reported crime relating to cheque fraud within the Strathclyde Police area has shown a significant decrease from 6,222 crimes in 1999/2000 to 2,622 crimes in 2002/2003. It would seem reasonable to assume that falling crime rates particularly in this area would have a direct bearing upon fingerprint case submissions given that most fingerprint examinations result from this type of volume crime. Group 3 crimes have consistently fallen in volume by a greater proportion than crime as a whole over the same period. The comparison is illustrated in Table 4. Group 3 Crime By Regional Responsibility Table 4 Aberdeen Dundee Edinburgh Glasgow Total 2003/ ,729 (-7.4%) 32,754 (-5.1%) 47,564 (-4.0%) 101,967 (-10.3) 211,014 (-6.2%) 2002/ ,999 (-11.4%) 34,506 (-0.8%) 45,698 (-6.9%) 113,609 (-8.4%) 224,812 (-7.4%) 2001/ ,005 (-7.7%) 34,782 (+1.8%) 49,065 (-2.0%) 124,039 (-5.4%) 242,891 (-4.1) 2000/ ,942 (-3.7%) 34,153 (-8.3) 50,064 (-9.5%) 131,136 (-8.7%) 253,295 (-8.1) 1999/ ,413 37,221 55, , ,511 Given the trend in crime reduction it would be reasonable to assume this pattern will continue in the short to mid term. 3. SFS Key Performance Indicators Cases Analysis Table 5 outlines the standard performance measurement commonly used within fingerprint bureaux prior to and following the formation of the SFS. The previous three years indicators have been used for comparison purposes given that they appear to be the most accurate means of measurement currently available. This information offers a fairly simplistic form of measurement that does not examine the underlying reported crime figures, trends and fluctuations, all of which will have an effect on case submissions, past, present and future. Bureaux are not in the business of evidence gathering and have no control or direct influence over the number of cases or marks per case submitted for examination. There has been some suggestion that DNA has taken priority over fingerprints as a means of identification, however no substantiated evidence exists to confirm what appears to be merely speculation. The Dundee Bureau has shown a dramatic increase in case submissions and marks per case. This resulted from Fife Constabulary having all fingerprint examination undertaken by the Dundee bureau following the formation of the SFS - virtually doubling demand. It is also worth highlighting the number of marks contained within each case, for Aberdeen, Edinburgh and Glasgow the range is between 3 and 3.5 marks per case while in Dundee this increases to 5. 5

6 Table 5 Caseload Distribution Trend Analysis Year Aberdeen Dundee Edinburgh Glasgow SFS Total Total Cases Received 2003/4 2002/3 2,276 (+21.0%) 1,881 (+14.5%) 2,127 (+9.6%) 1,940 (+88.75) 2028 (+11.0%) 1,827 (-17.9%) 7,566 (-9.3%) 8,338 (-21.3%) 13,997 (+0.1%) 13,986 (-9.7%) 2001/2 1,643 1,028 2,225 10,589 15,485 Marks Received 2003/4 7,531 (+16.1%) 11,101 (+14.5%) 6021 (-0.5%) 27,719 (-6.3%) 52,372 (+1.1%) 2002/3 6,485 (+28.5%) 9,695 (+75.1%) 6,049 (+8.1%) 29,581 (-6.9%) 51,810 (+8.0) 2001/2 5,045 5,537 5,598 31,784 47,964 Total Idents 2003/4 614 (+9.3%) 495 (-10.0%) 549 (+10.9%) 1,770 (-28.9%) 3,428 (-16.3%) 2002/3 562 (+0.4%) 550 (+55.8%) 495 (-20.8%) 2,491 (-16.4%) 4,098 (-9.3%) 2001/ ,978 4,516 Figures show the variation of caseload, marks and idents across all Bureaux over a three-year period and the percentage fluctuation year on year in each category. Idents relate to individuals identified. Initial deductions reveal that while caseload has remained fairly static across the service as a whole the distribution of cases being examined has dropped significantly in Glasgow despite showing an increase elsewhere. A sharp decrease in cases was identified in the second quarter of 2003/2004 and attributed to a reduction in cheque fraud cases (a decline evident since 1999) and a change in chemical process techniques within Strathclyde Police. This, however, does not fully account for the reduction in cases during the proceeding two years. A fall in recorded crime, particularly Group 3 crimes (-29%) within the Glasgow Bureau customer base is the most likely cause. Strathclyde Police generate 89% of the caseload for the Glasgow Bureau. This decrease in the Glasgow Bureau is similarly pronounced in the category of marks received and cases identified. In order to provide a broader appreciation of fingerprint activity across the United Kingdom key performance indicators from England and Wales are worthy of consideration, a comparison is outlined in Table 6. Variations in working practices and the rules of corroboration in England and Wales may distort the figures, something to be considered when making direct comparisons, i.e. the use of trainees and chemical development work. 6

7 Table 6 Key Performance Indicator Comparison England/Wales & Scotland 2003/4 Total Cases Total Marks Total Idents % Identified Total Expert s England and Wales Scotland Total 207,014 13, , ,690 52, ,062 36,028 3,428 39, % 24.4% 17.8% * (64) 680 Cases Per Expert (218.7) 325 (average) Marks Per Expert (818.3) (+35.6%) 813 (average) Idents Per Expert (53.5) (+29.6%) 58 (average) *Given the structural differences in England and Wales relating to the inclusion or omission of fingerprint trainees the specific composition of this figure is unknown. Figures in brackets for Scotland include trainees to provide a comparison. It is worthy of note that, in addition to standard identification and verification examinations, staff within the Glasgow Bureau also undertake work connected with Tenprints and AFR. This activity accounts for approximately 10 hours per week in total, essentially a quarter post and may be absorbed in a variety of functions undertaken by supervisors, experts and trainees. These activities primarily focus upon mark input and verification, processing tenprint forms, tenprint to mark searches and quality assurance. The SFS as a whole has demonstrated a reduction in performance across the categories relating to cases and idents and a slight increase in marks, predominantly due to the inclusion of the Glasgow figures. The pattern of activity among the three Bureaux is more varied, predominantly showing improved performance (Table 5). Interestingly Edinburgh is the only Bureau that retained its original customer base (Lothian and Borders Police) following the formation of the SFS. Over the last two years they have been consistently low in the crime to case ratio. When drawing comparisons between Bureaux it is also necessary to consider additional internal factors such as submission of elimination fingerprints, suspects, crime type, quality of material, subsequent attendance at court, sickness, annual leave and courses. All of these factors will determine the level of productivity that can be achieved. The Change Management Review Team (CMRT) recommendation for staff numbers focused upon the work undertaken by Ms Helen McCulloch and Professor Nick Tilly of the Policing and Reducing Crime Unit. A ratio of 18 fingerprint officers (inc Principal, Senior, Expert s and Trainees) per 100,000 crimes was considered the appropriate number. Crime figures for 1999/2000 were used for this study and included the formation of an independent verification team within each bureau, an area not yet established in Aberdeen, Dundee and Edinburgh. Details contained within the CMRT report proved helpful. The outcome of this methodology is replicated in Table 7. 7

8 Table 7 CMRT Proposed Establishment Aberdeen Dundee Edinburgh Glasgow Head of Bureau Deputy Principal Principal Trainer Quality Assurance QA/Trainer Senior Expert Trainee Training Officer TIO Adimn/Clerical In addition to examining Bureaux caseload it is important to consider the relationship between staff numbers and demand. Table 8 illustrates the average number of cases, marks and identifications per staff member highlighting individual demand and productivity. The figures exclude QA/Training officers who are not involved in general examination work. Trainees have been incorporated into the calculation to examine projected productivity once all current trainees attain expert status. The Dundee Bureau has consistently the highest ratio in relation to the number of cases and marks examined per individual, followed by the Aberdeen, Edinburgh, then Glasgow. Average Expert/Trainee Individual Productivity 2003/2004 Table 8 Staff No s Aberdeen - 9 Dundee - 8 Edinburgh - 8 Glasgow 36* SFS - 64 Cases Per Expert / Trainee Marks Per Expert / Trainee Idents per Expert / Trainee 253 (209) 837 (720) 68 (62) 2002/2003 figures in brackets. 266 (242) 1388 (1212) 62 (69) 253 (228) 753 (756) 69 (62) 195 (214) 712 (759) 46 (65) 219 (218.5) 818 (809) 53 (64) * Glasgow total of 36 does not include 3 principal experts employed in QA role. The number of marks examined is considered a more accurate reflection of demand as each case can contain numerous marks all of which require the same individual examination process. The high ratio of marks per case in Dundee distorts the average in Scotland. With the removal of the Dundee figure the average number of marks becomes

9 4. Activity Analysis An activity-based assessment compiled by the Dundee Bureau was extended to encompass the entire SFS. The methodology of this study was to identify the actual number of cases processed and expert hours worked during the period January 2004 March A figure of 2.4 hours per case is used in the study. Activities covered by the assessment included: - Initial case assessment & associated administration - Senior AFR and 1 st Check - Expert Corroboration - Expert Verification - Senior Joint Report Writing Expert General Office Administration Senior / Expert The result of the assessment was used to model capacity over time, and to establish the optimum number of experts to complete the above activities with an identification rate of 25% being assumed. The model has been applied to data provided by each Head of Bureau to calculate desirable resource levels across the SFS, while incorporating abstractions due to annual leave, training and sickness. It does not include the QA / Training or clerical role. Table 9 below details the actual resources available within each Bureau. It is worthy of note that the CMRT Report recommended the creation of a separate verification team within each Bureau and for staff numbers to reflect this. In Aberdeen and Dundee this amounted to one principal and one senior fingerprint officer and Edinburgh a principal and two senior fingerprint officers. The size and relationship between staff in the smaller bureaux make total anonymity an almost impossible situation to create within the existing structure. The Glasgow Bureau has an established verification unit comprising of three principal fingerprint officers. Disparity presently exists in the level and designation of supervisors across the SFS as illustrated in Table 9. This is an area, which clearly requires further consideration. Aberdeen have had to re-deploy the QA/Trainer to undertake the principal role and an expert (serving police officer) to act as QA/Trainer to cover a period of sickness. In the mid term one or both of these posts will require a permanent replacement. The serving police officer will be lost from the bureau strength and remain with Grampian Police when the SFS enters the Scottish Forensic Service. They have also lost an expert through death and another who has returned to Northern Constabulary. These personnel changes have been reflected in Table 9. Actual Bureaux Establishment Table 9 Aberdeen Dundee Edinburgh Glasgow Bureau Head Principal Senior QA/Trainer Expert Trainee Admin/Clerical Available for identification/verification Activity Analysis Recommendation* *Represents minimum number of experts necessary to undertake core tasks. 9

10 The outcome of the activity analysis indicates that Aberdeen, Dundee and Edinburgh require a minimum of eight experts and the Glasgow Bureau 35 to build sufficient resilience into identification and verification processes across the service. 5. Proposed Establishments Based on Cases/Marks Per Expert When considering the distribution of future trainee fingerprint officers it is necessary to consider not only the demand for fingerprint examination based around individual case submissions and accompanying marks but also crime trends and the capacity of each Bureau based on individual productivity. With the exception of the Dundee Bureau reported crime has been falling, a situation not mirrored by the overall number of cases submitted to the SFS that has remained fairly static over the past two years. It is also worth considering the long-term strategic goals of the SFS and the requirement to use trainees as a means of sustaining expert numbers following a failure to attract experts from other parts of the country. Moving away from a time based qualifying criteria to a competency based training framework will still result in a training period of 3-4 years. As experienced recently within the SFS, it is inevitable that trainees and experts will leave the service through retirement, ill health, promotion and career change, all occurrences that the service has no control over. It is therefore necessary to recruit sufficient trainees to achieve the desired authorisation level and an additional element for attrition. The issue of mentoring is also an important one, the ratio of experts to trainees must remain realistic to ensure that adequate training and supervision is available whilst maintaining sufficient resilience to manage unexpected occurrences. Bureaux accommodation must be of an appropriate size to physically accommodate additional staff, welfare, along with Health and Safety legislation are additional considerations. 6. IDENT 1 / PALM 2 It has been broadly recognised that the introduction of Ident 1 / Palm 2 will result in increased identifications with Palmer impressions forming a greater portion of crimes scene marks in the region of 15% - 20%. Should Ident 1 be the preferred replacement option it is likely that identifications will result from crimes committed in Scotland where a suspect has only come to the notice of the police south of the border. Although not a specific issue at present as far as authorised establishment is concerned the likely consequences in introducing either Ident 1 or Palm 2 will require further examination to ensure resources are appropriately matched with demand. It would seem prudent for the Head of the Scottish Fingerprint Service to initiate a study to determine the actual impact of Palmer impressions on the service based upon past case submissions. 10

11 7. Recommendation The purpose of this paper has been to identify an agreed authorised establishment level of fingerprint experts within the SFS enabling future recruitment decisions to be taken based upon this agreement. In conclusion, given the information available and wider considerations it would seem appropriate that any trainee fingerprint officers appointed are firstly distributed on the basis of need, while ensuring ratios, etc. remain realistic. The option to load share will always be available should demand outstrip capacity in any particular location, a practice already utilised within the SFS. In comparing the actual expert and trainee demographics within the service and the various demand profiles it is reasonable to conclude that the appointment and distribution of trainees to ensure an even spread of the workload across the service would result by considering all available information rather than from one performance measurement or perspective. Based on the foregoing analysis, It is proposed that a structure outlined in Table 11 is considered for Aberdeen, Dundee and Edinburgh. Proposed Bureau Structure Table 11 Aberdeen Dundee Edinburgh Head of Bureau Senior Fingerprint Officer QA/Training Officer Experts A resource level of eight experts excluding trainees is the minimum deemed necessary to perform the current range of duties. One additional staff member has a significant benefit to the bureau and SFS in that a more pro-active function can prevail. In addition, it is proposed that an alternative structure be created with the appointment of an additional senior fingerprint officer for each bureau to improve the resilience and integrity of the fingerprint verification arrangements The situation in Glasgow differs from the remainder of the SFS, in both structure and size. Given the various calculation methods it would be reasonable to conclude that current resources are sufficient particularly as Group 3 crime in Strathclyde is on the decline and existing resource numbers compare favourably with the methods of measurement used to calculate appropriate resources. The Glasgow Bureau has capacity to assist the smaller bureau when demand dictates and this may provide a useful buffer should demand increase due to Ident 1 / Palm 2. This is of particular importance while Aberdeen, Dundee and Edinburgh attempt to reach the required authorisation of qualified experts. 11

12 It is therefore proposed that the Glasgow Bureau retains its current establishment as at Table 12 below. However, the need for as many supervisory grades should be reviewed as and when positions become vacant. Proposed Bureau Structure Excluding the Quality Team and Special Cases Unit. Head of Bureau 1 Deputy Head of Bureau 1 Principal Fingerprint Officer 6 Senior Fingerprint Officer 6 Training Manager 1 Quality Assurance Officer 1 Training Officer 1 Experts 27 Table Additional Considerations Given the time taken to train fingerprint experts the importance of a manpower plan cannot be overstated enabling recruitment decisions to be made in a more pro-active manner. Of those trainee fingerprint officer s recruited experience has shown that on average 20 25% leave the service before qualifying. It is therefore essential that sufficient trainees be brought into the service to counteract this drop out rate. Inspector Graham Jones 12