Garda SMI Implementation Steering Group. Final Report

Transcription

1 Garda SMI Implementation Steering Group Final Report February,

2 Table of Contents Page Chairman s Foreword 4 Introduction: Background 7 The Report 7 Change Management 8 Consultation 9 Conclusion & Recommendation 10 Part 1 Review of Garda Síochána Structures and Organisation 1.1 Structures and Service Delivery Community Policing Housing Section Telecommunications Section Traffic Accident Investigation - need for National Unit Roles of Ranks Criminal Justice Management Garda National Drugs Unit National Bureau of Criminal Investigation Logistics Liaison and Protection Transport Maintenance and Procurement Compliance 48 2

3 Part 2 Reviews and projects previously reported to Government Page 2.1 Quality Service Rosters Financial Management and Procurement Human Resource Management Promotion In-Service and Management Training Student/Probationer Training Civilianisation GERM PULSE Legislative Change Performance and Accountability Framework Performance Management 70 Appendices (a) Members of Steering Group 71 (b) Members of Bottom-Up Review Group 72 (c) Glossary of Terms 73 Charts 1 Proposed HQ Structure 18 2 Proposed Regional Organisation 20 3

4 Foreword by Mr Kevin Bonner Chairman of the Garda SMI Implementation Steering Group 1. The Steering Group on the Review of An Garda Síochána concentrated on developing a broad strategic framework for action and on identifying issues for further development within this framework. Following on from that, the Government appointed this Implementation Steering Group in January 1998 to develop and implement the overall programme for change which had been recommended in the report of the Steering Group on the Efficiency and Effectiveness of the Garda Síochána. I welcome the opportunity to outline some of the achievements in respect of the projects developed as part of the Garda SMI process and to present the Steering Group s recommendations for change and modernisation. 2. With the assistance of management consultants a programme of reviews and initiatives has been completed on behalf of Steering Group, including a review of Garda structures, operations and organisation. These reviews have identified key needs/issues to be addressed in relation to the change/modernisation required for An Garda Síochána at this time. The next step is facilitating change. In making its recommendations the Steering Group is conscious of the role traditionally played by An Garda Síochána in Irish society and of the changes which have taken place in that society, particularly the changing nature of crime. 3. The first phase towards fundamental change was the report on Efficiency and Effectiveness of the Garda Síochána. This, the second phase, reviewed structures and operation systems of An Garda Síochána and makes recommendations to facilitate implementation of specific changes. The next phase will be the detailed development and implementation of individual elements of a change management programme. 4. The Report of the Steering Group on the Efficiency and Effectiveness of the Garda Síochána stressed the need for an inclusive approach to the implementation of SMI initiatives, based on excellent communication, consultation and participation at all levels of the Force. We have sought to ensure the widest possible involvement of staff and representative associations. The four Garda staff associations are represented on the Implementation Steering Group and were consulted at all stages of the review process. As part of the research, considerable consultation was engaged in throughout the organisation in regard to the challenges and opportunities 4

5 facing the Garda Síochána. The recommendations made in the report seek to address and develop these issues. In addition, throughout the SMI review process, change management briefings/seminars were delivered to members of the Garda organisation including civilian staff, senior Garda management and all representative bodies. 5. Significant structural change and development has emerged from the SMI process across the public service. I believe that there is recognition within the Garda Síochána of the need for change and for modernisation of practices and procedures. I have no doubt that the SMI process will support the Garda Síochána in providing an efficient, effective and excellent policing service to the public at all times. 6. There are issues to be addressed in deciding future policy. Transition to the new structures will require careful strategic planning and management of change, leadership involvement, good communication and proper co-ordination of implementation. As well as looking at the business of the organisation, An Garda Síochána needs to look at the way in which it does its business so as to achieve more effective management and supervision of resources. This progress report recognises the apprehension which may face some of the stakeholders. However, this is also an opportunity to ensure that the Garda Síochána positions itself to continue its proud history of excellent service to the community. The benefits to the organisation will be optimised by introducing new management processes and developing the culture of the organisation to reflect the defined competencies of each rank. 7. The overall design phase of the Garda SMI projects is now completed. The Garda SMI programme involves a continuing process of change. As a consequence, while recognising that there are implications regarding resources which may have to be considered in the context of Government policy on staffing levels and expenditure, the development and implementation of change must be regarded as a long term process requiring continued commitment of dedicated resources in the years ahead. In other words, this report marks the beginning rather than the end of a process, a process which must continue into the future, and which must and will be led more and more by the Garda Síochána itself as an organisation. By adopting a strategic approach, best management practice, and adapting to changing circumstances, an Garda Síochána can maintain and continue its role as an organisation in which the nation can have confidence and pride. 5

6 8. The high level implementation plan, which will enable Garda management and the Department to plan the modernisation and enhancement of the Garda organisation, is provided in the structures and service delivery review. The detailed implementation can be decided and priorities planned and developed further as necessary. 9. I would like to take this opportunity to thank the members of the Steering Group, the Bottom up Review Group and the Garda SMI Team and all who contributed to successfully bringing forward such a wide ranging programme of recommendations for change. I would particularly like to thank Mr. Declan Brennan, Chairman of the BURG, and Assistant Commissioner Crummey for the sustained efforts they made to further our work. I would like also to acknowledge the input of Mr. Eamon Leahy, SC, who contributed to the review of legislative change and who we sadly missed after his untimely death. 10. I would recommend to Government to accept these recommendations as the basis for driving forward and implementing the process of change and modernisation which must continue over the coming years. Kevin Bonner Chairman 6

7 Introduction Background In November 1997 the Government accepted in principle the recommendations set out in the Report of the Steering Group on the Efficiency and Effectiveness of An Garda Sío chána. That review was conducted within the framework of the Strategic Management Initiative across the public service. The report contained many recommendations requiring a more comprehensive development of issues relating to the organisation, operations, financing and performance and accountability of An Garda Síochána. In January 1998 the Government established a Garda SMI Implementation Steering Group, chaired by Mr Kevin Bonner, to develop the report s recommendations for implementation. To this end, a Bottom-Up Review Group (BURG), chaired by Mr Declan Brennan, was established to focus on organisation structures/systems and the deployment of operational resources and to bring recommendations to the steering group in the areas for which it was made responsible. The BURG was comprised of representatives of An Garda Síochána, the Department of Justice, Equality and Law Reform and the Department of Finance with the assistance of an independent member. A fulltime Implementation Team, comprising representatives from the Department of Justice, Equality and Law Reform and from An Garda Síochána management, was also appointed to assist the BURG. The Report The Government was advised in November 1997 that the overall development and implementation process could take three to five years. The first report to Government was made in June 1999 with a second in June The BURG reports are also summarised in this comprehensive report. This is the final overall report from the Steering Group to Government. 7

8 The Report outlines progress that has been made to date in developing the Garda SMI projects. It is presented in two parts: Part 1 gives an overview of all projects completed since the last Report to Government in June Part 2 gives an overview of projects previously reported to Government and outlines the progress made towards implementation. For clarification purposes, please note that material included under the heading Summary of Key Findings in each section below refers to the position established by the BURG at the time of the review in each case. Change Management The original Garda SMI Report stressed the need for an inclusive approach to be taken to the implementation of the SMI initiatives based on communication, consultation and participation at all levels of the Force. The Steering Group has sought to ensure the widest possible involvement of staff and representative associations. The four Garda staff associations were represented on the Implementation Steering Group and were consulted regularly by the Bottom-Up Review Group. Staff unions representing civil servants working with An Garda Síochána were also consulted. Throughout the SMI process the Implementation Team has provided regional change management briefings for senior ranks from Inspector level up, in addition to information seminars throughout the country for all Garda personnel and civilian staff. 8

9 Four information newsletters were issued to all members of the Force and to civilian staff outlining progress on SMI projects. Following on from the Garda SMI process, change is already being introduced in a range of areas including HR and financial management, training, promotion systems and quality service. Consultation The Bottom-Up Review Group (BURG), set up to undertake the reviews on behalf of the Steering Group, entered into intensive consultation with the Garda Associations regarding the reports and the recommendations being made therein. The Associations recognise the necessity for continuing modernisation and change in An Garda Síochána. However, they have voiced concerns as to some of the recommendations made. Their views may be summarised as follows: Garda Representative Association, Association of Garda Sergeants and Inspectors Both Associations recognise the right of the Steering Group to bring forward this report, but reserve their position on the recommendations pending consideration at the appropriate forum during implementation. Association of Garda Superintendents The Association of Garda Superintendents has stated that it recognises the necessity for continuing modernisation and change in An Garda Síochána. The Association has reservations regarding; - implications of the restructuring of the rank of Superintendent, - implementation of the report on criminal justice management, - presentation of cases at Court. 9

10 Association of Garda Chief Superintendents The Association of Garda Chief Superintendents expressed some fundamental concerns around the effect on their role of the changes recommended. Principally they consider that; - their responsibilities will be diminished in part because of what they see as an enhanced role of the Regional Assistant Commissioner, - no policing model has been shown on which the recommendations are based, - insufficient detail has been given in the Implementation Plan, - the recommended changes should have been costed in detail. Clarification was supplied to the Associations of Garda Chief Superintendents on a number of matters in the form of a written document and an oral presentation from the principal consultant concerned. Conclusion The Steering Group believes that there is recognition within An Garda Síochána of the need for change. It recognises that the recommendations and, in particular, those contained in the organisational structures and service delivery report, raise important issues for An Garda Síochána and the capacity of the organisation to embrace change. The Steering Group also recognises that some recommendations in the Report will present challenges for Staff Associations, however, the recommendations are designed to ensure that the Garda organisation has the appropriate management structure and systems in place to equip it for the future. The Steering Group is confident that all ranks will discuss and resolve these matters during the implementation phase. The Group recognises that some of the recommendations have implications in terms of both Human and Financial resources and is conscious that the implementation of such recommendations may have to be considered in the context of Government policy in relation to authorised staffing levels and public expenditure. 10

11 A broad implementation outline is included by which implementation of the recommendations is planned to take place over four to five years. As work progresses a more detailed plan should be devised between Garda management and the Department of Justice, Equality and Law Reform. The aim of these reviews is to position the Garda organisation to respond efficiently and effectively to the challenges it faces. One of the key recommendations is that an additional post for a Deputy Commissioner be created. This is seen as a key driver in the whole change management process. Recommendation Having now completed its brief of developing an overall implementation strategy and plan, and having had a Bottom-Up Review of An Garda Síochána carried out, the Steering Group presents this third and final report to Government. The Steering Group recommends acceptance of the report as the basis for the development and implementation by the Department of Justice, Equality and Law Reform and by Garda management, in consultation as appropriate with the staff associations, of broad based reform of the Force along the lines recommended. 11

12 PART 1 Review of Garda Síochána Structures and organisation Projects undertaken: 1.1 Structures and Service Delivery 1.2 Community Policing 1.3 Housing 1.4 Telecoms 1.5 Traffic Accident Investigation Unit 1.6 Roles of Ranks 1.7 Criminal Justice Management 1.8 Garda National Drugs Unit 1.9 National Bureau of Criminal Investigation 1.10 Logistics 1.11 Liaison and Protection 1.12 Transport Maintenance and Procurement Compliance 12

13 1.1. Structures and Service Delivery This is the first comprehensive review of the Garda organisation and structures since the establishment of the Force. As such it has the potential to impact on the role of a large number of people and has significant implications for the public, Government, Garda management and the Garda associations. The review seeks to identify the appropriate Headquarters (HQ) and Regional organisation structures for the Force. It also looks at the roles of ranks and the requirements with regard to resources and control of resources Main Terms of Reference To define roles of HQ, National Units and Regions. To design organisational structures for HQ and Regional levels around proposed options for devolution, service delivery and station infrastructure. To consider whether the workload at Regional level merits the appointment of functional Chiefs/Superintendents/Inspectors to manage the core roles. Consider whether rural and urban organisation structures should be different. To determine requirements for planning units, taking into account potential establishment of functional roles. To assess the impact on current structure, roles and responsibilities, ranks, etc. of any proposed changes. To identify change management implications. To develop the proposed options in relation to the establishment of a strategy and planning function Summary of Key Findings HQ Structure The role of HQ is not appropriately defined - There is an over-emphasis on operational detail. 13

14 - Structures do not consistently promote decision-making at the most appropriate level. - Current management processes do not effectively facilitate coordination, the elimination of conflicting priorities, the delivery of value for money, and the better management of resources. Strategic planning suffers from the lack of a structured and rigorous approach - Strategy, planning and performance measurement functions need to be further developed to provide for a much more structured approach to the development, implementation and evaluation of policy, and thus establish the basis for an accountable and effective policing service. - Strategy/policy is not consistently translated into action at local level. Current support functions e.g. Finance, IT, HR, are over-stretched - The need for highly developed support functions continues to accelerate. - Specialist skills are lacking in areas such as planning, strategy, procurement, human resources, change management, communications, internal audit and in management accounting. The skills of the various managers throughout the system need to be developed. The current structure is not sufficiently responsive to the needs of the public, the Government, or the Regions. Regional Structure The organisation structures are not clearly defined. The role of the Regional Commissioners needs to be developed to one which has more management responsibility for the policing activities in a Region. 14

15 Resources are fragmented at station and/or District/Divisional level (detectives, traffic, drugs). The current structure inhibits optimum visibility of Gardaí because of the significant number of Garda resources that are allocated to station/desk duty. In the Dublin Metropolitan Region there are 42 stations open 24 hours a day. There is an imbalance of workload with the current Division/District split. The absence of adequate performance measurement has led to a lack of accountability for resource usage. Financial management is inadequate. There are inconsistencies in policing across Regions and country Principal Recommendations HQ (principal recommendations) The review recommends a restructuring of HQ in order to provide for an increased emphasis on strategy, planning, evaluation, and performance management. It also recommends the following: A third Deputy Commissioner should be appointed to head up a Strategy and Performance Branch. The Steering Group considers that the current spread of functions of the two Deputy Commissioners is too broad. Given the commitments of the existing Deputy Commissioners it is inconceivable that these posts could undertake the new range of functions/duties involved in the introduction and management of: - a much more rigorous approach to corporate and policing strategy development. - performance measurement. - an internal inspectorate. - internal audit. - policy evaluation. - change management. 15

16 These elements are essential to the role of HQ and they need to be supported at the highest level in the organisation. It should be recognised that the role of HQ (see fig. 1, page 18) should primarily be concerned with: - the development of corporate and policing strategies and policies. - the delivery of leadership and vision for national and regional operational units. - the delivery of leadership and vision in support areas and the provision of support services to national and regional policing units i.e. HR, Finance, Personnel Administration, IT, Procurement. In order to be accountable to Government from both a corporate governance and a policing perspective, the organisation should introduce a more rigorous approach to strategy, planning, policy evaluation and performance measurement. The organisation should: - demonstrate to Government that its services will be provided in the most efficient and effective way. - introduce the systems, processes and management disciplines that will enable it to both identify effective use of resources and demonstrate the linkage between outcomes and the use of resources. - consolidate, strengthen and radically rethink how corporate and policing strategies are developed. - introduce sufficient resources to allow consistent policy development, policy implementation and evaluation, and performance measurement within the organisation. 16

17 - establish and introduce a performance measurement framework across the whole organisation. - develop robust management processes across the senior management team at HQ to facilitate change. - foster a culture of value for money. 17

18 Fig. 1 Proposed HQ Structure Commissioner Deputy Commissioner HR, Finance + ICT Deputy Commissioner Strategy & Performance Deputy Commissioner Operations Director of Finance Procurement Housing Transport Pay Offic e HR Training & Development College Health & Safety Discipline & Complaints Director of IT / Telecoms PULSE Corporate Strategy & Policing Policy Traffic Bureau/Policy Community Relations/ Policy Change Management Strategy & Policy Unit Performance Measurement Inspectorate Internal Audit ODU Regional Commissioners X 6 National Units Specialist Services NBCI GBFI CAB GNDU GNIB Technical Bureau Air Support Unit Garda Water Unit Garda Dog Unit Commissioner or Deputy Commissioner Level Garda Mounted Unit Assistant Commissioner / Director Level Typically at existing rank level, ie, Superintendent or Chief Superintendent New Roles Crime & Security Crime Administration Security/Intelligence Liaison & Protection SDU / ERU Defence Unit 18

19 Regions (Principal Recommendations) The report recommends improvements in the allocation and management of regional resources. In the interest of more effective policing, resources should be allocated to districts rather than to a station. Detective resources should be managed at divisional level under a divisional Detective Superintendent/Inspector (where appropriate) rather than at District level as at present. The recommendations also include the following: The adoption of the proposed Regional organisation structure (see Fig. 2, page 20) as a means to improve the use of resources and as a skilled support to Regional Managers in the areas of HR, Planning, Training, Finance and Telecommunications. A reduction in the number of Districts by between 20 and 32 and the minimum target to be kept under review. A reduction in the number of Divisions by five and a reduction in the number of Regions by one. 19

20 Fig. 2 Proposed Regional Organisation - Option B Proposed Regional Organisation - Option B Regional Commissioner Support Services Divisional Officers Divisional Officers Divisional Officers Telecoms HR Training Finance IT / PULSE Personnel Admin Planning & Evaluation Regional JLO Coordinator Assistant Commissioner Level Chief Superintendent Level Typically at existing rank level New Roles 20

21 Stations (principal recommendations) The review of station requirements focused on the development of reasonable criteria so as to inform policy in relation to resources and high visibility policing. Two Regions were reviewed the South-Eastern Region (SER) and the Dublin Metropolitan Region (DMR). The review found that typically between 80 and 90 per cent of customers called to a Garda station during regular office hours, that most callers required a Garda signature (for passport, licences, etc.) and that very few callers arrived during the night. The review sets out criteria for four different types of station use, based on public demand, and it suggests the most appropriate use of both human and station resources. It concludes that the application of the criteria in the DMR will free up in the region of 240 personnel at Garda and Sergeant rank. This represents the freeing up of approximately 46 per cent of the Garda resources currently assigned to station duty. The principal changes recommended refer to the DMR, with no change proposed for the SER. The recommendations are as follows: - Divisional Headquarters which would contain offices, custody suites, staff facilities, public offices. These stations would open on a 24-hour basis. - District Headquarters which would contain offices, custody suites, staff facilities, public offices. These stations would open on a 24- hour basis unless situated within 2 kilometres of a Divisional Headquarters, in which case they would operate variable opening hours depending on the workload and number of callers. - Working Stations which would contain meeting rooms, staff facilities, a public office and would operate variable opening hours. - Public Offices which would open between one and eight hours a day to facilitate the various requirements of the public. The objective is to provide detention facilities to the highest standard at Divisional/District headquarters which would include full video/audio taping. 21

22 Consolidation and rationalisation of facilities will also free up Gardaí for other duties such as street patrols in Dublin. 22

23 1.2 Community Policing In urban/suburban areas community policing is concerned with assigning individual Gardaí or Garda teams to particular communities on a long-term basis. This is intended to foster local commitment and a problem solving approach to crime prevention through Garda participation in the community and community support for Garda activities. Rural policing is delivered by dividing a geographical area, i.e. a district that is managed by a Superintendent, into two key areas, each of which falls under the remit of an area administrator, i.e. a Sergeant. Each of the area administrators is assigned an allocation of smaller stations. This ensures that all work carried out within the area comes under the supervision of a Sergeant. While this model generally ensures that Gardaí operate from the station to which they are attached, it also supports the efficient use of personnel through deployment within the designated area. Community policing was developed to improve relationships between Gardaí and their local communities. It is seen as a valuable policing tool and is acceptable across all communities. Community policing has been in operation since 1987 and the 1993/7 Corporate Strategy document sets out the commitment of the Force to this important element of Garda activity. The activities delivered through Community/Rural Policing are: - Community interaction/communication. - Public Order & Complaints. - Maintaining high visibility patrols. - Youth/Elderly. - Victim Support. - Neighbourhood Watch. 23

24 - Crime Detection & Prevention. - Community Liaison/Meetings. - Problem Solving/Investigation Main Terms of Reference To review the current community policing models. To consult with key stakeholders. To develop urban and rural templates for service delivery Summary of Key Findings The report concludes that the role of Community Policing is not well defined, that it is poorly organised, suffers from a diversion of resources and lacks performance management and planning. Inconsistency and lack of priority are key issues to be addressed. There is a requirement to refocus the role of community/ rural Gardaí. Community/rural policing is to some extent dependent on the personal commitment of local management to this form of policing and the level of support provided. The diversion of resources to other duties would appear to vary significantly within the Force. The lack of available records to quantify this is in itself an issue of concern. There is a considerable lack of supporting infrastructure for community/rural policing units. Overall, reporting structures in relation to community/rural policing units vary. The work and outcome of the work undertaken by community/rural Gardaí is inappropriately measured, if at all Principal Recommendations The report recommends that two different models of community policing will be necessary to satisfy both rural and urban requirements. What is intended by community policing should be clearly defined. A consistent and flexible 24

25 framework should be developed which is supported with dedicated resources appropriate to the policing needs of the District. The objective is to provide for development of policy and operational guidelines so as to generate a more proactive approach to community policing, through ensuring more clearly defined roles, functions and management practices. Urban/suburban areas should continue to have designated community policing units, but address the recommendations contained herein. The rural policing model in place in Thomastown and Enniscorthy should be adopted and implemented nationwide as offering the best solution in terms of effective resource management and also in terms of delivering a comprehensive service. A consistent and flexible framework should be developed which facilitates local requirements and needs, but which also allows for comparison and performance measurement. Each District should devise an operational plan which supports the strategic objectives, but which also takes account of local requirements and needs. The status of Community Policing Officers needs to be enhanced through training and a performance measurement system. Reporting structures should be reviewed. Resources should be better managed and the diversion of resources from community policing duties needs to be controlled. The selection of personnel to community policing should be governed by a competency framework. Specialist training for community policing personnel is required on a continuing basis. The employment of clerical support staff should be considered so as to reduce the administrative burden on Gardaí and free up more resources for patrolling. 25

26 1.3 Housing The Housing Section of An Garda Síochána is staffed by one Superintendent, one Sergeant, one Garda and three civilian clerical staff. The section is based at Garda Headquarters, Phoenix Park, and is tasked with co-ordinating two areas: The Garda building programme. The maintenance of Garda stations and other Garda buildings. Actual work in these two areas is managed and/or undertaken by the Office of Public Works (OPW) in the case of the Garda Building Programme and/or OPW/private contractors in the case of the refurbishment/maintenance works. The capital expenditure on the building of new stations is met from within the Vote of the OPW. Apart from 703 Garda Stations throughout the country, there are major Garda complexes at the Phoenix Park, Templemore, Harcourt Square and Santry, as well as smaller Garda units of accommodation such as Garda Welfare offices, radio workshops and official Garda accommodation. All Garda buildings are maintained from the Garda Vote with the main expenditure falling to essential maintenance work. The projected expenditure on the building and maintenance programme for 2003/2004 is approximately 20 million capital and 7.5 million maintenance. Since 2000, maintenance and upkeep of stations has cost in excess of 21million Main Terms of Reference The Phase ll review of Garda Headquarters identified a need for professional expertise in the Housing Section to manage the property portfolio and to bring a higher level of skill to dealings with the OPW and professionals in the architectural and engineering areas. This review was undertaken: To evaluate the requirement for staff with a relevant professional qualification. To examine the relationship the Housing Section has with the Department of Justice, Equality and Law Reform and the Office of Public Works. 26

27 1.3.2 Summary of Key Findings The review found that: While existing staff in the Housing Section have considerable on the job experience, they have limited relevant experience in buildings maintenance and construction, health and safety legislation/requirements, etc. The Section is very much focused on hands on issues and administration. There is a lack of clarity in relation to strategy and planning as personnel are involved in running the Section rather than in policy formation Principal Recommendations The report recommends the following: A professional person should be appointed to the Section. The section should be restructured and civilianised, with the civilian appointee as head of the Section. The responsibility for health and safety, in relation to building matters, should be reassigned from Human Resource Management to the Housing Section. Health and safety in relation to building matters should come under the remit of the Director of Finance. The objective is to develop clear strategy and planning for the Garda property portfolio, having regard to value for money, Garda accommodation requirements, etc. In addition the appointment of a professional will provide specific expertise and free up the Superintendent in charge for other policing purposes. 27

28 1.4 Telecommunications Section The Telecoms Section employs a total of 100 staff, 50 of whom are based at Garda Headquarters and 50 deployed throughout the divisions across the country. All the staff are Gardaí who were recruited as telecom technicians and they report to a Chief Superintendent at Garda Headquarters. The role of the section is to provide adequate technical support to the organisation, to ensure that modern technology is provided for the investigation of crime, and to purchase and implement new technology and upgrade existing technology Main Terms of Reference A review was undertaken covering strategy/planning, structures, subcontracting, staffing/training, etc., with a view to identifying the functions and resources appropriate to the Section Summary of Key Findings The review found that there is a lack of clarity in reporting structures, that middle management needs to be strengthened and that continuous training is largely adhoc. A statement of strategy has not been devised for the Telecoms Section, with the result that operational matters assume greater priority than planning and management functions. There is a lack of clarity in the reporting structures of staff working in the regional units. Under-performance in sub-contracting may be attributed to poor contract management; there is evidence of ineffective enforcement of penalty clauses. The Section has some vacancies, which it has had difficulties in filling owing to the prevailing labour market. The middle management structure in the Telecommunications Section needs to be strengthened. 28

29 Regional staff has mixed reporting relationships and sometimes feel cut-off from the HQ Telecoms function Principal Recommendations The report recommends that the Telecommunications Section be merged with the IT Section to form an Information Technology and Communications Section, managed by a Director reporting to the Deputy Commissioner HR, Finance and ICT. A staffing analysis should be undertaken upon the merger of the Telecoms and IT Section to assess resource and skill requirements. A structured training plan and budget should be devised. Performance measures should be developed, monitored and evaluated on a regular basis. It is essential that the new Section develops a strategy which encompasses all technologies in the context of defined short-term and long-term goals and objectives. All opportunities to outsource and subcontract should be fully assessed and a management centre should be established to facilitate the improved organisation and management of resources. All staff would therefore be managed centrally, while continuing to remain part of the local team. Administrative matters could be reported locally. 29

30 1.5 Traffic Accident Investigation - Need for National Unit The Garda Síochána Code provides that the investigation of traffic accidents will be carried out by a Garda, with the investigation file reviewed and a prosecution recommendation made by the Sergeant, followed by confirmation by the Superintendent of the recommendation made Main Terms of Reference To examine the case for establishing a specialist national traffic accident investigation unit to deal with serious or fatal traffic accidents, including costs and benefits and whether the number of accidents merited such a unit. To identify the means of establishing consistency in the standard of investigation of serious accidents Summary of Key Findings The review found that: Specific statistics are not kept to identify consistency in the standard of investigation of serious or fatal road accidents. There is no evidence of traffic accidents being inadequately investigated. The establishment of a specialist national traffic accident investigation unit for serious or fatal traffic accidents is not justified Principal Recommendations The report put forward alternative recommendations regarding the development of standard practices so as to ensure a more consistent approach to the management of serious or fatal road accidents (similar to a murder investigation). The report recommends the following: The direct management of serious/fatal traffic accidents should be undertaken by more senior ranking officers, at District Officer, Traffic Inspector or Regional Traffic Superintendent level. 30

31 Templates and checklists should be used to ensure that all relevant information and evidence is collected so as to improve the quality of accident investigation file preparation. An in-service training refreshment programme should be established to promote the importance of consistency in accident investigation. Performance measures should be introduced to facilitate a quantitative assessment of the current accident investigation process and the need for Investigation Units. The report concluded that the core functions of Traffic Accident Investigation will not change. Implementing the recommendations will result in improved management and investigation of serious/fatal traffic accidents, standardised preparation and processing of the investigation, and better liaison with relatives and/or external agencies. 31

32 1.6 Roles of Ranks This review of the roles of the ranks of Sergeant, Inspector, Superintendent and Chief Superintendent within An Garda Síochána was undertaken to identify the actual activities carried out by these ranks. A comparison was made with the job descriptions for each individual rank Main Terms of Reference To identify the activities actually carried out and the priorities within the various ranks To identify any differences between current perceptions of the demands of the role and the actual role descriptions, particularly with regard to SMI and the scope for greater efficiency and effectiveness of policing Summary of Key Findings The principal findings of the review are as follows: The organisation is administered rather than managed. The priority for individuals across non Garda ranks is delivering a police service rather than managing the resources to deliver a policing service. Supervision of Garda resources is insufficient. A higher priority and more time should be allocated to resource management and performance measurement. There are significant similarities between the functions of Superintendent and Chief Superintendent. A better definition of the roles of ranks is required, management processes should be better developed and the necessary change management training should be provided Principal Recommendations The design and content of management development initiatives should focus specifically on the issues emerging from this report. 32

33 The organisation needs to place greater emphasis on the staff development role of the line supervisor. Sergeants Greater attention should be given to the managerial and supervisory role of Sergeants. Inspectors Should be more involved in: - planning in relation to crime. - major crime investigations and traffic management. - organisational development and staff coaching. - reviews with their superiors of ongoing operational plans. - overseeing and supervising incident response, minor crime investigation and traffic law enforcement. Superintendents Greater attention should be given by Superintendents to management activities, for example, organisation development, development/review of operational plans, budgets for future expenditure and long term personnel planning. Chief Superintendents Chief Superintendents have a broader geographical area of responsibility than Superintendents and they should be involved in: - more complex policing activities and high level management functions. - complex management activities, particularly overseeing and supervising organisational development, directing the development or review of operational plans, developing/planning budgets for future expenditure and taking charge of long-term personnel planning. 33

34 The new management structures recommended and the emphasis on efficient and effective management will have to address the overall issue of ensuring that the roles of the ranks above reflect the demands placed on the Force today. 34

35 1.7 Criminal Justice Management Criminal Justice Management (CJM) refers to the prosecution systems which are operated within An Garda Síochána to process a crime from the time of detection to the final court outcome Main Terms of Reference To examine the efficiency and effectiveness of the prosecution systems for the Dublin Metropolitan Region (DMR) and the South Eastern Region (SER) and recommend possible improvements. To examine the impact on roles of ranks. To conduct a cost/benefit analysis of the recommendations Summary of Key Findings The review found that there is a lack of a separate dedicated management structure to focus on criminal justice management policy and operations. This is evidenced by a number of factors such as the unacceptably high strikeout rate in District Courts in the DMR and the fact that the delivery of evidence by some gardaí in the DMR falls short of an appropriate standard in some cases. Weaknesses were highlighted in relation to the quality, deportment and supervision of gardaí appearing in court and presenting court cases. These findings did not apply to Gardaí in the SER and this is attributed to the presence of Superintendents/Inspectors in court performing the dual role of presenting cases and monitoring performance. A tracking form system, facilitated by the Criminal Justice (Miscellaneous Provisions) Act 1997, in use in selected parts of the DMR emerged as the most effective presentation method in terms of conviction rates, strike-out rates and length of time taken from date of offence to date of final hearing. Using this system, a case is managed by a court presenter (Sergeant) during 35

36 the various adjournments that can take place before final hearing. Only then is the arresting Garda required to attend in court. There are no standardised templates for file preparation and there is no manual of guidance for writing up statements. There is an apparent lack of sufficient training for gardaí on court appearances and presentation. There is a need for more formal communication structures between the Garda Síochána and the key stakeholders in criminal justice management. Performance measures are either not focused on multiple outputs (e.g. use of cautions, use of vehicle rectification system) or do not extend to what happens in the court (e.g. the number of summonses served that resulted in an outcome from final hearing, and the number of charges). The vehicle rectification system requires that where a minor defect is detected, e.g. a bald tyre, under the Road Traffic (Construction, Equipment & Use) Regulations 1963, the offender presents at a nominated Garda station to show that the defect has been rectified. If rectified, no prosecution will ensue Principal Recommendations A Criminal Justice Management Unit should be established for the DMR. This unit will have responsibility for the management of the court presenters system and the performance of gardaí in court. Outside the DMR matters relating to the court, i.e. management of the court presenting system, performance of gardaí in court, should be the overall responsibility of the support services unit in each region. More formal structures of communication should be established between An Garda Síochána and the relevant stakeholders in the area of criminal justice management. The tracking form system should be adopted throughout the DMR and the SER and ultimately be established on a national basis. 36

37 The role of court presenters in the DMR should be expanded so that it includes presenting the case at final hearing. This would free up significant resources. Outside the DMR the responsibility for court presenting should move away from Superintendents and Inspectors to Sergeants. Comprehensive and practical training should be provided on all related areas. A manual of guidance should be provided for members on writing up statements. Performance should not be measured according to single measures, e.g. the number of summonses applied for, but rather should also include conviction rates, strikeout rates, etc. 37

38 1.8 Garda National Drugs Unit (GNDU) The Garda National Drugs Unit (GNDU) was established in 1995 and is based in Dublin Castle. The review examines the role of the GNDU, its interaction with Regions, Divisions and Districts and identifies how its value could be maximised. Generally, the review concluded that a more focused effort was required on coordination so as to reduce duplication and maximise the value of the Unit to local operations Main Terms of Reference To define the role of the GNDU vis-à-vis regions, divisions and districts. To consider the appropriateness of service level agreements. To review international practices in this area. To evaluate proposals for an additional Assistant Commissioner in C Branch. The objective is to improve co-ordination, management practices and procedures so as to maximise the value and effectiveness of GNDU to local Garda drugs enforcement operations Summary of Key Findings The review found that: Co-operation between national agencies, voluntary bodies and international police bodies works well. There is no centralised management; co-operation between district and divisional units is very much on a voluntary basis; such co-operation as exists tends to be left to chance and individual initiatives. Few Divisions/Districts have drugs policing plans, despite the requirements in the Annual Policing Plan to have one. There is a clear need for greater co-ordination of operational activities across the Force. 38

39 Performance measurement for GNDU can be quite difficult. While the number of seizures or successful prosecutions, etc., are relevant and important, they may not necessarily be the only or best indicators. The lack of a consistent organisational structure for Divisional/District drug units not only makes management and co-ordination more difficult but can also undermine the work of drugs units in neighbouring Divisions/Districts and create opportunities for dealers. There is a very clear need for operational support within some Divisions and Districts. There are no set criteria used by GNDU in deciding whether to provide operational support other than the general nature of the operation Principal Recommendations The report recommends the following: A more co-ordinated and directed drugs policy and strategy should be put in place. The co-ordination of drugs law enforcement activities throughout the Force should be enhanced, particularly across Divisions/Districts. More formal performance measurement and management structures should be put in place, Divisional and District structures should be standardised, and in particular Drugs Units should be organised on a Divisional basis. The GNDU should provide enhanced support to local units, including interdivisional co-ordination and operational backup. Specialist training courses should be developed for members involved in drugs law enforcement. The recommendation to assign an Assistant Commissioner to the management of the National Units has already been put into operation. This will benefit all units as the shared administration will maximise the efficiency of available investigative resources and avoid duplication of tasks and resources. 39

40 1.9 National Bureau of Criminal Investigation (NBCI) The National Bureau of Criminal Investigation (NBCI), based at Harcourt Square, investigates serious and specialist crime, with a specific role in organised crime investigation. The unit provides a nucleus of expertise which on request assists local officers responsible for investigations. The review found that there are no set criteria for the involvement of the NBCI in investigations and that its resources are focused on reactive investigations rather than on proactive targeting of organised crime Main Terms of Reference To define the NBCI s role vis-à-vis Regions, Divisions and Districts. To consider the appropriateness of service level agreements. To review international practices in this area. To evaluate proposals for an additional Assistant Commissioner in Crime and Security Branch Summary of Key Findings The review found that: The nature of the work of NBCI is very reactive: a crime is committed and NBCI investigates. Due to the investigative workload, few if any resources are available for constant, proactive targeting of organised crime/criminals. One of the key means of gathering intelligence and targeting organised crime is through the use of surveillance. While NBCI has a small surveillance unit, it is not sufficient to meet the needs of existing investigations and the future targeting of organised criminals. Certain units, e.g. Anti-Racketeering, and Arts and Antiques, suffer from regular diversion of their resources to supplement the Investigation Units within the NBCI. There is an absence of criteria for the involvement of the NBCI in local investigations. 40

41 1.9.3 Principal Recommendations The report recommends the establishment of an organised crime unit within the NBCI (This recommendation was also highlighted in the Annual Policing Plan for 2000/2001). The report also recommends the following: Garda management should define the criteria by which NBCI will be assigned to cases/investigations. Intelligence capability should be enhanced, including better sharing of information. An element of the NSU should be dedicated to support all the national units, including NBCI (and local units as appropriate). Co-ordination between Divisional/District detective units should be improved, facilitated by Regional Commissioners and/or NBCI. A structured programme of secondments into NBCI from local detective units should be put in place so as to enhance overall capacity and transfer skills and knowledge to local officers. The recommendation to assign an Assistant Commissioner to the management of the national units has already been put into operation. This will benefit all units as the shared administration will maximise the efficiency of investigative resources available and avoid duplication of tasks and resources. 41

42 1.10 Logistics The Logistics Section of An Garda Síochána, based at Garda Headquarters, is structured in four subsections; Central Stores, Purchase Support Office, Purchasing Office and Accounts. The role of the Logistics Section is to organise purchasing, receiving, storage and payment for goods and services for the organisation. The staff comprises one Superintendent, one Inspector, five Sergeants, two Gardaí, fourteen civilian clerical support and seven store persons. The section comes under the responsibility of the Director of Finance. The necessity for improved accountability and control in the provision of goods and services to meet the needs of the Garda Síochána was the principal driver in reviewing this function Main Terms of Reference To consider the development of a centralised purchasing unit to deal with all purchasing activities for the organisation. To carry out a high-level examination of the breakdown of expenditure. To examine the relationship of the section with the Government Supplies Agency (GSA) Summary of Key Findings The review found that: While cost saving and service level improvements are the acknowledged aims of the Logistics function, these are not currently documented and assessed within the organisation. Technical requirements and specifications are comprehensive. However, insufficient attention is paid to specifying requirements for inclusion in tenders in relation to the provision of cost information and defined service levels. There are significant opportunities to rationalise the number of suppliers with which the organisation does business. Forecasting of demand is usually based on the previous year s usage. 42

43 Because of the lack of computer technology all processes are manual Principal Recommendations A temporary role should be created for a Head of Procurement, experienced in delivering significant improvements in a purchasing environment. Commodity specific sourcing strategies should be defined by the Logistics Section. A documented and agreed service level should be developed between the GSA and the Logistics Section so as to define the roles and expectations of each. Specific formal reviews of progress towards agreed aims should be carried out on a quarterly basis. Orders and invoices should be consolidated. Low value orders should be eliminated. The range of items should be rationalised. The objective is to improve control in the provision of goods and services to meet the needs of the Force. The primary benefit will be that procurement processes will be seen to be fair and transparent inside and outside An Garda Síochána. Savings will be achieved through addressing collective spend across the entire organisation. Already the Director of Finance has progressed a number of initiatives to increase the expertise in procurement practices: Expert training has been delivered to the staff of the procurement section. There is ongoing consultation with the GSA on technical aspects of the tendering process. The tendering office has developed a number of generic tender documents for frequently tendered services and goods, to facilitate the efficient processing of tenders raised by divisional offices. 43

44 A Garda Síochána Public Procurement Guidelines booklet has been developed and circulated to the Force. Considerable consolidation has been achieved by conducting tenders for a larger range of similar products to be delivered on a national basis. The implementation of the new Financial Management System will bring additional efficiencies and better quality management information to assist with the development of this function. 44

45 1.11 Liaison and Protection Section The Liaison and Protection Section (L&P), based at Garda Headquarters, is primarily involved in international liaison and policy development around the protection of certain individuals and buildings. These key responsibilities include policy and operational matters relating to the security of the President, the Government, Diplomatic Corps, Judges, Prisons, etc., and matters arising out of Ireland s international commitment to Interpol, Europol, Schengen (a police cooperation convention involving all EU countries as well as Norway and Iceland) Main Terms of Reference To review the L&P Section, its key functions, its strengths and weaknesses and set out recommendations to address issues identified Summary of Key Findings The review found that while the critical need for Garda staff within this office is acknowledged, there is potential scope for greater use of civilian staff in light of the administrative nature of much of the work. The Inspector and other senior staff in the office are often required to be away on trips with the President, Taoiseach, etc. Such trips are time-consuming and, consequently, a high degree of responsibility has to be pushed down the line. Staff in the protection office do not receive any formal training. The division of responsibility in relation to VIP/Ministerial protection across three areas (L&P, SDU, Details a pool of drivers available to perform various driving functions) could be regarded as a weakness, although it has a benefit in that it clearly separates policy from operations. No individual is assigned responsibility for the explosives function when the Inspector is unavailable. 45

46 Principal Recommendations The report recommends that, from an overall management and operational perspective, the different protection and liaison functions should be brought closer together. To attain this it is recommended that the managerial responsibility for such units be relocated within the protection function. This would result in all these areas coming under the responsibility of the same Assistant Commissioner. The report also makes recommendations regarding the reallocation of resources and for additional training for staff. However, it was not within the scope of the review to assess required staffing levels. The protection functions within An Garda Síochána should be brought closer together. This would be beneficial from an overall management and operational perspective. Specifically: - Details should be transferred out of the Garage/Transport Section and located within the protection unit of L&P. - Personnel within the National Crime Prevention Office who have responsibility for carrying out security surveys should be relocated to the Protection Unit within L&P. The remaining Gardaí in the National Crime Prevention Office should be either allocated to the Region, e.g. as part of Community Policing Units or to the Specialist Services Section in HQ. Consideration should be given by Garda management to the provision of staffing support, e.g. a Sergeant, to the Inspector with responsibility for explosives. The role of the Inspector to whom the various liaison offices, i.e. Europol, Interpol etc., report should be expanded to incorporate a co-ordination role with additional resources provided as appropriate. Consideration should be given to the transfer of the Mutual Assistance, Extradition and Missing Persons functions from Crime Administration into L&P. 46

47 Responsibility for accompanying the President and Taoiseach on overseas visits should be shared among the Chief Superintendent, two Superintendents and two Inspectors, so as to moderate the impact on their line management functions. The objective is the improved management of international liaison and protection of certain individuals and buildings; improved communications between the various offices involved, both nationally and internationally; and the provision of sufficient resources and training. The Ministerial Drivers are now part of the Liaison and Protection function, as recommended in the report. 47

48 1.12 Transport Maintenance and Procurement Compliance The current Garda transport operation based at Headquarters involves a range of fleet management activities and includes a garage which provides repairs and maintenance services for vehicles based in Dublin Central stations, including those based at Headquarters and the National Units. Repair and maintenance activities for all other vehicles are currently outsourced to garages around the country Main Terms of Reference To review current transport maintenance activity, including the requirements of the organisation on a nationwide basis and how they are addressed through both the HQ garage operations and the outsourcing to service providers nationwide. To assess the impact of procurement on maintenance activity. To examine procurement processes and compliance. The following issues were required to be developed: Future management of Garda transport maintenance operations. Processes for managing procurement compliance. Organisational structure and roles and responsibilities for management of Garda transport activities Summary of Key Findings The review found that: No major programme of organisational change has been implemented in the Transport Section despite several previous studies having been conducted. Productivity is low in the garage at Garda HQ. Management information is not readily available; processes are generally operated manually. 48

49 the Garda fleet is made up of 29 different vehicle marques. This contributes to increased maintenance costs. There are major shortcomings in the Tranman fleet management IT system, including inadequate information on mileage, and on the cost of repairs (spare parts, labour) and service levels provided to the Garda organisation. 41 per cent of the Garda fleet is more than three years old as measured from the date of commissioning Principal Recommendations As a short to medium term solution An Garda Síochána should outsource the entire vehicle maintenance activity - including management of the fleet, the contracts and cost, quality service performance management and compliance management - to a national service provider or consortium. In the medium to longer term, consideration should be given to outsourcing vehicle procurement, disposal and fuel procurement. Resulting from the recommendation to outsource vehicle maintenance, the principal organisational impact will be the need to reallocate and reassign most of the Garda personnel of HQ garage. Arising from these recommendations a Request for Tender document (RFT) has now been prepared. The RFT is designed to seek tenders from suitably qualified and experienced organisations for the provision of the following services. Such provision will operate for a period of three years from the date of commencement of the contract: Fleet management services. Vehicle maintenance. Vehicle repair. Vehicle spare parts. Management of the contracts for vehicle disposal via auction. Full towing. 49

50 Supply of tyres. Vehicle marking and fit out. Vehicle cleaning. 50

51 Part 2 Projects completed earlier as part of the SMI review An overview of projects previously reported to Government and an outline of the progress made to date towards implementation. Projects undertaken: 2.1 Quality Service 2.2 Rosters 2.3 Financial Management and Procurement 2.4 Human Resource Management 2.5 Promotion 2.6 In-Service and Management Training 2.7 Student/Probationer Training 2.8 Civilianisation 2.9 GERM 2.10 PULSE 2.11 Legislative Change 2.12 Performance and Accountability Framework 2.13 Performance Management (Projects 2.2 to 2.8 incl were undertaken in the course of the Bottom-Up Review) 51

52 2.1 Quality Service The Garda Síochána National Quality Service Bureau, reporting to a Director of Quality Service, is progressing the implementation of a Quality Service Action Plan in An Garda Síochána. Regional and Divisional quality service managers have been appointed and national and divisional customer panels, representing commercial, statutory and voluntary bodies, have been established to facilitate two-way consultation. The key principles of Garda Quality Service are: Service standards as set out in the Garda Customer Charter Consultation with the public on a structured basis Provision of reliable, up-to-date information and advice to the public Systems for measuring public satisfaction Complaints and redress mechanisms. The action plan focuses on fourteen key areas of service and benchmarks have been established in a number of these areas. In pursuit of the Action Plan the Garda National Quality Service Bureau completed the following projects: 999 Call survey to measure the percentage of emergency calls answered within 15 minutes. This survey was completed in May 2002 and indicated that within the DMR 86 percent of such calls were answered within 15 minutes and outside of the DMR 74 percent of such calls were answered within 10 minutes Survey of pick-up times for 999 calls completed 88 percent answered within 10 seconds Survey on counter service at Garda stations completed 94 percent satisfaction rating achieved Survey on keeping victims informed of case progress completed 48 percent satisfaction rating Survey on speed of answering phone queries completed 92 percent satisfaction rating achieved Comment card survey completed 74 percent satisfaction rating In 2002 a review was completed by the Garda Síochána National Quality Service Bureau of information on all aspects of citizens rights and entitlements and policing processes. The Bureau worked closely with 52

53 Citizens Information Centres. The project was outsourced and the report is being considered by the Bureau A policy proposal to streamline and integrate formal consultation mechanisms between An Garda Síochána and Local Communities at District Level has been undertaken and proposals in this regard in the Garda Síochána Bill will take this matter forward Conflict Resolution Training has now been included in the core In-Service Training programme for all Gardaí and Sergeants and also on the Student/Probationer Education/Training programme. Conflict Resolution Training is being provided in an effort to reduce complaints made against An Garda Síochána The European Foundation Quality Management Service Excellence Model (EFQM) is currently being piloted at the Garda College and at DMR South Central Division. A project team is in place in each pilot area to oversee the implementation of the Model. A Strategy Document has been devised for each pilot scheme, which facilitates senior management in implementing the EFQM Model. The Strategy Document has been supplemented by two training courses that were conducted in A Garda Service Excellence Model Poster has been distributed and is displayed in each of the pilot divisions. Improvements recommended as a result of both internal and external process analysis reports are at various stages of implementation. All members of An Garda Síochána continue to be informed of the progress and outcome of quality service initiatives and research. 53

54 2.2 Rosters The Garda SMI report recommended a fundamental review of the rostering system to ensure that Garda personnel are more readily available at peak demand times. As a result of this recommendation a new Rostering framework was developed following consultations and agreement with Garda Staff Associations. The main benefit of the new roster is a more appropriate match between availability of Gardaí for duty and demands on the service. Consequently, Garda management can ensure a greater operational police presence on the streets at peak times. Under the new roster system, Superintendents can determine the number of members required to meet demands at peak times. Other members can be detailed for non-peak times on the early and night tours of duty. An agreed pilot scheme was implemented in the cities of Cork, Limerick and Waterford between 20 March 2000 and 28 October 2002 in respect of those stations where the three-relief system operates (shift system covering 24 hours). Consultation took place between Garda management and the Association of Garda Sergeants and Inspectors and the Garda Representative Association during the pilot roster. Having consulted with both Associations, the Commissioner introduced this roster on a permanent basis in the cities of Cork, Limerick and Waterford from 28 October In relation to the Dublin Metropolitan Region, further work on the pilot roster is being undertaken by Assistant Commissioner, DMR, and the Organisation Development Unit, Garda Headquarters. 54

55 2.3 Financial Management and Procurement The Garda SMI report called for a new financial management system (FMS) to enhance financial accountability, to support the Garda Commissioner in the proposed role of the Garda Commissioner becoming the Accounting Officer, and to further support the devolution of financial responsibility. A new financial management framework was developed and approved by the Steering Group in December The framework included wide-ranging recommendations on devolved budgeting to district level, financial systems requirements, financial processes and financial reporting. One of the key recommendations was that a new finance department be established in Garda Headquarters and that experienced qualified accountants and skilled support staff be appointed. During 2000 a new civilian Director of Finance (at Assistant Commissioner level), a management accountant and a financial accountant were appointed and the financial activities formerly undertaken by A Branch, Garda Headquarters were assimilated into the new unit. The Finance Unit was further bolstered in January 2002 by the recruitment of two Higher Executive Officers with accounting skills/experience. A financial systems accountant was also appointed to the Finance Division of the Department of Justice, Equality and Law Reform, located in Killarney. Considerable progress has been made within An Garda Síochána regarding the implementation of the recommendations contained in this report. A number of recommendations have also been implemented in the Department s Finance Division in Killarney. Following the establishment of the Finance Directorate, one of the primary tasks was to work with the Department of Justice, Equality and Law Reform in the preparation of the tender documentation for a new financial management system (FMS). The contract to implement the FMS was awarded in 2002 and very significant progress has been achieved in the specification of the system requirements for An Garda Síochána. The implementation of the FMS in Garda Headquarters is scheduled to be completed by the end of 2003 and the roll-out of the FMS to District offices will commence in As part of this process and to ensure that the relevant personnel have the necessary IT skills to operate the FMS, a number of training programmes have been conducted in the Garda College. Further training will be delivered when the FMS is rolled out in Garda Headquarters and the District offices. The implementation of the FMS is based on the concept that the Finance Division of the Department of Justice, Equality and Law Reform, located in Killarney, will be operated as a shared services centre (SSC). The future relationship between An Garda Síochána and the SSC will be regulated by a negotiated service-level agreement. 55

56 The devolution of budgetary responsibility within An Garda Síochána is proceeding, with additional elements of the Garda Vote being devolved to operational centres in In addition to the finance function, the Finance Directorate is also responsible for the Procurement Section. A number of initiatives have been implemented to streamline the procurement process and to make this function more customer focused. As part of the devolution process, Divisional Procurement Committees will be established before the end of 2003 and responsibility for tendering of local contracts up to a certain value will be devolved to those committees. Prior to implementation of this initiative the necessary training, procurement manuals and reporting mechanisms will be established. In 2002 a number of reports were published concerning the management information framework (MIF), previously known as the generic accounting model. The Garda FMS has been designed to meet the MIF objectives and as the financial system is web-enabled, it will also support the Government s initiative concerning e-procurement. 56

57 2.4 Human Resource Management The Garda SMI report recommended that a new approach to the management of personnel and an integrated programme of human resource management (HRM) should be put in place. The HR function needs to be focused on supporting the business objectives of the Garda organisation through its work force. The Bottom-Up Review Group (BURG), with the assistance of consultants, undertook the challenge of developing a modern HRM function for An Garda Síochána, with particular reference to the organisation structure required to deliver an effective HRM strategy, the staffing and skills required and matters suitable for devolution to line managers. The outcome of this review was approved by the Garda SMI Steering Group in June The key recommendation of the report is the establishment of a new position of HR Manager to head up the central HR policy and services units and to implement the new HR infrastructure. It also recommends a number of key changes: The strategic development of the HR management function - focus on forward planning and implementation of the changes arising from the SMI process, The role of the Regional Assistant Commissioner - expand the role and include responsibility for HR issues within the Region. In addition, in accordance with the BURG/consultants review, a number of personnel activities have already been devolved and responsibility for recording sick leave, etc., is now devolved to local management. Human Resource Management retains overall responsibility for identifying trends and developing overall sickness policy in line with the recommendation of the report. A number of people-management handbooks have been published: (a) Balancing Career and Family Life in An Garda Síochána, (b) Discrimination under the Employment Equality Act, 1998, including an outline of policy. This booklet contains Garda Policy on - Bullying - Harassment - Sexual Harassment - Grievance Procedure (c) Addiction awareness A CD has been distributed to the Force containing a Safety Statement template. Devolution of many Human Resource Management activities, as recommended in the BURG/consultants report, is of necessity dependent on the development of an integrated IT system, amenable to efficient interchange with the data recording system at District and Divisional level. 57

58 Since the approval of the Report by the Strategic Management Initiative Steering Group, Garda management has participated in efforts to recruit and appoint a Human Resource Manager. The holding of a Civil Service wide competition at Director level (Principal Officer, higher scale plus an allowance) is now being considered. The Steering Group sees this post to be a key element in ensuring that the HR agenda is implemented. 58

59 2.5 Promotion The Garda SMI report recommended that the Garda Promotion Advisory Council (PAC) bring proposals to the Commissioner for changes in the promotion systems. The BURG requested the Council to review the Garda Síochána promotion systems. Consultants were appointed to work with Garda management in the review of promotion practices and to make recommendations to improve the process. The consultants submitted their initial report of this review in May The BURG considered the report and forwarded observations/comments on the report to the PAC for consideration and implementation of recommendations. The report recommended more efficient and effective promotion systems and focused on identifying suitable techniques for use in the promotion process. Key competencies have since been developed for various ranks and the development of proposals contained in the report continues in the HRM branch of the organisation with the implementation of new promotion procedures for ranks up to Chief Superintendent, in competitions to be held in As the new promotion system is competency based, a training work plan has been developed with the consultants to provide training for promotion interview boards. Each interview board member will receive a two-day training course. Training will commence in time for implementation. Implementation of these proposals will reduce the involvement of senior Garda management in regularly assessing large numbers of applicants. Garda management and the consultants are currently in the process of preparing training/briefings for candidates and assessors in preparation for competitions to be held in

60 2.6 In-Service and Management Training The Garda SMI report recommended that continuous education be made a central element of training and that there should be increased emphasis on management training. Steering Group fully agrees that training at all levels is a key to ensure that the members achieve their full potential so as to create a first class police force. The BURG requested consultants to conduct a review of management development and in-service training which was completed in April, The report recommended the development of a training strategy to assist in the achievement of the Garda organisation s objectives and to identify the training/education and development needs of each rank up to and including Chief Superintendent, and of civilians. The review concluded that: Service training should be broadened. There should be more focus on the role of supervisors in training. Personal training records should be introduced. The range of courses delivered should be broadened. Distance learning should be used to meet certain training needs. A Training Development Unit should be established within the Garda College to provide technical advice, continual training needs analysis and course content review. Training Development Unit The Training Development Unit (TDU) was established in A civilian head of the unit was appointed in January, The staff of the unit now comprises: A civilian Head of Training Development Unit. One Inspector. One Sergeant. One Garda. The Unit is working effectively in close co-operation with the staff of the Management and Supervisory Training and Senior Management Training in developing the recommendations of the SMI report to deliver a comprehensive programme of in-service management development training. (i) In-service A Working Group, chaired by the Superintendent of the In-Service Training School at the Garda College and comprising in-service staff and Divisional trainers, has been established to progress the implementation of the 60

61 recommendations of the SMI report in partnership with the Training Development Unit. This work is continuing. The TDU conducted a two-day seminar for all in-service personnel at the Garda College in September The seminar focused on the development of inservice training as recommended by the SMI report and brought participants up to date in relation to progress. Six additional Training Sergeants have been appointed to the DMR Divisions and they are currently in the process of establishing in-service schools in the DMR following the decentralisation of the in-service training function from the In- Service School at Harcourt Square. The TDU and the Superintendent of the In-Service School continue to work in partnership for the development and expansion of training. A training needs analysis has been conducted to assess needs and to inform the training plan for the year 2003/2004. (ii) Management Training The TDU is also working in close co-operation with the staff of Management and Supervisory Training and Senior Management Training at the Garda College in developing the recommendations of the SMI report regarding their particular areas of responsibility. Continuing professional development of senior ranks is being discussed in the context of developing the overall training strategy. Courses are being redesigned and where feasible have been modularised in accordance with the SMI recommendations so that modular, competency and action-based learning can be provided and appropriately evaluated. The establishment of a Strategic Command Course aimed at Chief Superintendent and Commissioner ranks is being advanced and is scheduled for implementation shortly. The Supervisory Management Development Programme for Sergeants has been devised in accordance with the SMI recommendations and is now conducted on a modular basis. A similar modular programme for Inspectors is currently being developed. 61

62 2.7 Student/Probationer Training A detailed review of student/probationer training, completed by the Review Group on student Garda Education/Training in 1999, was endorsed by the SMI Steering Group and referred back to the Commissioner for consultation with Garda Representative bodies and for implementation. The report is both comprehensive and complex. Key issues identified in the report include the following: Revision of the Diploma Programme to reflect the competencies required for professional policing such as management knowledge and skill and service delivery. The need for greater emphasis on the professional training and development of teaching staff. The desirability of a more extensive role for civilian teachers particularly in management and social studies, physical education and languages. Appropriate recognition of the importance of the education and training function to the Garda organisation. More rigorous assessment methods needed for students and trainers. Greater emphasis to be placed on policing experience obtained during training. The BURG endorsed the general thrust of the training report and forwarded its observations/comments to the Student Probationer Training Review Group. Consultations took place with staff associations who supported the implementation of a revised training regime. The change was implemented on 1 January 2003, with the first intake of new Garda trainees commencing the new programme on 17 February A total of one hundred and sixty-four Garda trainees formed the first cohort. A second cohort of student trainees commenced training under the new programme on 27 April, Work is currently being developed on assessment methods for students undergoing the new training programme. Assessments will be conducted on Phases II and IV for student and probationer Gardaí. (Probationer training is divided into four phases, alternating between the Garda College and training on the job at Garda stations.) A Programme Development and Implementation Unit has been established in order to further develop the recommendations of the report. 62

63 A Staff Development Office (SDO) has been established to develop professional programmes for staff involved in the new training process. In this regard, the TDU and SDO, Garda College are jointly involved with the National University of Ireland, Galway in the development of a Certificate in Training and Education to ensure that the content of the certificate programme will meet the recommendations of both the SMI report and the Student Garda Education/Training Programme report. Job descriptions have been compiled for the additional civilian teachers recommended in the report and the employment of these additional staff will require sanction from the Department of Justice, Equality and Law Reform and the Department of Finance. 63

64 2.8 Civilianisation The Garda SMI report recognised the potential for further civilianisation within the Force. It stated that the concept behind the introduction of civilianisation was to allow for certain jobs to be done at a more economic cost and to free up Gardaí for work more suited to their training and development, while at the same time increasing the operational capacity of the Force. In October 2001 the Government approved the Study on Civilianisation which was carried out by the BURG and recommended civilianisation of 496 technical and administrative posts currently held by Gardaí. These posts are located in Garda Headquarters, in the Garda College, and in Districts and Divisions throughout the country. The report also recommended the transfer of civilian staff to the direct authority of the Garda Commissioner and the development of career opportunities for civilian staff. Sixty-five posts have been identified to commence this process and it is envisaged that the remaining posts will thereafter be civilianised on a phased basis as Garda posts become available due to natural wastage (retirements, resignations, etc). The civilianisation study also provides for the transfer of finance functions from the Garda District Clerks to civilians and the subsequent upgrading of the new civilian role to Staff Officer. In this regard, an Office Notice has been issued inviting applications from Clerical Officers to compete for the posts and a process of selection has begun. A Civilianisation Working Group is progressing the recommendations contained in the study. This group comprises senior representatives of Garda management and of the Department of Justice, Equality and Law Reform. Implementation of recommendations will have to be considered in the context of Government policy in relation to civil and public service staffing levels generally. 64

65 2.9 GERM (Garda Establishment Redistribution Model) The objective of the SMI GERM study was to assess policing demands and determine the best way to allocate available resources to meet such demands. Activity analysis was carried out in 20 selected Garda districts. Work on developing a new resource allocation model continued throughout 2000 and a final report was approved by Steering Group in The model is now used by the Human Resource Management Branch at Garda Headquarters to inform and guide senior Garda management around the country in the equitable allocation of personnel between Districts. The factors used in the model are continually being redefined and updated as new information comes on stream so as to ensure that the model represents the most accurate information. 65

66 2.10 PULSE (Police Using Leading Systems Effectively) In 1993, An Garda Síochána decided to embark on a major IT-enabled change initiative. The overall objectives were to simplify and automate operations and integrate information in order to improve service, efficiency and effectiveness within the constraints of available resources. The PULSE project is the culmination of this effort. The PULSE project is comprised of over sixteen system areas, designed to improve the manner in which information is gathered, collated and disseminated in An Garda Síochána. Steady progress has been made in relation to the development and deployment of the PULSE systems. Release 1C, the largest release of the PULSE project, was deployed on a phased basis during 2001 to all 181 networked locations. System performance issues, which emerged in late 2002, have largely been resolved. PULSE usage was measured across a number of categories during the latter part of The usage statistics show that the volume of use was significantly higher than anticipated. Numerous operational successes can be directly linked to the information on the PULSE system. Release 2 of PULSE went live in two pilot locations (Cavan/Monaghan and Limerick) on 24 November, 2003 and will commence roll out in the DMR early in the New Year followed by rollout to the entire organisation before the end of January This release includes new system areas such as bail sign on, domestic violence orders, drivers licence and insurance production and warrants. The Fixed Charge Processing System (FCPS) is now being developed as a system area within PULSE. It is a national computerised system designed to enable An Garda Síochána to process road traffic offences that are the subject of a fixed charge, and which may also attract penalty points, as provided for in the Road Traffic Act, A new Garda IT Strategy is being developed which will take the organisation forward following the completion of the PULSE project. 66

67 2.11 Legislative Change Arising out of recommendations in the Garda SMI report, the Minister for Justice, Equality and Law Reform appointed an Expert Group under the Chairmanship of Mr. Eamon Leahy, Senior Counsel, to consider changes in the criminal law that would enhance Garda efficiency and effectiveness. The Expert Group completed its work and recommended significant legislative change in areas such as: Search warrants Power of arrest Detention The right to silence. The Report of the Expert Group was presented to Government in 1998 and was laid before both Houses of the Oireachtas. The Government approved the bringing forward of legislation in the form of a new Criminal Justice Bill to take account of the work of the expert group. The Bill will improve the criminal justice system generally by giving the Gardaí additional powers and removing certain anomalies from the criminal law. The general scheme of the Bill was published in August 2003 by the Minister for Justice, Equality and Law Reform and was presented to the Joint Oireachtas Committee on Justice, Equality, Defence and Women s Rights on 8 October,

68 2.12 Performance and Accountability Framework The Government has already approved publication of the report on Performance and Accountability which brings forward recommendations in relation to the formalisation of structures to facilitate the following: Setting of annual policing objectives by the Minister Ministerial approval for proposals prepared by the Commissioner for implementation of those objectives, through strategic and annual police plans Commissioner reporting to the Minister on progress in achieving policing objectives, by reference to a set of performance indicators New police policy and planning forum made up of senior Department and Garda representatives. The new arrangement will be statute-based. The proposed legislation will also contain provisions to enable a transfer to the Garda Commissioner of the role of Accounting Officer for the Garda Vote. Background The Garda SMI report recommended a performance and accountability framework to satisfy policing requirements and operational flexibility for An Garda Síochána and the Minister s continuing public accountability in respect of police policy, budgetary allocation and general effectiveness. In December 2001 the Garda SMI Steering Group approved the report of a review group, composed of senior management in the Department and the Garda Síochána, on a performance and accountability framework. The report sets out the respective roles of the Minister and the Commissioner in the areas of policy formulation and implementation, resource allocation and resource management. The report also sets out a performance and accountability framework for An Garda Síochána based on the Minister setting annual policing objectives and approving proposals prepared by the Commissioner for the implementation of those objectives. This framework will be built around the following structured arrangements: A three-year corporate strategy statement, approved by the Minister An annual policing plan, action-oriented to implement the mission, objectives and strategies of the corporate strategy statement, and based on the Minister's policing priorities 68

69 The setting of performance indicators, both quantitative and qualitative, and agreed by the Minister, through which the Commissioner will report to the Minister on progress in achieving policing objectives The establishment of a new police policy and planning forum comprised of senior Department and Garda representatives. In the area of accountability, the report deals with: The proposed devolution to the Commissioner of the role of Accounting Officer for An Garda Síochána The flow of information to the Minister to permit him/her to account democratically for An Garda Síochána The Government s announcement of a Garda Inspectorate as a key element of the accountability framework. These new arrangement will be statute-based and are contained in the Garda Síochána Bill 2004 which was published on 13 February, The Bill contains provisions to enable a transfer to the Garda Commissioner of the role of Accounting Officer for the Garda Vote. This will mean that, as well as having an enhanced reporting relationship with the Minister for police performance, the Commissioner will be accountable directly to the Public Accounts Committee of the Dáil for the manner in which he/she manages the resources available. The civilian Director of Finance appointed following the SMI review of Financial Management (see chapter 2.3) together with a team of support accountants, recently recruited to An Garda Síochána, will support the Commissioner in this new role. The transfer of the Accounting Officer role to the Commissioner will be accompanied by the introduction of new independent financial audit procedures. The measures provided for in the report are intended to enhance the democratic accountability and control required of a modern police force. They will not in any way impinge on the current legislative arrangements which ensure that An Garda Síochána and the Commissioner are accountable through the Minister for Justice, Equality and Law Reform to the Government and the Oireachtas. These measures will not impact on the operational responsibility of the Commissioner and are in line with changes that have taken place in other jurisdictions and with changes made here when the new Courts Service Board was established. 69

70 2.13 Performance Management System Management of performance is fundamental to the achievement of corporate objectives and the successful implementation of the Garda Strategy and annual and divisional plans. Following on from the Garda Pay talks in 1999 a performance management system became a matter for discussion between the Garda Commissioner and Garda staff associations. In 2000, a project team representative of Garda management and all staff associations was established to devise a work programme for the development of a performance management system. Garda staff associations have indicated a preference for a unit based rather than an individual performance management system. Consultants from the Irish Management Institute (IMI) were engaged to facilitate discussion and prepared a report outlining the requirements for the development of a performance management system. The four Garda staff associations have accepted of the report of the Public Service Benchmarking Body and the terms of the social partnership agreement , Sustaining Progress. An Agreed Report of the Garda Conciliation Council recording such agreement was signed by all parties on 28 November Under Sustaining Progress, a working party comprising representatives of Garda management and the Garda associations will be established with a view to the identification of an appropriate performance management model for the organisation. 70

71 Appendix A The composition of the Implementation Steering Group is as follows: Mr. Kevin Bonner (Chairman), Transition Management and former Secretary General of the Department of Enterprise, Trade and Employment Mr. Declan Brennan Mr. Pat Byrne Mr. Eamonn Leahy Ms. Joan Carmichael Mr. Michael Foley Mr. John Donnelly Ms. Leonie Lunny Dr. Margaret O Shea Mr. Noel Conroy Mr. Pat Crummey Mr. Tim Dalton Mr. Michael Flahive Mr. Henry Mitchell Mr. Jim O Farrell Mr. Tom Monaghan Mr. Joe Staunton Mr. George Maybury Mr. P.J. Stone former Secretary General of the Department of Education and former Member of the Labour Court (former) Garda Commissioner Senior Counsel Irish Congress of Trade Unions Accountant former Chairman of Deloitte & Touche Director National Services Board General Practitioner Deputy (now Garda) Commissioner Assistant Commissioner Secretary General, Department of Justice, Equality and Law Reform Department of Justice, Equality and Law Reform Department of Justice, Equality and Law Reform Department of Finance Association of Chief Superintendents Association of Garda Superintendents Association of Garda, Sergeants and Inspectors Garda Representative Association 71

72 The membership of the Bottom-Up Review Group is as follows: Appendix B Declan Brennan (Chairman) John Donnelly Former Chairman of Deloitte & Touche Jim O Farrell Principal Officer, Department of Finance Pat Crummey Assistant Commissioner, An Garda Síochána Louis Harkin Chief Superintendent, An Garda Síochána Henry Mitchell Principal Officer, Department of Justice, Equality & Law Reform Therese Carolan Assistant Principal, Department of Justice, Equality & Law Reform Seán Sullivan Higher Executive Officer, Department of Justice, Equality & Law Reform 72

73 Appendix C Glossary of Terms Used BURG CAB CD CJM CPO DMR EFQM ERU FMS GBFI GERM GNDU GNIB HEO HQ HR HRM IPA IT ICT JLO L&P MIF NBCI ODU OPW PAC PULSE RFT SDO SDU SMI SMI Report SSC Steering Group TDU Bottom-Up Review Group Criminal Assets Bureau Compact Disc Criminal Justice Management Crime Prevention Office Dublin Metropolitan Region European Foundation Quality Management Emergency Response Unit Financial Management System Garda Bureau of Fraud Investigation Garda Establishment Redistribution Model Garda National Drugs Unit Garda National Immigration Bureau Higher Executive Officer Garda Headquarters, Phoenix Park, Dublin Human Resource/s Human Resource Management Institute of Public Administration Information Technology Information Communication Technology Juvenile Liaison Officer Liaison & Protection Management Information Framework National Bureau for Crime Investigation Organisation Development Unit Office of Public Works (Garda) Promotions Advisory Council Police Using Leading Systems Effectively Request for Tender Staff Development Office Special Detective Unit Strategic Management Initiative Report on Efficiency and Effectiveness in An Garda Síochána Shared Services Centre Garda SMI Implementation Steering Group Training Development Unit 73