The Scottish Parliament - Justice Committee Report

4th Report, 2008 (Session 3)

Report on Inquiry into the Effective Use of Police Resources

To consider and report on (a) the administration of criminal and civil justice, community safety, and other matters falling within the responsibility of the Cabinet Secretary for Justice and (b) the functions of the Lord Advocate, other than as head of the systems of criminal prosecution and investigation of deaths in Scotland.

Bill Aitken (Convener)
Bill Butler (Deputy Convener)
Cathie Craigie
Nigel Don
Paul Martin
Stuart McMillan
Margaret Smith
John Wilson

1. At its meeting on 11 September 2007 the Committee agreed to undertake an inquiry into the effective use of police resources. 40 years after the enactment of the Police (Scotland) Act 1967, the Committee considered it timely to assess how efficiently and effectively the police are currently delivering their services to the people of Scotland.

2. The inquiry was intended to focus primarily on the management and deployment of police officers in Scotland, including proposals from the Scottish Government for an increase of 1000 officers.

4. The adoption of this focussed remit has allowed this report to be published early in 2008. The Committee also concentrated on police funding during its consideration of the draft Budget 2008-09. Several conclusions and recommendations from the Committee’s report on the draft Budget are repeated in this report. By doing so, the Committee intends its conclusions and recommendations to have some influence over the prioritisation of new resources provided to the police in the Budget settlement for 2008 – 09.

5. However, the inquiry has also raised some more fundamental questions about the future purpose and priorities for policing in Scotland and about the effectiveness of the governance arrangements under which the police currently operate.

6. In relation to certain specific issues, the Committee has been unable to reach definitive conclusions without carrying out further scrutiny and analysis. In relation to certain issues, therefore, this report should be considered as an interim report.

7. The Committee expects to agree the remit for a second phase of the inquiry before the end of March 2008. A fresh call for evidence will be published soon thereafter and contributions from all interested stakeholders will be welcomed.

8. To inform the Committee’s report, the Committee launched a call for written evidence, seeking responses by 17 October. The Committee received 31 responses. For a comprehensive list of those who submitted evidence please see the contents page of the report.

9. The Committee began taking oral evidence on 23 October, concluding the process on 13 November.

Pat Shearer, Chief Constable, Dumfries and Galloway Constabulary and ACPOS Vice President; Alastair Merrill, Deputy Director, Police Powers, Performance and Resources, Stephen Woodhouse, Head of Police Performance, Efficiency and Funding, Alastair Crerar, Project Manager, Police Performance, Barry Stalker, Principal Research Officer, Court Affairs, Prisons and Offenders Analytical Team, Scottish Government;

Dr Daniel Donnelly, Scottish Centre for Police Studies and Dr Ken Scott Head of the School of Social Studies, University of Paisley;

Councillor Iain Whyte, Lothian and Borders Joint Police Board; Councillor Norman Macleod, Northern Joint Police Board; Councillor Martin Greig, Grampian Joint Police Board; and David Higgins, Secretary, Police Authority Conveners Forum;

Frances Wood, Head of Community Safety Unit and Liz Levy, Principal Research Officer, Police and Community Safety Directorate, Scottish Government;

Joe Grant, General Secretary and Alasdair Gillies, Secretary of the Inspectors’ Central Committee, Scottish Police Federation;

Chief Superintendent Clive Murray, National President and Superintendent Val McHoull, National Second Vice-President, Association of Scottish Police Superintendents;

Colin McKerracher, Chief Constable, Grampian Police and President of ACPOS, Peter Wilson, Chief Constable, Fife Constabulary and Honorary Secretary of ACPOS and Doug Cross, Director of Corporate Services, Tayside Police and Chair of ACPOS Finance Management Business Area;

HM Chief Inspector of Constabulary Paddy Tomkins and Assistant Inspector of Constabulary Malcolm R Dickson;

Robert Black, Auditor General for Scotland, John Baillie, Chairman of the Accounts Commission, Miranda Alcock, Portfolio Manager and Ronnie Nicol, Assistant Director, Public Reporting, Local Government, Audit Scotland; and

Kenny MacAskill MSP, Cabinet Secretary for Justice, Alastair Merrill, Deputy Director, Police Powers, Performance and Resources, Stephen Woodhouse, Head of Police Performance, Efficiency and Funding, Scottish Government.

11. The Committee also took oral evidence in relation to its scrutiny of the draft Budget 2008-09 which was of direct relevance to this inquiry. Evidence was taken from—

Chief Superintendent Clive Murray, National President and Chief Superintendent Iain Gordon, Vice-President, Association of Scottish Police Superintendents;

Chief Constable David Strang, Chair of ACPOS Criminal Justice Area, Doug Cross, Director of Corporate Services, Tayside Police and, Chair of ACPOS Finance Management Business Area;

Joe Grant, General Secretary, Scottish Police Federation, Professor Arthur Midwinter, Financial Consultant to the Scottish Police Federation; and

Kenny MacAskill, MSP, Cabinet Secretary for Justice, Robert Gordon, Director-General, Justice and Communities, Alastair Merrill, Deputy Director, Police Powers, Performance and Resources, Scottish Government and Ruth Ritchie, Scottish Government Finance Directorate: Justice.

12. In the course of the report the Committee seeks to establish how effectively police resources are being utilised, to highlight areas where improvements could be made in the operation and governance of the police and to set out those areas where the Committee has determined that it will undertake further scrutiny.

13. However, before setting out the evidence the Committee has taken in its inquiry and the conclusions the Committee has reached, it is important to first set out the context in which the police in Scotland operate.

14. This section of the report provides background information on: the organisation of the police; police duties and powers; police governance; police funding; police support services; and the role of Her Majesty’s Inspectorate of Constabulary for Scotland.

16. These eight forces came into being in 1975 as a result of local government reorganisation. Prior to the reorganisation there were 22 forces operating in Scotland, but regionalisation of local government precipitated the amalgamation of the forces into the existing eight forces.¹ In spite of the move away from regionalisation in the 1996 reorganisation of local government, the model has been retained for police forces.

17. The forces vary in size from Strathclyde Police which covers half of the population and area of Scotland to Dumfries and Galloway Constabulary which has fewer officers than one Strathclyde Division.²

18. In addition to the eight territorial police forces, the British Transport Police, Ministry of Defence Police and Civil Nuclear Constabulary also operate in Scotland. Unlike the eight territorial forces, these forces fall under UK rather than Scottish jurisdiction.³

19. In general the eight forces are organised along similar lines with a physical distinction between headquarters and divisions. Headquarters is where the senior management of the force is situated and where matters pertaining to central strategic planning, central administration and central services are based. Divisions are geographical units that deal with policing in local areas. While the forces are generally organised in this manner there is some variation in the autonomy given to the divisions.⁴

20. Forces are also divided in terms of general operations and specialist operations. General operations are routine tasks undertaken by uniformed patrol officers in the divisions. Specialists operations concern tasks which require specific training and experience. Specialist operations include Criminal Investigations Department (CID) work, traffic, child protection units and wildlife crime.⁵

21. Specialisms also include those functions which support the organisation. These include human resource management, training, health and safety and organisational development. In many of these areas police officers have been replaced by civilian support staff.

22. Within the eight forces, police officers are divided into the following ranks:

23. These ranks are represented by three distinct staff associations. The Scottish Chief Police Officers' Staff Association exists to represent chief police officers and senior support staff,⁶ the Association of Scottish Police Superintendents (ASPS) represents Superintendents and Chief Superintendents and the Scottish Police Federation (SPF) represents Chief Inspectors, Inspectors, Sergeants and Constables.⁷

24. In addition to the three staff associations, there is also the Association of Chief Police Officers in Scotland (ACPOS). It is comprised of the chief police officers and senior support staff of the 8 Scottish police forces, the Scottish Police Services Authority, the Scottish Crime and Drug Enforcement Agency, and the Assistant Chief Constable of the British Transport Police (Scotland). Its aims are as follows:

25. Formally a staff association, ACPOS has evolved to the strategic body which oversees and co-ordinates all aspects of the direction and development of the Scottish Police Service as a whole. Senior support staff and superintending ranks are also involved in its business. Developments are overseen by the Council of Chief Constables beneath which are eight standing committees focusing on a particular aspect of the service.

26. The use of civilian support has grown exponentially in the last three decades. While police forces have always employed civilian staff in administrative jobs, civilians are now undertaking roles previously reserved for sworn police officers. Daniel Donnelly and Ken Scott in their book ‘Policing Scotland’ set out roots of this change—

27. In the course of the 1980s the Scottish Office made concerted efforts to increase the numbers of civilian staff. Circulars were issued by the Scottish Home and Health Department, which made clear that expansion in the number of police officers was no longer viable and that forces would have to be more accountable for the effective and efficient use of resources. ¹⁰

28. However, a National Audit Office report of 1992 noted that further civilianisation of police posts could be made. In an attempt to progress civilianisation, in 1993 the Secretary for Scotland issued guidance on a three stage categorisation of police posts according to the degree of police or civilian involvement required.¹¹

29. As of 31 March 2007, 7,352 civilian support staff were employed by the eight forces.¹² This constitutes approximately one-third of the police workforce.¹³

31. The Police (Scotland) Act 1967 details the general functions of the police and imposes on them the duties to guard, patrol and watch so as to prevent the commission of offences; preserve order; and protect life and property. The duties of the police are further set out in the report of the 1962 Royal Commission:

32. Following a Home Office Review of Police Core and Ancillary Tasks in 1995 a Scottish Review was conducted into the role and duties of the police.¹⁵ However, this did not lead to a new definition and the 1967 Act continues to define the statutory role and duties of the police.

33. On 1 April 2007, the Scottish Police Services Authority (SPSA), established by the Public Order and Criminal Justice (Scotland) Act 2006 (‘the 2006 Act), became responsible for providing a range of support services to the Scottish police forces on a national basis. These services include those previously provided by the Scottish Criminal Record Office, the Scottish Police College and the Scottish Police Information Strategy as separate common police services.

34. This was the culmination of work initiated by the Common Police Services Review in 2000, which sought to consolidate common services as well as creating a national forensic service providing an integrated ‘crime scene to court' service. ¹⁶

35. The SPSA became responsible for a new national forensic service, comprising the four existing police laboratories, the Scottish Fingerprint Service and scenes of crime officers from all eight police forces. It provides, for the first time, an integrated, national forensic service.

36. Scottish Ministers have agreed that, by 1 April 2008, the SPSA will also take over responsibility for developing, providing and maintaining information and communications technology services (ICT services) for all eight Scottish police forces. This will bring all police ICT staff and resources into a single body which will be responsible for delivering national ICT projects and overseeing the process of harmonising existing police ICT systems. ¹⁷

37. The 2006 Act put the former Scottish Drug Enforcement Agency (established in 2000) on a statutory footing, with new powers and functions. The new statutory body is called the Scottish Crime and Drug Enforcement Agency (SCDEA). As well as providing the above police support services, the SPSA is responsible for maintaining the SCDEA. The SCDEA is, however, under the direction and control of its Director General, who has responsibility for operational matters. ¹⁸

38. The 2006 Act also sets out powers for the Scottish Ministers to specify, by order, additional support services to be provided by the SPSA to the Scottish police forces on a national basis.

39. The SPSA is directly funded by the Scottish Government with some 1,200 staff and a budget of around £81.0 millions in 2007-2008. It is led by a Chief Executive and has a board which consists of two Chief Constables, two police authority conveners and two independent members, chaired by an independent convener. The Scottish Ministers have the power to set strategic priorities for both the SPSA and SCDEA (as noted above, it is the Director General of the SCDEA who has responsibility for operational matters). ¹⁹

40. The Police (Scotland) Act 1967 provides for a ‘tripartite’ sharing of responsibility for policing between the Scottish Ministers, police authorities or joint police boards and Chief Constables.

41. The Scottish Ministers have overall responsibility for policing policy in Scotland. In carrying out this responsibility they are answerable to the Scottish Parliament.

42. Ministers have the power to make regulations concerning the terms and conditions, and certain duties, of police officers. In exercising this power they are advised by the UK Police Negotiating Board (pay and conditions) and the Police Advisory Board for Scotland (other matters). ²⁰

43. Since the reorganisation of local government in Scotland into unitary local authorities in 1996, two of the eight Scottish police forces (Dumfries & Galloway and Fife) have been administered by Police Authorities. Each Police Authority covers a single local authority area and consists of councillors from that local authority. The other six police forces are covered by six Joint Police Boards. Each Joint Police Board consists of representatives from the various councils covered by the relevant force area. At present, the number of local authorities involved in a single Joint Police Board ranges from three to 12 councils. Details of the local authorities involved with each police force are set out below.²¹

45. The final element of the governance of police forces is the chief constable. Chief Constables are appointed by the relevant police authority after consultation with and subject to the approval of the Scottish Ministers. Although the chief constable is accountable to the police authority or joint police board, the management and utilisation of both police and support staff is under the direct control of the chief constable, providing operational independence.

46. Around 90% of the total annual police expenditure in Scotland comes from central government via a direct police grant, an indirect revenue support grant and non-domestic rate income. Local councils raise the other 10% or so from council tax and other income.²³

47. The Scottish Ministers determine a total for Police Grant Aided Expenditure (GAE) each year. This is an estimate of the money required by the Scottish police forces to cover running costs for that year. In determining GAE the Ministers set the amount of money which the Scottish Government is prepared to make available to each police authority. However, it is the relevant police authority which sets the budget for a police force and this may be set at, above or below the level of GAE determined by Ministers. Assuming the budget for a police force is set at or below the level set for GAE, the Goverment provides 51% of the money required – covered by the ‘Police Grant’. The remaining 49% is provided by the local authority (from revenue support grant, non-domestic rate income and the council tax). Where spending is greater than the GAE level, the local authority must cover all of the costs incurred over and above the GAE limit.²⁴

48. In addition to this, there is flexibility in police funding for the Scottish Government to provide additional funding relating to a special project or extraordinary demands upon a force.²⁵

49. HMIC is responsible for inspecting the eight Scottish police forces and five police services.

50. HMIC operates independently of the Police Forces, Police Authorities and the Scottish Government and exists to monitor and improve the police services in Scotland. HMIC does this by:

51. Even though HMIC is independent of the Scottish Government, Ministers can call upon the Inspectorate to undertake particular pieces of work. Its staff include HM Chief Inspector of Constabulary (normally a former chief constable), the Lay Inspector (with no police background), police officers on secondment from police forces and civil servants employed by the Scottish Government. ²⁷

Evaluating police resources

52. The principal focus of the Committee’s inquiry was to examine in detail how effectively Scottish police forces were utilising their current level of resources in the context of the Scottish Government’s commitment to provide an additional 1,000 police officers.

53. The Committee has examined three inter-related aspects of police resource use:

adequacy of existing resources;
provision of additional police officers; and
efficiency of resource use (including the role of the SPSA)

Adequacy of existing resources

54. An assessment of whether current resources provided for policing in Scotland are adequate depends on two specific considerations: the extent of the role and responsibilities assigned to the police (considered later in this report); and how efficiently resources are being used.

55. From the written submissions received, a clear view emerged from police authorities and joint police boards, the SPF and others that current resources were insufficient to deliver the level of 24/7 response policing which they considered was desirable.

56. The reasons cited for this insufficiency of resource focussed on increasing general demands created by both societal and legislative changes (e.g. demands of the night-time economy; management of sex offenders) and by new threats (e.g. terrorism).

57. Individual police authorities and joint police boards also provided details of specific demands for which they considered they had insufficient resources (e.g. Grampian in relation to policing the oil industry; Lothian and Borders in relation to the policing demands of Scotland’s capital city).

58. In its submission, ACPOS stated that there were “currently insufficient officer numbers to meet public and political expectations.” ACPOS considered that this was not simply a question of the number of police officers required, but also how effectively the police used finite resources, “whether they are police officers, police staff, equipment, ICT, estates, infrastructure etc. to meet the demands placed upon the Service.”²⁸

59. The SPF raised concerns about the resources available for front-line policing—

“We believe there are deficiencies (and increasing public disquiet) in 24/7 response policing, i.e. the uniformed officers who are on duty on foot or in vehicles who respond to calls from the public.”²⁹

60. Utilising figures from an HMIC study published in 2002, SPF highlighted for the Committee that the proportion of police officers available for front-line deployment at any given time over a 24 hour period was only 7.5%.”³⁰

61. The relevant HMIC study, ‘Narrowing the Gap’, provided more details—

“… 44.2% of divisional operational officers remained available for deployment over a 24-hour period. This figure equates to approximately 30% of overall force strength. However, this figure of 44.2% is further reduced when it is revealed that at any given time 11% of this group of officers are within offices dealing with paper work (e.g. case preparation), or attending meetings, leaving 33% of divisional operational officers available for patrol or to attend incidents. This figure of 33% equates to 22.6% of the total officers in the force.”³¹

62. ASPS expressed concern that new legislation, new procedures and new processes had all drawn resources “from the front line—the 24/7 element of policing”³²

63. ASPS also highlighted the changing gender mix within the police service. Superintendent McHoull told the Committee that ASPS was “hugely supportive of recruiting many women into the service, so that it reflects the communities that we serve”, but pointed out that the number of officer days taken as maternity leave had increased from 8,500 in 1996-97 to 47,500 in 2005-06.³³ Official statistics obtained from Her Majesty’s Inspectorate of Constabulary for Scotland (HMIC) indicate that the figures for 2005-06 may have been anomalous as total maternity and paternity leave in 2006-07 declined significantly to just over 30,500. The Committee also notes that statutory maternity and paternity leave arrangements have changed significantly since 1996.

64. HMIC questioned whether it was possible to determine an optimum level of policing. It argued that policing is part of and similar to all public services since “there could always be an argument for more resources; and the work could always expand to appear to justify increased numbers.”³⁴

65. HMIC argued that “only after demand is managed can resources be freed to address need.” The Inspectorate suggested that while policing demand could be measured by such things as call volume, recorded crime and traffic volume, the need for policing was more difficult to pin down but was arguably as, if not more, important. HMIC noted that “policing need relates to actual crime (including unrecorded crime), area and individual deprivation and vulnerability, absolute risk, threat etc.”³⁵

66. HMIC also considered that the question of resources was bound up with the need for a re-articulation of the purpose of policing.³⁶ The Committee considers this matter in more detail later in this report.

67. On the basis of the evidence received, the Committee acknowledges that there is a clear perception among some sections of the police service that, at current levels, the deployment of police resources is inadequate to allow forces to effectively meet all of their present commitments.

68. The Committee considers that determining the optimum level of resources for policing, attempting to balance constantly changing levels of need and demand, is extremely challenging. The Committee, therefore, recommends that the Scottish Government considers establishing a mechanism regularly to review the adequacy of police resources.

Provision of additional police officers

Manifesto commitment

69. In its manifesto for the 2007 elections, the Scottish National Party set out its departmental priorities for justice. These included details of a commitment to recruit additional police officers—

“It is essential that we have sufficient police on local streets. That’s why we will set out plans in our first Budget for Scotland for 1,000 more police and will encourage Chief Constables to focus these new resources on community policing. We want to see these new police officers becoming part of the fabric of communities and through local knowledge and by building strong relationships with families and businesses in the local area, they will be in a better position to deter crime, solve crime and make you and your family feel safer as you go about your daily business.”³⁷

Scottish Government commitment

70. In a debate in the Parliament on 6 June 2007 on the subject of a safer and stronger Scotland, the Cabinet Secretary provided more detail on the priorities which the Scottish Government had for the police service—

“Tackling the fear of crime and deterring criminals requires effective front-line policing. A visible police presence deters crime and reassures communities. Therefore, our commitment is to deliver additional policing capacity—the equivalent of an extra 1,000 officers—and to seek to place them in our communities. We need—by cutting bureaucracy, streamlining processes, exploiting new technology and improving accountability—to help our police forces to work smarter and more efficiently to meet the complex challenges of modern policing. Modern policing is complex, but communities require a visible police presence.”³⁸

Additional resources

71. In his oral evidence, the Cabinet Secretary outlined for the Committee how the Scottish Government intended to fulfil its commitment—

“We have a clear commitment to deliver a more visible policing presence on Scotland's streets and to make an additional 1,000 officers available in our communities. We shall do that through increased recruitment of new officers, improved retention of skilled and experienced officers, and reinvestment of efficiency gains to support the redeployment of officers to strengthen operational policing in our communities.

The Scottish Government will invest £54 million during the spending review period to support additional recruitment and building capacity at national level as well as providing support for key retention and redeployment initiatives. As a first step, that means direct funding for the recruitment of an additional 500 officers. Recruitment will start immediately, to ensure that at least 150 more officers are recruited in the current financial year.”³⁹

72. The Cabinet Secretary explained that in addition to the £54 million for additional recruitment, he expected capacity to be increased further through efficiencies. He stated—

“In return for the substantial additional investment, forces should redouble their efforts to tackle bureaucracy, drive out inefficiency and free up officer time. The police service in Scotland has delivered a substantial efficiency programme in recent years, but there is more to be gained.”⁴⁰

73. In the Scottish Budget Spending Review 2007 published on 14 November 2007, the Scottish Government set out the breakdown of the £54m over the three year spending review period. It stated that it would—

“invest £13.5m/£18.0m/£22.5m to make an additional 1,000 police officers available in our communities through increased recruitment, improved retention and redeployment of police officers”⁴¹

74. Of the additional 1,000 officers to be made available, 500 are to be newly recruited. ACPOS was asked how the funds would be used to pay for the additional officers and whether £54m would be adequate. Doug Cross responded—

“We do not know the details, but we expect that the 500 officers will be recruited and phased into the policing system over a period. That would be a practical approach. I think that £54 million will be sufficient to cover the costs of an additional 500 police officers over the parliamentary session.”⁴²

75. In relation to the availability of suitable applicants, Chief Constable Strang for ACPOS said—

“Currently, people are applying to the force and good-quality recruits are joining us and training at Tulliallan. I do not have concerns about our ability to recruit quality people this year or next year.”⁴³

Police officer retention

76. Given the Scottish Government’s intention to meet its commitment to make an additional 1,000 police officers available in communities in part through improved retention of officers, the Cabinet Secretary was asked to explain how he expected this to be achieved.

77. In his oral evidence, the Cabinet Secretary drew the attention of the Committee to the fact that significant numbers of police officers—almost 2,300—will be eligible to retire during this parliamentary session. He expressed the view that their knowledge, experience and expertise could not be immediately replicated “even in the best training college” and explained the approach he was taking in response to this—

“I am working with police staff associations, ACPOS and police boards to develop ways of ensuring that we retain the services of the most skilled and able officers, particularly in community policing. I have announced a review of the 30-plus scheme, to ensure that it meets the needs of the Scottish police service. We are also encouraging forces to use their civilianisation programmes to ensure that, where appropriate, specialist knowledge can be retained.” ⁴⁴

The 30-plus scheme

78. A UK Police Negotiating Board agreement in May 2002 included an outline of a police retention scheme for officers who had already completed 30 years service. Called the ‘30-plus scheme’, the objectives were defined as follows:

To help ease possible recruitment shortfalls and help police numbers to rise to, and be sustained at, a higher level;
To smooth out recruitment bulges and, by the same token, help to avoid corresponding retirement bulges in future; and
To help retain much needed skills and experience in the service.⁴⁵

79. The 30-plus scheme was opened to eligible officers in Scotland in October 2004. It is open to officers with a minimum of 30 years’ pensionable service, and although it is aimed primarily at officers of Constable and Sergeant rank, any officer below ACPOS level can apply. Successful applicants retire from the service for a minimum of one working day, take their tax-free lump sum and then rejoin at the same rank and pay level as before. They will receive sufficient pension to ensure that their 30-plus salary is the same as their pre-retirement salary. The rest of their pension is abated (withheld) until they leave the service permanently.⁴⁶

80. Acceptance onto the 30-plus scheme is not automatic. The intention is to retain outstanding officers with specialist skills, knowledge and experience. An officer’s reengagement is ultimately at the discretion of the Chief Constable. ⁴⁷

81. Appointments under 30-plus initially last for up to four years; a further three years can be granted at the end of the initial term, provided the officer does not exceed compulsory retirement age limits. Appointments are subject to an annual review to ensure the continued effectiveness of the officer.⁴⁸

82. In oral evidence in relation to the draft Scottish Budget, ASPS was asked how effective it considered the 30-plus scheme had been in retaining police officers who had reached 30 years service. It stated that it did not think that the scheme had been well publicised and marketed in Scotland.⁴⁹

83. ASPS pointed out that “funding will be required to retain people in the service” as forces could not retain people on the 30-plus scheme beyond establishment levels without this funding.⁵⁰

84. Commenting on the future potential of the 30-plus scheme to retain officers, Chief Superintendent Clive Murray commented—

“I would be surprised if we were able to recruit 500 officers on the 30-plus scheme, but until the scheme is better marketed in Scotland, we will not get a clearer understanding of how many people want to take it up.”⁵¹

85. In his oral evidence, the Cabinet Secretary highlighted problems with the 30-plus scheme as a mechanism to retain police officers beyond 30 years service—

“We are considering creating a new scheme, because the 30-plus scheme is clearly not working. There is a problem, so we must go away and work things out. We are considering the schemes that operate in, for example, Strathclyde Police—there might be more than one approach. We want to establish a scheme that allows flexibility to retain officers. We have an agreement that we can go our own way north of the border and not be constrained by the United Kingdom 30-plus scheme.”⁵²

86. In supplementary written evidence, ASPS, in conjunction with ACPOS, provided figures for the numbers of officers who had successfully applied to join the 30-plus scheme since 2004. This information is provided in the table overleaf.

30-plus Scheme - Scotland⁵³

FORCE	CS	DCS	S	CI	PI	DI	PS	DS	PC	DC	Total	Retired

Central Scotland	-	-	-	-	-	-	-	-	1	-	1	-
Tayside	-	-	-	-	-	-	1	-	1	-	2	-
Fife	1	-	-	-	-	-	-	-	2	-	3	-
Dumfries and Galloway	-	-	-	-	-	-	-	-	3	-	3	-
Northern	-	-	-	-	-	-	-	1	-	1	2	1
Grampian	2	-	-	-	1	-	2	-	9	-	14	-
Lothian and Borders	-	-	1	-	-	1	6	2	2	3	15	-
Strathclyde	1	1	-	1	18	7	18	7	44	16	113	13

TOTAL	4	1	1	1	19	8	27	10	62	20	153	14

(CS -Chief Superintendent , DCS - Detective Chief Superintendent , S – Superintendent - Chief Inspector, PI - Police Inspector, DI - Detective Inspector, PS - Police Sergeant , PC - Police Constable, DC - Detective Constable.)

Notes:

The Strathclyde figures include 1 DCI, 1 DI, 1 DS and 6 DC’s currently working within the Scottish Crime and Drug Enforcement Agency.
There are no Detective Superintendents or Detective Chief Inspectors participating in the scheme at present.
14 officers who did participate in the scheme have since resigned/retired. They are not included in the 153 total.

87. In terms of the contribution which officer retention would make to absolute police numbers, ACPOS explained that retaining officers would not necessarily add to the total since funds directed towards the retention of police officers would not then be available for new recruits. It would, however, add in terms of experience and skills. Chief Constable David Strang stated—

“If we retain someone, the funds will not be available for recruitment. To me, retention is about experience, quality of service, particular skills and expertise. Retention does not contribute to the overall numbers.⁵⁴

88. When asked about the budgetary implications of retaining experienced officers, Doug Cross explained—

“… if we used the 30-plus scheme as a way of retaining additional officers, and we therefore provided funding to retain them, that would be more expensive than recruiting new officers.” ⁵⁵

89. When asked about the potential to enhance the 30-plus scheme, Doug Cross stated—

“… we do not know the detail about the £54 million and whether money will be available to augment the 30-plus scheme, to make staying on more attractive for officers and to provide funding for those additional officers.”⁵⁶

90. The Committee asked the Cabinet Secretary whether financial and other incentives offered to officers engaged in community policing, particularly those whose role including ‘pounding the beat’, would be attractive enough to encourage them to stay on beyond 30 years service. The Cabinet Secretary was convinced that some would stay—

“Some officers want to continue to serve their communities as community police officers and are capable of doing so. We should take up such opportunities. Others want to continue to do more specialist work, for which they have acquired skills and talents, but they might not want to take on aspects of the job, such as the Friday or Saturday night shift in George Square. We need to retain the skills of such people and thereby free up capacity. … Creating a scheme that allows forces to retain officers who wish to continue to serve in communities that want them to serve is not impossible.”⁵⁷

91. When asked specifically whether he could give an estimate of the number of officers that the Scottish Government hoped to retain, the Cabinet Secretary stated—

“No, we cannot. We have inherited the problem of the 30-plus scheme, which is clearly not functioning as it should, north or south of the border. Our view is that the 30-plus scheme can be refined, but it is a pan-UK scheme, so we hope that we can work in collaboration with our colleagues south of the border to improve it. However we should consider other arrangements to allow officers who wish to continue serving their communities to do so…That will not involve only the 30-plus scheme, as we are considering new schemes. Until we have devised a formal new scheme or schemes, it will be impossible for me to say just how many officers will be retained”⁵⁸

A new retention scheme?

92. The Committee also asked the Cabinet Secretary for details of how long it would take to implement a new retention scheme, including the various negotiations that would have to take place to make it happen. In response, he offered to write to explain the position.⁵⁹

93. In subsequent correspondence, the Cabinet Secretary explained that work on plans for reviewing the 30-plus scheme and other retention mechanisms was being taken forward in the context of the Police Negotiating Board Scottish Forum, which included representation from all key stakeholder groups. He gave an undertaking to provide an update to the Committee when the plans were more fully developed.⁶⁰

94. In response to written parliamentary questions about the retention and redeployment of police officers, the Cabinet Secretary provided the following response—

“The Scottish Government will deliver an additional 1,000 police officers in our communities through increased recruitment, improved retention and redeployment. We have already announced, as a first step, the recruitment of 500 new officers over the lifetime of Parliament, and in line with the rest of the public sector, have set the police a clear 2 per cent efficiency target to be reinvested to support improved retention and the redeployment of officers to strengthen operational policing in our communities.

We have not set specific targets for retention or redeployment since decisions on the specific recruitment and deployment of police officers are an operational matter for Chief Constables.

Work is already underway in this regard and Chief Constables and Police Board Conveners share our clear desire for a greater visible police presence in our communities.

Discussions have also taken place with stakeholders on the development of new opportunities to improve retention, and on the evaluation of the existing 30-plus scheme. Our aim is to ensure that police forces continue to benefit from the services of the most skilled and able of the 2,300 officers eligible to retire over the next four years.”⁶¹

95. The Committee notes the commitment given by the Cabinet Secretary to provide an update in due course, but remains disappointed that the Scottish Government has been unable to provide more information at this stage in relation to the anticipated timetable for implementation of a new or revised retention scheme. The Committee calls upon the Scottish Government to provide this information at the earliest opportunity.

96. n the basis of the evidence received, the Committee has a number of reservations about the likely effectiveness of a 30-plus scheme and other undefined mechanisms in persuading police officers of retiral age to remain in service. It would seem that recruitment of new officers offers the best chance of adding to the number of police officers available in Scotland’s communities.

Efficiency of resource use

97. The Committee was also keen to examine how efficiently Scottish police forces utilise their available resources and the potential for further efficiency gains to be realised.

Best Value

98. A key element in driving greater efficiency within police forces in Scotland is the duty of Best Value, enshrined in the Local Government in Scotland Act 2003 (‘the 2003 Act’).

99. The submission from the Auditor General and Accounts Commission provided a clear description of what this duty entails—

“Best Value, applicable across the public sector, involves a range of features that includes effective performance management and planning, increased public reporting and accountability, responsiveness to customers and citizens and important leadership and scrutiny roles for elected members.”⁶²

100. The 2003 Act also states that it is the duty of a local authority “to make arrangements for the reporting to the public of the outcome of the performance of its functions.”⁶³ In addition the Act requires local authorities to demonstrate a sound strategic approach to public performance reporting. These provisions of the Act apply also to joint police boards.⁶⁴

101. The Auditor General and Accounts Commission emphasised that the 2003 Act only applies the duties of Best Value and public performance reporting to police authorities, not to chief constables and police forces but, at a practical level, guidance from the Justice Department issued in 2003 (Circular 11 “Implementing Best Value in the Scottish Police Service”) had emphasised the need for police authorities and chief constables to work “in tandem” to achieve Best Value.⁶⁵

102. The Auditor General and Accounts Commission reflected on a pilot exercise carried out jointly with HMIC in 2006 which examined how the Commission’s approach to Best Value auditing might work when applied to police authorities. The pilot found that in a number of important aspects, there was a significant gap between what is expected of councils and what appears to be the norm in police authorities.⁶⁶

103. In its annual report for 2005-06, HMIC also commented on this pilot exercise—

“To date arrangements to secure Best Value within policing have been left to chief constables and forces, with much effort having been put into achieving financial savings, often at the expense of focusing on improvements in quality. Until this year little or no work on Best Value was undertaken by police authorities as opposed to police forces.”⁶⁷

104. In order to address the tripartite accountability structure, HMIC considered that the existing Best Value model would need to be refined. HMIC had, therefore, called for the production of specific guidance for police authorities.⁶⁸

105. In June 2007, the Scottish Government produced guidance for members of police authorities and joint police boards. This included some consideration of Best Value, including the monitoring and management of police performance. This confirmed that police authorities had a responsibility to—

“secure the maintenance of an efficient and effective police force in their area, achieving an appropriate balance between quality of performance and the cost of that performance. Members of the police authority should therefore take joint responsibility for the overarching plan for the achievement of Best Value and other duties, within the force, and work with the chief constable to ensure its effective fulfilment.”⁶⁹

ACPOS Best Value report

106. For the past five years, ACPOS has, on behalf of the Scottish Police Service, published an annual report on Best Value. This annual report provides information on a range of activities carried out by the eight police forces to improve their service and deliver Best Value.

107. In its most recent report, ACPOS also reported on progress towards the efficiency savings targets set by the previous Scottish Executive as part of its Efficient Government Initiative.⁷⁰

108. According to the report, Scottish Police forces saved over £42 million in 2006/07 under the Efficient Government Initiative and made other improvements resulting in increased effectiveness. The £42 million figure was made up from just over £12 million of cash and £30 million of non-cash, or time-releasing, savings.⁷¹

109. In the conclusion of the report, ACPOS commented on the prospects for achieving further efficiency savings in future—

“The Efficient Government targets are very challenging, and most cash savings are made by improved procurement processes. The methods used currently to realise new savings will not continue to return the targets requested by the Scottish Government. Currently gains are redirected by the forces to improve service delivery.

Future focus on cash savings targets will inevitably mean focus on the main expenditure areas of the police budget, for example, staff salary costs, which will restrict forces’ ability to deal with current and new demands.

In addition, many planned improvements require capital to finance, for example ICT platforms to manage gathering, transmission and use of police information. Reductions to police budgets will set these crucial projects back many years, or indeed stop them progressing. Thus plans to modernise and improve police efficiency and effectiveness could be compromised.”⁷²

Efficiency targets

110. In its scrutiny of the draft Budget for 2008/09, the Committee asked police witnesses for their views on the expected 2 per cent cashable efficiency savings target set by the Scottish Government. ACPOS told the Committee—

“The efficiency savings will be a challenge for all public bodies – not just the police. There might, however be an additional challenge for us if those savings have to be made while there is a commitment to preserve police numbers … if police pay and pensions are to be excluded from the amount that is available to make efficiency savings from, first because we are looking to preserve staff numbers and secondly because they are unavoidable costs, a 2 per cent efficiency gain from the balance will in reality equate to nearer 7 per cent. That would be extremely challenging for any organisation.”⁷³

111. ASPS advised that —

“Our main concern is with the 2 per cent cashable efficiency saving and stems from the question whether there is a clear understanding of the impact that such a saving will have. If demand on the service continues to increase and the pensions provision, which is an essential item of police expenditure, cannot be contained, a 2 per cent efficiency saving might start to cut into police numbers, including operational police officer numbers.” ⁷⁴

112. Joe Grant for the SPF stated—

“There will be huge pressure on the service to increase the original cash savings target of £4 million to £22 million on the back of the phenomenal efficiency savings that we have achieved over the last three years, particularly given what we can actually make savings on. … I have no idea how you make efficiency savings given those fixed costs – it is impossible. Efficiency savings of £22 million are being sought from a smaller pot. We believe that quality of service would be compromised. It is a major difficulty.”⁷⁵

113. Professor Arthur Midwinter, financial adviser to the SPF, provided additional evidence—

“From my work on Treasury figures for the whole of the UK, I know that nobody has ever made more than 1 per cent efficiency savings in British Government over more than two or three years, so I am very worried about the figures.”⁷⁶

114. Due to its concerns, the SPF told the Committee that it had argued that an exceptional case should be made for the police service to be allowed to exclude staff costs and pensions from the usual practice of seeking efficiency savings across all budget heads.⁷⁷

115. Although 2 per cent was a challenging target, ACPOS stated that it would do everything that it could to achieve it—

“The areas in which we see the potential for such savings include procurement. We already have a number of collaborative arrangements between forces outwith the SPSA [Scottish Police Services Authority] arrangement. … We are also working together closely under the auspices of what we call the business change programme board to develop a national information and communications technology blueprint. … We are considering developing asset management systems that will provide some efficiencies. In fleet, we take advantage of preferential rates in the purchase of vehicles; we are also looking at other consumables and at more fuel-efficient vehicles.”⁷⁸

116. In his evidence, the Cabinet Secretary for Justice stated—

“The 2 per cent efficiency savings appear to us to be perfectly deliverable, although achieving them might not necessarily be easy. The Home Office report on police efficiency savings in 2006-07 set an efficiency target of 3.4 per cent for police south of the border. … If they can do it, so can we. … All savings that are generated from the 2 per cent efficiency savings target will be available to reinvest in the improvement of operational policing.”⁷⁹

117. In subsequent correspondence, the Cabinet Secretary explained that the 3.4 per cent efficiency gain achieved by police in England and Wales had been derived by aggregating the results from the efficiency plans for each of the 43 police forces concerned. The savings themselves had come from a mixture of procurement savings, internal reorganisations and re-structuring, better use of technology and changing working practices and processes.⁸⁰

118. In its oral evidence, the Scottish Police Authorities Conveners’ Forum called for the development of “a methodology that measured gains in front-line officer time resulting from things such as the ICT changes, new methods of working or civilianisation.”⁸¹

119. The Committee strongly supports the continuing efforts made by police forces to improve efficiency of service and the delivery of Best Value.

120. The Committee acknowledges the annual ACPOS Best Value reports which provide details of the efficiency gains which the police service in Scotland has generated in recent years. However, the Committee notes that over 70 per cent of these efficiency gains have been time-releasing rather than cash-releasing.

121. The Committee acknowledges the very different views expressed by witnesses regarding the new 2 per cent cash efficiency savings target set by the Scottish Government but acknowledges the commitment by ACPOS to work to achieve it. The Committee believes that meeting this target will be extremely challenging and will monitor progress during its budget scrutiny in future years.

122. In relation to Best Value reporting by Scottish police forces, the Committee questions the appropriateness of the current approach. The Committee considers that the preparation and publication of a single, all-Scotland, Best Value report by ACPOS on behalf of all Scottish police forces cannot substitute for detailed performance reporting by forces to their respective police authority. In order to fulfil their duty to secure Best Value, under the terms of the Local Government in Scotland Act 2003, individual police authorities should be provided with sufficient information to allow careful scrutiny of performance at the local level. The Committee, therefore, calls upon the Accounts Commission and HMIC, in consultation with the Scottish Police Authorities Conveners’ Forum, to review the current approach to ensure that police authorities can effectively discharge their statutory obligations in relation to Best Value.

Efficiency of resource use - the role of the Scottish Police Services Authority

123. The SPSA was established by the Police, Public Order and Criminal Justice (Scotland) Act 2006. It became fully operational on 1 April 2007 with some 1,200 staff and a grant of £81.0m.

124. In its written evidence, the Scottish Government stated that it anticipated that the establishment of the SPSA would—

“enable the police support services and SCDEA to build on the considerable successes which they have already achieved by modernising, improving efficiency and working together on a national basis. By providing the best possible support services SPSA is enabling Scottish police forces to concentrate on their core business – operational policing.”⁸²

125. In its written submission, the SPSA explained that it could support the police service in a wide range of areas by “ensuring that effective delivery of a service is both relevant in terms of the individual undertaking the role and also ensures the removal of duplication and replication in delivery.”⁸³

Future development of SPSA services

126. Looking to the future, the SPSA suggested that consideration should also be given to removing duplication of delivery across forces in many specialist areas including:

firearms;
search;
explosives; and
public order disciplines.

127. The SPSA considered that it could be the provider or at least co-ordinator of such services.⁸⁴

128. ACPOS expressed strong support for the SPSA, including the potential for more centrally provided services.⁸⁵ In addition, ACPOS explained that there was also a considerable degree of collaboration between the support services of individual forces in order to maximise efficiency.⁸⁶

129. HMIC argued that it should be possible to agree criteria that could be used to decide in a systematic way what activities ought to be provided by the SPSA as opposed to individual police forces. HMIC suggested that criteria might include—

Does the idea concern a core-purpose activity?
Does it actually require policing?
Would it bring increased effectiveness?
Is there a critical-mass issue, given the number of people who would be involved?
Would there be economy-of-scale efficiencies?⁸⁷

130. In its annual report for 2006-07, HMIC reiterated its view that some operational policing functions would best be provided, or at least co-ordinated, at a level higher than that of individual forces—

“Examples include counter-terrorism, specialist firearms support, motorway policing, air support, and some forms of serious crime investigation.”⁸⁸

131. HMIC considered that by creating this 'supra-force' capability, local police would be able to focus attention on “the much larger-scale policing activity of dealing with volume crime, disorder and the many daily, minor emergencies reported to the police.”⁸⁹

132. HMIC argued that “creating a robust national solution for the very important but relatively small volume of policing activity that could be managed above force level, is one as yet unrecognised but effective way of improving and sustaining local or community policing.”⁹⁰

133. In terms of back office support services, ACPOS explained that collaboration between individual police forces already occurs and thus options for the efficient delivery of services are not limited to separate provision by each police force on the one hand and provision by the SPSA on the other—

“A significant amount of work goes on in the eight forces to consider the available resources in each force and how we can maximise the benefits. Sometimes the work is about looking at a centralisation measure through the SPSA; at other times, it is about working together to maximise efficiency.”⁹¹

134. The Cabinet Secretary gave his personal encouragement to any efforts to enhance collaboration between forces. Referring to the establishment of the SPSA, he stated that this offered the “flexibility to obtain the economies of scale that come from dealing centrally with matters that are better dealt with in that way, such as ICT, forensics and the acquisition of uniforms.”⁹²

135. The Cabinet Secretary also confirmed that he had asked Andrew Cameron, the chief constable of Central Scotland Police, to investigate whether a centralised recruitment scheme could be introduced. He explained the rationale for this move—

“It appears that efficiency savings that could be made could free up resources that would, in turn, free up capacity and make Scotland safer and stronger.”⁹³

136. Despite his enthusiasm for the provision of more centralised police services, the Cabinet Secretary ruled out the creation of a single police force for Scotland. He considered that the country was “well served by the current constabularies and people want to retain them.”⁹⁴

137. The Committee supports the retention of the current eight police forces across Scotland and welcomes the commitment given by the Cabinet Secretary.

138. However, the Committee also supports the view articulated by HMIC that the development of a ‘supra-force’ capability in specific operational areas will allow local police forces to focus their attention on dealing with important local issues, including volume crime, disorder and minor emergencies.

VAT status of the SPSA

139. In correspondence regarding the transfer of responsibility for police ICT services to the SPSA, the Cabinet Secretary provided the Committee with information regarding the VAT liability of the SPSA given its status as a non-departmental public body.

“Following discussions with HMRC [Her Majesty’s Revenue and Customs] it was recognised that as a Non Departmental Public Body (NDPB) SPSA would not be exempt from VAT, unlike local authorities and consequently police authorities.

This change in VAT status was an inevitable consequence of establishing a truly national body to provide police support services on a national basis and could only have been avoided by maintaining local authority control of police support services - something which was already untenable given the existence of national police training, criminal records and some IT services, and which would have been indefensible in relation to the new national forensic science service and indeed any other newly created services.

The issue was discussed by the Common Police Services Programme Board and was the subject of correspondence with Scottish Police Authorities' Conveners' Forum. The amount of SPSA's additional VAT liability was estimated at £1.9m. per annum - some 2% of its budget. No

Footnotes:

¹ Monaghan B. International Journal of Sociology of Law, Volume 25, Issue 1, March 1997, pages 21-44

² Donnelly, D. and Scott, K. (2005) Policing Scotland. Devon: Willan Publishing, page 15

³ Scottish Parliament Information Centre. (2007) The Scottish Criminal Justice System: The Police. SPICe subject map 07/02, page 3. Available at: http://www.scottish.parliament.uk/business/research/pdf_subj_maps/SMDA07-02.pdf

⁴ Donnelly, D. and Scott, K. (2005) Policing Scotland. Devon: Willan Publishing, page 21

⁵ Donnelly, D. and Scott, K. (2005) Policing Scotland. Devon: Willan Publishing, page 21

⁶ ACPOS website. Available at: http://www.acpos.police.uk/AboutUs_1.html [Accessed 3 January 2008]

⁷ Scottish Parliament Information Centre. (2007) The Scottish Criminal Justice System: The Police. SPICe subject map 07/02, page 5. Available at: http://www.scottish.parliament.uk/business/research/pdf_subj_maps/SMDA07-02.pdf

⁸ ACPOS website. Available at: http://www.acpos.police.uk/AboutUs_1.html [Accessed 3 January 2008]

⁹ Donnelly, D. and Scott, K. (2005) Policing Scotland. Devon: Willan Publishing, page 21

¹⁰ Donnelly, D. and Scott, K. (2005) Policing Scotland. Devon: Willan Publishing, page 21

¹¹ Donnelly, D. and Scott, K. (2005) Policing Scotland. Devon: Willan Publishing, page 23

¹² Auditor General and Accounts Commission, written evidence

¹³ Donnelly, D. and Scott, K. (2005) Policing Scotland. Devon: Willan Publishing, page 24

¹⁴ Scottish Government website. Available at: http://www.scotland.gov.uk/library/documents/police.htm [Accessed 3 January 2008]

¹⁵ SPF, written evidence

¹⁶ Scottish Police Services Authority website. Available at: http://www.spsa.police.uk/about [Accessed 3 January 2008]

¹⁷ Scottish Parliament Information Centre. (2007) The Scottish Criminal Justice System: The Police. SPICe subject map 07/02, page 6. Available at: http://www.scottish.parliament.uk/business/research/pdf_subj_maps/SMDA07-02.pdf

¹⁸ Scottish Parliament Information Centre. (2007) The Scottish Criminal Justice System: The Police. SPICe subject map 07/02, page 6. Available at: http://www.scottish.parliament.uk/business/research/pdf_subj_maps/SMDA07-02.pdf

¹⁹ Scottish Parliament Information Centre. (2007) The Scottish Criminal Justice System: The Police. SPICe subject map 07/02, page 6. Available at: http://www.scottish.parliament.uk/business/research/pdf_subj_maps/SMDA07-02.pdf

²⁰ Donnelly, D. and Scott, K. (2005) Policing Scotland. Devon: Willan Publishing, page 25

²¹ Justice Committee briefing paper J/S3/07/7/6, Scottish Parliament Information Centre (2007) Police authorities and joint police boards, 30 October 2007

²² Scottish Parliament Information Centre. (2007) The Scottish Criminal Justice System: The Police. SPICe subject map 07/02, page 7. Available at: http://www.scottish.parliament.uk/business/research/pdf_subj_maps/SMDA07-02.pdf

²³ Donnelly, D. and Scott, K. (2005) Policing Scotland. Devon: Willan Publishing, page 26

²⁴ Scottish Parliament Information Centre. (2007) The Scottish Criminal Justice System: The Police. SPICe subject map 07/02, page 8. Available at: http://www.scottish.parliament.uk/business/research/pdf_subj_maps/SMDA07-02.pdf

²⁵ Donnelly, D. and Scott, K. (2005) Policing Scotland. Devon: Willan Publishing, page 27

²⁶ Scottish Government website. Available at: http://www.scotland.gov.uk/Topics/Justice/Police/15403 [Accessed 4 January 2008]

²⁷ Scottish Parliament Information Centre. (2007) The Scottish Criminal Justice System: The Police. SPICe subject map 07/02, page 9. Available at: http://www.scottish.parliament.uk/business/research/pdf_subj_maps/SMDA07-02.pdf

²⁸ ACPOS, written evidence

²⁹ SPF, written evidence

³⁰ SPF, written evidence

³¹ HMIC (2002) Narrowing the Gap - Police visibility and public reassurance- Managing public expectation and demand. Available at: http://www.scotland.gov.uk/Publications/2002/12/15868/14394 [Accessed 14 December 2007]

³² Justice Committee, Official Report, 6 November 2007, Col 227

³³ Justice Committee, Official Report, 6 November 2007, Col 239

³⁴ HMIC, written evidence

³⁵ HMIC, written evidence

³⁶ HMIC, written evidence

³⁷ Scottish National Party manifesto 2007. Available at: http://www.snp.org/policies/justice [Accessed 29 November 2007]

³⁸ Scottish Parliament, Official Report, 6 June 2007, Col 406

³⁹ Justice Committee, Official Report, 13 November 2007, Col 287

⁴⁰ Justice Committee, Official Report, 13 November 2007, Col 288

⁴¹ Scottish Government (2007) Scottish Budget and Spending review 2007. Available at: http://www.scotland.gov.uk/Publications/2007/11/13092240/7 [Accessed 29 November 2007]

⁴² Justice Committee, Official Report, 20 November 2007, Col 355

⁴³ Justice Committee, Official Report, 20 November 2007, Col 357

⁴⁴ Justice Committee, Official Report, 13 November 2007, Col 287

⁴⁵ Scottish Executive: Police Circular No:22/2004:The 30-Year Plus Retention Scheme. Available at: http://www.spf.org.uk/issues/041104.htm [accessed 30 November 2007]

⁴⁶ Scottish Public Pensions Agency. Police Pension Scheme – The 30+ Scheme. Available at: http://www.sppa.gov.uk/police/scheme_info.htm [accessed 30 November 2007]

⁴⁷ Scottish Public Pensions Agency. Police Pension Scheme – The 30+ Scheme. Available at: http://www.sppa.gov.uk/police/scheme_info.htm [accessed 30 November 2007]

⁴⁸ Scottish Public Pensions Agency. Police Pension Scheme – The 30+ Scheme. Available at: http://www.sppa.gov.uk/police/scheme_info.htm [accessed 30 November 2007]

⁴⁹ Justice Committee, Official Report, 20 November 2007, Col 335

⁵⁰ Justice Committee, Official Report, 20 November 2007, Cols 336-7

⁵¹ Justice Committee, Official Report, 20 November 2007, Cols 336-7

⁵² Justice Committee, Official Report, 13 November 2007, Col 307

⁵³ Source: ASPS and ACPOS, correspondence to the Convener of the Justice Committee dated 27 November 2007