STPOLC
5/f/R034/10/87
ITEM 4
HAMPSHIRE POLICE AUTHORITY
17TH NOVEMBER, 1987
LIAISON BETWEEN THE COMMUNITY AND THE POLICE
Report by the Clerk
Introduction
1 In November, 1985 the Police Authority adopted a standard, but
flexible, structure and constitution for the establishment of
police/community liaison committees throughout their area. In
summary they approved the establishment of sub-divisional
committees throughout the mainland, but with a single divisional
committee covering the Isle of Wight; the appointment of police
authority members as Chairmen and Vice-Chairmen of each
committee; the use of a standard constitution and terms of
reference; servicing and secretarial arrangements; and the
retention for the time being of the Portsmouth city-wide forum
running in parallel with the sub-divisional police liaison
committees in Portsmouth. The Authority agreed that they would
review the community liaison process after two years in the light
of practical experience. That review is now due.
2 In order to obtain views, the Clerk asked all Chairmen and
Secretaries of police liaison committees to consider what
comments they would wish to put forward on the constitution,
membership and chairmanship of police liaison committees; on
progress made in securing the involvement of the public and young
people; on publicity; on the contributions made by the Police,
Secretary and Clerk to the Police Authority; and on links
developed with other organisations, for example, crime prevention
panels. The Committees were asked to assess their achievements
and to give any constructive proposals for change which they
might have and they were informed that general conclusions on the
effectiveness of liaison committees and their role in improving
police/community relations would be appreciated. At the same
time the Chief Constable was asked for his opinions on the
achievements of police liaison committees so far, since under
Section 106 of the Police and Criminal Evidence Act, 1984 the
Authority have a duty to consult the Chief Constable when
reviewing the arrangements in the same way as they did when
initiating them.
The National Scene
3 Since 1984 some form of police/community liaison has been
established by all police authorities except one. The precise
format has varied but in most cases a committee, panel or
consultative forum has been established. The areas covered have
included police divisions and sub-divisions, district council
areas and various permutations of these. Most police
authorities have evolved their own structures, constitutions and
memberships. The varied pattern was one of the themes which
emerged from a nationwide meeting on police/community liaison
organised by the Home Office in September, which was attended by
Councillor Blacker and a community representative from the Isle
of Wight. The Home Office had sent to participants a paper which
implied that central guidance and the issue of standardised
regulations would improve police/community liaison. The general
opinions which emerged were that:
"(a) In each police authority area, each sub-division and each
parish were so different that each should work out what
suited themselves best, within the terms of the Police and
Criminal Evidence Act.
(b) That any form of centralised direction would be wrong, but
that guidance and advice, derived from an accumulation of
experience, would be welcomed.
(c) That in rural areas liaison committees were not relevant,
but that existing practices such as the attendance of the
local constable at parish meetings was more effective.
(d) That in City areas police/community liaison arrangements
have been of benefit but that attempts to attract young
people had failed.
(e) Despite first thoughts, there was no overriding reason for
the Chairmen and/or Vice-Chairmen of Liaison Committees to
be members of the Police Authority."
The Authority will know from recent reports that H M Inspector of
Constabulary is insistent that satisfactory arrangements for
police/community liaison purposes have to be made locally.
Our Neighbours' Experience
4 In order to give members a comparison, adjoining police
authorities have been contacted and they have evolved the
following structures:
(a) Dorset
They are the odd man out at present as they have refused to
establish any police/community liaison committees, since
they feel there is no need for them in rural areas. There
has been some demand for a form of liaison in the
Bournemouth area and some pressure from H M Inspector of
Constabulary, but so far Dorset Police Authority have
established no arrangements under Section 106 of the Police
and Criminal Evidence Act.
(b) Surrey
They have established nine sub-committees based on police
sub-divisional areas, which are run by the police locally.
(c) Sussex
They have established eighteen committees based on district
council boundaries, and have recognised an additional
committee with a "police monitoring" flavour in Brighton.
All of these are run by the District Councils.
(d) Thames Valley
They have established six divisional committees, but two of
them have been superseded by sub-committees based on police
sub-divisional areas. All of these are serviced by the
Clerk to the Police Authority, who has appointed a member of
staff specifically for that purpose.
(e) Wiltshire
They have established seven sub-divisional Committees,
serviced by the Clerk to the Police Authority; Police
Authority Members act as Chairmen and Vice-Chairmen.
(f) Avon and Somerset
Our own arrangements were formulated following consultation
with Avon & Somerset, who still retain 18 sub-divisional
committees and appoint Police Authority Members as Chairmen
and Vice-Chairmen. The Committees are run by the local
police: only minor modifications have been made to the
constitution and rules for membership, with a view to giving
the local liaison committees greater flexibility.
5 Surrey, Sussex and Thames Valley do not insist on police
authority members being appointed as Chairmen of the Police
Liaison Committees.
Progress in Hampshire
6 Police Liaison committees have now been established in accordance
with the standard constitution in all twenty mainland
sub-divisions with one committee on the Isle of Wight. A total
of 160 meetings has been held over the two year period, with most
committees meeting on seven or eight occasions. There have also
been five meetings of the Portsmouth city-wide forum in the
period. Some of the liaison committees are more active and
advanced than others and all meet in public except for Fratton.
The committees in Shirley and on the Isle of Wight have been slow
to develop. Membership varies between 15 and 30. 15 of the
committees now have volunteer secretaries, some of whom are paid;
the Clerk to the Police Authority provides administrative support
to the remainder. Of the £5,000 voted by the Authority, in
1986/87 £3250 was spent and so far in 1987/88 £2,250 has been
spent. These amounts cover hire of halls, payments to
secretaries, posters, advertisements etc.
Constitution, Membership and Chairmanship
7 In general terms the constitution and categories of membership
specified by the Authority have not been the subject of adverse
comment. The constitution has been flexibly interpreted and
applied; apparently it has not prevented any liaison committee
from developing its activities in whatever way it wishes to.
There has been criticism of paragraph 18 of the constitution,
which provides that meetings shall be rearranged if both Chairman
and Vice-Chairman are unable to attend, and this now needs to be
revised. There has also been criticism of the proviso in
paragraph 19 of the constitution that members who fail to attend
meetings for 12 months should be disqualified from membership;
the suggestion was that six months was felt to be a more
appropriate period.
8 The main comment has been that, with two Police Authority Members
and representatives from the District Councils and Parish
Councils, the Committees are too politically orientated. Many
Committees have proposed that they should have the power to elect
their own Chairman and Vice-Chairman rather than to have Police
Authority Members appointed. The Authority could, if they wish,
go some way towards meeting this aspiration for greater community
involvement by appointing one Police Authority representative to
each committee, and allowing the Committee to elect their own
Chairman and Vice-Chairman on the understanding that the Police
Authority representative holds one of the positions. In practice
most liaison committee meetings have, in any event, been attended
by only one of the Police Authority representatives appointed.
Moreover, where there have been shortages of Police Authority
members in given areas (e.g. Winchester and Gosport) the
Authority have exceptionally agreed to the appointment of a local
representative as Deputy Chairman. Such a compromise would
secure greater local influence whilst at the same time
maintaining the direct link to the Authority, which was
originally seen as a material factor, especially as there is no
separate County-wide Community Liaison forum to achieve feedback
to the Authority.
If the above suggestions are agreed, the following amendments
would need to be made to the constitution:
Paragraph 3 - amend "two members of the Police Authority" to
read "one member of the Police Authority"
Paragraph 5 to read as follows:
"The Police Authority shall appoint one representative to
the Committee, who shall be entitled to be elected by the
Police Liaison Committee either Chairman or Vice-Chairman"
Paragraph 18 to read as follows:
"At any meeting of the Committee, the Chair shall be taken
by the Chairman, or in his absence by the Vice-Chairman.
If both are absent, the Committee shall appoint a Chairman
for that meeting."
9 As regards Police Authority membership, the current position is
set out in the attached Appendix, where the present allocation of
Chairmen and Vice-Chairmen to sub-divisional liaison committees
is shown. At present Councillor Sumner is Chairman of Andover
and Eastleigh Committees, as well as Vice-Chairman of Southsea;
and Councillor Gibson is Chairman of both Alton and Winchester
Committees, as well as Vice-Chairman of Basingstoke. A more
equitable distribution is required to ensure that each Police
Authority member is appointed to one Committee only.
Involvement of the public, young people and publicity
10 Most Committees reported that public interest and involvement had
been somewhat sporadic, especially in the more rural areas.
General lack of success was reported in securing any involvement
by young people. The Committees had established good rapport
with the various community organisations represented but these
were mostly organisations who had no problems in contacting the
Police and with whom the Police would, in any event, liaise. The
Liaison Committees were succeeding in improving communications
with the more committed, motivated and articulate members of the
community who were already involved in a range of clubs and
organisations. The Liaison Committees are seen as not getting
through to the "unclubbable" who were not part of "the system" -
especially young people - and who might most benefit from
improved contacts with the Police. Regrettably this was a
general admission of a failure to achieve one of the Liaison
Committees' objectives and there were no practical suggestions as
to how the problem could be overcome. Perhaps one way forward
would be for the Liaison Committees to emerge from the
comfortable established venues of local authority committee rooms
or police stations and go out into the community - a venture
recently attempted with some success by Cosham Police Liaison
Committee at Wecock Farm and Crookhorn and by New Forest West
Liaison Committee at New Milton Youth Centre. An informal, less
structured agenda may help in pursuing such initiatives.
11 Most Committees stressed the need for more and better publicity
in the form of advertisements, posters and press releases to be
provided in order to get the message across to the public. The
Clerk has done everything reasonably possible to publicise
meetings but there are always complaints that publicity was not
available early enough or in sufficient quantity to make an
impact. However, it may be worth seeing whether an outside
advertising agency could organise a package of posters,
advertisements, leaflets and press notices and the Clerk could be
authorised to approach suitable agencies to see what they can do
within the existing estimates.
12 The comment was frequently made that there appeared to be little
demand for police/community liaison in rural parts of the County.
Police Liaison Committees started life as a response to urban
problems, particularly in inner city areas, and most comments
suggested that the main need and demand is in the urban areas of
the two counties. Meetings held in more rural areas have so far
not been well supported and it is suggested that all
sub-divisional Police Liaison Committees should, in future,
concentrate their activities on the urban areas. The rural areas
would remain covered by the long-standing informal liaison
between the Police and Parish Councils/Community Organisations
which will remain in operation. The Authority's community
liaison initiative was always intended to be an additional formal
means of communication with the public. Herein lies the root of
the problem of communicating with those outside "the system".
It would still be open to the Police Liaison Committee to hold a
"one-off" meeting in one of the rural areas if problems arose
which their influence might help to solve.
Role of the Police, Clerk to the Police Authority and Secretary
13 Most consultees felt that the Police and the Clerk had been
helpful and supportive in establishing the Police Liaison
Committees and in keeping them running. Most of the volunteer
secretaries have developed good working relationships and are
contributing well to the organisation of the committees, although
a few have been noticeably less effective.
Portsmouth City Wide Forum
14 The Portsmouth City Wide Forum, which developed out of a pilot
Police/Community Liaison exercise from 1983 onwards, has since
1985 operated in parallel with the four sub-divisional Police
Liaison Committees in the City. In November, 1986 the Authority
agreed that it should be allowed to continue with its current
terms of reference ("to support the sub-divisional police liaison
committees in the City of Portsmouth") and its effectiveness
should be reviewed along with the remainder of the community
liaison structure in November, 1987. The Portsmouth Liaison
Committees have all been asked what role they see for the City
Wide Forum. Southsea and Portsmouth Central consider that there
is scope both for a sub-divisional liaison committee and for the
City Wide Forum in a co-ordinating role; Cosham (whose boundaries
extend far beyond the City of Portsmouth) consider that the forum
fulfills a useful purpose as a platform to compare experiences;
whilst Fratton favour the formation of a single Police Liaison
Committee covering the three Police sub-divisional areas on
Portsea Island and the abolition of the Portsmouth City Wide
Forum.
15 The City Wide Forum considered the future at a meeting held on
27th October and their conclusion was that it provided a valuable
opportunity for cross-fertilisation of ideas and shared
experience within Portsmouth. It brought together different
organisations from various parts of the city and provided
feedback between them and the Police. Members were critical of
the lack of interest in the Forum shown by most of the Police
Authority representatives who chaired the sub-divisional liaison
committees. They would like the Forum to develop its advisory
and co-ordinating role. They resolved unanimously "that the
City Wide Forum (the Portsmouth Police Liaison Committee) should
continue in its present form in order to maintain a unique
opportunity to work in conjunction with the four sub-divisional
liaison committees and to share their common endeavours and
concerns. The members of the City Wide Forum recognise that
there is a need to achieve a more purposeful role in future, and
further they feel that the Police Authority should take heed of
the views expressed by the City Wide Forum."
The Authority are invited to consider the future pattern of the
police/community liaison in Portsmouth.
The Pattern for Southampton
16 The Authority may wish to consider whether there is any case for
establishing a broader area Police Liaison Committee for the
western part of Southampton. Portswood, Shirley and Southampton
Central sub-divisions (to the west of the River Itchen) all fall
within the Police western division and could be the subject of a
single liaison committee covering that area. There has not, so
far, been a great deal of public interest in the Shirley and
Southampton Central sub-divisional committees. Bitterne
Sub-Division (East of the River Itchen) would, in any event, have
to remain separate as it falls within the mid-Hampshire Police
Division and its boundaries extend into the southern parts of
Eastleigh Borough. The Authority are invited to consider the
future pattern of liaison in Southampton in the light of the
above options.
17 One other possible amalgamation which could be implemented
involves the Aldershot and Farnborough sub-divisional committees,
covering Hart District and Rushmoor Borough. There is some
duplication of membership and the boundary is, to some extent,
arbitrary and the Authority may wish to consider whether one
amalgamated committee would be sufficient for the north-east of
the county.
General Observations
18 Most committees agreed that there was a need to provide a forum
for police/community liaison but it was necessary to guard
against the possibility that they might degenerate into
"talk-shops". There was felt to be scope for more dialogue
between the Police and public on policies and priorities, and a
need for liaison committees to go out into the community more in
order to improve communications. Feedback between liaison
committees and their local organisations and the Police needs to
be further developed with a view to ensuring that interesting and
relevant issues are explored at meetings. There remains ample
scope for informal liaison between the Police and the public, and
open days at Police stations have been successful in this
respect.
Chief Constable's comments
19 The Chief Constable has been consulted on the role and
achievements of the Liaison Committees so far and his comments
are that despite the best intentions of all concerned there is
little evidence of the liaison committees having any effect on
the relationship between the police and the community. That lack
of impact is clearly shown by the experience with Shirley
Sub-Division. The liaison committee there has taken almost the
full two year period to get off the ground. However, there has
been no difference in police relationships with the public in
that sub-division compared with areas with active liaison
committees.
The committees are intended to allow the local community to talk
to the Police. What we have experienced is contact with
committee members and councillors. As far as we can tell there
has been little feedback from the committee to the community or
from the community to the committee.
The Police have done everything at some cost in effort to ensure
the committees could flourish. The main effort of police
community liaison has been directed through the committees at a
cost to less formal consultation. With so little feedback from
the community the committee agendas have relied on police
presentation for their content.
However, the Police do not wish to make any proposals for change
to the constitution under which the liaison committees operate,
nor to the structure of sub-divisional committees. The
committees will continue to receive full co-operation from the
Police in their efforts to liaise with the public.
RECOMMENDATIONS
(a) That the existing structure of sub-divisional Police Liaison
Committees, with a single divisional committee on the Isle
of Wight, be continued for a further 2 year period and that
progress be reviewed again in November, 1989.
(b) That Police Liaison Committees be asked to concentrate their
efforts on the urban areas within their sub-divisions and be
encouraged to go out more into the community (e.g. youth
clubs) as a means of improving liaison with the public.
(c) That only one Police Authority member be appointed to each
Police Liaison Committee (except on the Isle of Wight where
two Members remain appointed).
(d) That each Police Liaison Committee be authorised to elect
their own Chairman and Vice-Chairman, on the understanding
that the Police Authority representative referred to in (c)
above is elected either Chairman or Vice-Chairman.
(e) That the necessary amendments be made to paragraphs 3, 5, 18
and 19 of the constitution.
(f) That the Clerk be authorised to approach advertising
agencies with a view to obtaining a package of publicity
which can be used to improve public awareness of the
Police/community Liaison Committees and their meetings.
(g) That the Authority consider the future of the Portsmouth
City-Wide Forum.
(h) That the Authority consider the possibility of amalgamating
the sub-divisional police/community liaison communities in
Hart/Rushmoor.
5/f/R034/10/87
APPENDIX
SUB-DIVISION CHAIRMAN VICE CHAIRMAN
Aldershot Councillor R.A. Salter Councillor Mrs. S.E.
Stephenson
Andover Councillor F.C.P.Sumner Councillor
W.A.H.a'Beckett-Terrell
Basingstoke Councillor M.P.L. Marshall Councillor J.M.A. Gibson
Farnborough Councillor Mrs.S.E.Stephenson Councillor A.P. Collett
Winchester Councillor J.M.A. Gibson Mr. N. Birkett
Bitterne Councillor B.L.P. Blacker Councillor P.S. Bahia
Alton Councillor J.M.A. Gibson Councillor K.H.N. Bulmer
Eastleigh Councillor F.C.P. Sumner Councillor M.P.L.
Marshall
Fareham Councillor M.L. Zeffertt Councillor Commander K.F.
Rogerson
Gosport Councillor D.J. Bell Councillor M.L. Zeffertt
Portsmouth Mr. L. Bicknell JP Councillor J.S. Marshall
Central
Cosham Councillor J.R. Attrill Councillor D.J. Bell
Fratton Councillor J.S. Marshall Councillor J.R. Attrill
Havant Councillor K.H.N.Bulmer Councillor B.L.P.Blacker
Southsea Councillor Cmdr K.F. Rogerson Councillor F.C.P. Sumner
Forest East Councillor T.K.Thornber Councillor A.T. Lecky
Forest West Councillor A.T. Lecky Councillor T.K. Thornber
Southampton Mr. M.R. Archer JP Councillor B.R. Roost
Central
Portswood Councillor P.S. Bahia Mr. M.R. Archer JP
Shirley Councillor B.R. Roost Councillor R.A. Salter
Isle of Councillor E. Pickford Councillor Mrs. J.E.
Augustus
Wight
(One
Divisional
Committee)
NOTE : No Chairmanships
Councillor W.A.H. a'Beckett-Terrell
Councillor Capt. M.P.R. Boyle
Councillor A.P. Collett
Mrs. M. Edmonds JP
5/f/R034/10/87
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