Effective Shift Systems For The Police Servicelibrary.college.police.uk/docs/hopolicersold/fprs2.pdf · Effective Shift Systems For The Police Service ... Selection of sub-divisions

PoliceResearch

Group

Police Research SeriesPaper 2

Effective Shift Systems For The Police Service

Richard StoneTim KempBernard RixGeorge Weldon

EFFECTIVE SHIFT SYSTEMS FOR THE POLICE SERVICE:

Richard StoneTim Kemp

Bernard RixGeorge Weldon

POLICE RESEARCH SERIES: PAPER NO. 2LONDON: HOME OFFICE POLICE DEPARTMENT

Editor: Gloria LaycockHome Office Police Research Group

50, Queen Anne’s GateLondon SW1H 9AT

(i)

Police Research Group: Police Research Series

The Home Office Police Research Group (PRG) was founded in 1992 to carry out and manage research relevantto the work of the police service. The terms of reference for the Group include the requirement to identify anddisseminate good policing practice.

The aim of the Police Research Series is to present results of externally funded studies, and those carried out by thePolice Research Group, in a way that will inform policy and practice throughout the Police service.

A parallel series of papers on crime prevention is also published by PRG, as is a periodical on policing research called‘Focus’.

ISBN 0-8652-746-5

(ii)

© Crown Copyright 1993First Published 1993

Police Shift Systems are of vital importance to the way in which policing is delivered. We need to balance therequirements of the organisation and the patterns of crime and incidents throughout the working days, with thewelfare of the police officers – their social and psychological needs.

This paper reports on a study which set out to compare the effects of the ‘Ottawa’ System which was beingoperated in some forces, with the more common ‘regulation’ pattern. Comparisons were made in relation to anumber of areas including costs, crime issues, routine, operational demands and quality of service. Contrary tothe expectation of some officers, there was little evidence that the Ottawa System was significantly better thanthe regulation pattern although, on a number of variables it was more popular with the staff in those forceswhere it was operating.

The consultants, Touche Ross, made a number of recommendations on the basis of their work which arereported here and which were taken into account by the Police Negotiating Board in revising police regulationsregarding shift patterns.

I M BurnsDeputy Secretary of StateMay 1993

Foreword

(iii)

Touche Ross would like to acknowledge the assistance that has been provided throughout the study by theliaison officers of each of the twenty-four forces which took part. Their co-operation and support was greatlyappreciated.

The Authors

The authors are the consultants employed by Touche Ross Management Consultants, who conducted theresearch and produced the final reports upon which this publication is based. George Weldon is a DivisionalPartner of Touche Ross and is the partner-in-charge of the Organisational and Human Resources consultingpractice. Tim Kemp is the associate who leads the Touche Ross Human Resources consulting practice. RichardStone is a managing consultant and a member of the Human Resources team who has been closely involved indeveloping Touche Ross’ methodology for conducting Police studies. Bernard Rix is a consultant and also aleading member of the human resources group.

The contract with Touche Ross was managed by Mrs Rosemary Jupp of the Police Research Group. All enquiries should be addressed to her in the first instance. Mrs Jupp and Dr Judy Youell, also of the PoliceResearch Group, prepared the Touche Ross reports for publication.

Acknowledgements

(iv)

(v)

Page

Foreword iii

Acknowledgements iv

List of figures vii

List of Tables vii

1. Introduction 1The traditional system 1The impetus for change 2Trials of alternative shift patterns 3Aims of the current study 4Scope and format of the report 5

2. Study Methodology 6Selection of participating forces 6Selection of sub-divisions for comparative purposes 7Selection of forces for detailed study 8Data sources 8The Critical Performance Measurements Inventory (CPMI) questionnaire 8Officer Perception Inventory (OPI) questionnaire 10Force visits 11

3. Findings: Costs and Performance 12Anticipated cost increases 12Anticipated cost savings 12Crime, arrest and clear up rates 13Meeting routine operational demand 13Acute situations and specialist functions 14Quality of service 15General management feedback 15Summary 15

Contents

Page

4. Findings: Effects upon Officers 20Job satisfaction 20Physical well-being 21Social well-being 21Summary 22

5. Consultancy Recommendations 24Proposed revisions to Police Regulations 24National guidelines on shift patterns 25Selecting appropriate shift patterns – force level 25General guidance on managing shift systems 26

Bibliography 28

Appendix A: Continental shift system (Essex Police)Five block shift pattern (West Yorkshire Police) 29

Appendix B: Study terms of reference set by the ACPO Joint Working Group on OrganisationalHealth and Welfare 33

Appendix C: Guidance and recommendations on assessment and implementation of flexible shift systems 35

Contents

(vi)

Figure No Caption Page

1. The Regulation shift pattern 1

2. A variation on the Regulation shift pattern (incorporating quick changeovers) 2

3. The Ottawa shift system 3

4. Forces included in the study 6

5. Key categories within the CPMI questionnaire 9

6. Measurement factors employed in OPI questionnaire 11

List of tables

Table No Caption Page

1. Selected CPMI cost and performance statistics 17

2. Matching resources to demand – comparison index 19

3. OPI results – average scores for working practices, service to the public and lifestyle factors 23

List of figures

(vii)

INTRODUCTION

1 Introduction

1

The traditional systemThe police service has traditionally provided continuous, twenty four hour cover tothe public by employing what has become known as the ‘Regulation shift pattern’.This was originally envisaged as the most appropriate method of meeting operationalrequirements, whilst ensuring that anti-social duty periods were equitably distributedbetween officers. Under the Regulation system, four shift groups cover a twenty eightday cycle by working a rotation of eight hour shifts i.e. seven ‘nights'(2200-0600),seven ‘lates’ (1400-2200) and seven ‘earlies’ (0600-1400). In theory, a total of sevenrest days are made available during the twenty eight period and these are interspersed(in blocks of two or three days) between these seven day periods. (The system isillustrated in figure 1.)

Figure 1. The Regulation shift pattern

Shift M T W T F S S M T W T F S S M T W T FGroup

1 N N N N N N N - - L L L L L L L - - E

2 - - L L L L L L L - - E E E E E E E -

3 L L - - E E E E E E E - - - N N N N N

4 E E E E - - - N N N N N N N - - L L L

Key: E 0600 - 1400 L 1400 - 2000N 2200 - 0600 - Rest Day

Minor variations to the Regulation shift pattern have been introduced over theyears. For example, some officers complained that rest days between night and lateshifts were spoiled by the difficult adjustment of sleeping/waking patterns andexpressed a preference for two late shifts to follow the night work. The introductionof this variation on the Regulation system (as illustrated in figure 2) did allow for amore ‘natural’ transition of sleeping/waking patterns, but also gave rise to the ‘quickchangeover’ which remains unpopular and strenuous.

The traditional system has nonetheless been extensively practiced among policemanagers and is still operated exclusively by many forces. Its enshrinement in PoliceRegulations (which permit an eight hour maximum working day) has contributed toits longevity.

S S M T W T F S S

E E E E E E - - -

- - N N N N N N N

N N - - L L L L L

L L L L - - E E E

The impetus for changeIn recent years, some police managers have raised questions about the effectivenessof the Regulation shift pattern and its ability to meet the increasing and changingdemands made upon the service. These doubts about the traditional system can beseen as stemming from four distinct sources.

(i) Increases in police salaries, which followed the Edmund Davies Review in 1978,enabled many under-resourced forces to recruit up to establishment level. Thisincreased availability of staff resources meant that senior officers could considerchanges in shift management, which would previously have been unworkable;

(ii) In 1984, the Home Office issued Circular 114/84, which emphasised the needfor police forces to improve efficiency and effectiveness in relation to all aspectsof resource utilisation. This inevitably led police managers to focus upon the usemade of police personnel and to consider whether the traditional systempromoted the most efficient and effective use of this most costly resource;

(iii) Advances in information technology and computerisation should have enabledpolice managers to gain access to a range of detailed information on ‘demand’and ‘service’ delivery. This, when examined, provided some evidence of mis-matches between resource availability and demand and gave rise to furtherquestions about the appropriateness of die traditional system;

(iv) More recently, some police forces have commissioned internal research to studythe physical and psychological effects of the Regulation shift system.

INTRODUCTION

2

Figure 2. A variation on the Regulation shift pattern (incorporating quick changeovers)

Monday Tuesday Wednesday Thursday Friday Saturday Sunday Week

N N N N N N N 1

L - - E E E 2

- - L L L L L 3

E E E - - - 4

Key: E 0600 - 1400 L 1400 - 2200 Denotes quickN 2200 - 0600 - Rest Day changeover

L

E

The findings of this research have underlined the negative effects of this systemupon officers’ health, motivation, work performance and social life. Anecdotal evidence has also suggested that the traditional system is unpopularwith officers, primarily because of the 0600 start associated with early shifts, theinterference of the late shift with any social life and the limited time off grantedbetween shifts.

Trials of alternative shift patternsUnderlying doubts about the effectiveness and efficiency of the Regulation shiftpattern have led a number of individual police forces to assess alternativeapproaches. For example, Leicestershire Constabulary has undertaken a trial of amulti-shift eight hour system, Essex Police has introduced a continental shift patternand West Yorkshire Police has developed a five block pattern. (Detailed diagrams ofthe two latter systems are provided within Appendix A.) In March 1989, thePortsmouth Central Sub-Division of Hampshire Constabulary began trials of the“Ottawa compressed working week system”, commonly known as the “Ottawa shiftsystem”. As the name suggests, this system was first used in Ottawa by the CanadianPolice. It comprises a five shift, thirty five day work pattern with the day split into aten hour day shift, a ten hour afternoon shift and an eight-and-a-half hour nightshift. The operation of the system is illustrated in figure 3.

INTRODUCTION

3

Figure 3. The Ottawa shift system

Shift M T W T F S S M T W T F S S M T W T FGroup

A - - D D D - - A A A - - D D D D - - N

B A A A - - D D D D - - N N N N N N N -

C D D - - N N N N N N N - - - - - - A A

D N N N N - - - - - - A A A A - - D D D

E - - - A A A A - - D D D - - A A A - -

KEY: D 0700-1700A 1400 - 2400 OR 1700 - 0300 (Thursday, Friday, Saturday)N 2230 - 0700 (Saturday to Thursday) or 2300 - 0700 (Friday)- Rest Day

S S M T W T F S S M T W T F S S

N N N N N N - - - - - - A A A A

- - - - - A A A A - - D D D - -

A A - - D D D - - A A A - - D D

- - A A A - - D D D D - - N N N

D D D D - - N N N N N N N - - -

Initial feedback from both the officers working the new shift system on thePortsmouth subdivision and their managers was extremely favourable. The Ottawashift system was perceived as resolving many of the failings of the traditional system.

In return for a slightly longer working day, shift officers had gained an extra forty tworest days per annum with the ‘early turn’ (starting at 0600 on an early shift) and the‘quick changeover’ (a late shift directly following a night shift) becoming things ofthe past. Senior officers particularly welcomed having, at their disposal, two periodsof shift overlap enabling them to deploy more officers on the streets during criticalcity centre policing periods. (For example, during the afternoon to addressshoplifting problems and in the late evening at pub/club closing time to police drinkrelated incidents.)

In view of the initial feedback, nineteen further forces have subsequently begun trialsof the Ottawa shift pattern. (A full list of these forces is held within figure 4 ofsection 2.) However, because the Ottawa shift system involves ten hour workingdays, trials require voluntary agreements to work to “amended” Police Regulationsand several forces have stated that they are not prepared to work outside the formalframework. With the weight of pressure for reform, negotiations have begun toamend Police Regulations to allow the introduction of the alternative shift system.

Aims of the current studyA number of forces involved with trials of the Ottawa shift system have producedreports detailing their experience. These have been largely favourable, but somedoubts have been expressed because most failed to employ any standardisedevaluation methodology. In 1991, the ACPO Joint Working Group onOrganisational Health and Welfare recommended to the Home Office that a moresystematic review of the effectiveness of the Ottawa shift system should beundertaken in a sample of police forces involved in trials. This review was notexpected to produce definitive conclusions but to provide a basis for exploration ofappropriate police practices. Accordingly, the current study was commissioned by theHome Office Police Research Group with the following broad aims:

(i) To review the Ottawa shift system as operated within a sample of forces and toevaluate this system with special reference to its impact upon:

✷ performance: including impact upon operational effectiveness, customersatisfaction and ability to meet demand for service in a range ofcircumstances.

✷ personnel factors: including officer morale, and social and physical wellbeing.

✷ costs: including manpower and equipment.

(ii) To produce best practice guidelines for the development and management ofappropriate shift systems based on the above findings.

(The formal terms of reference for this study, as stated by the ACPO Joint WorkingGroup, are reproduced in Appendix B of this report.)

INTRODUCTION

4

Scope and format of the reportThis report summarises the work undertaken to meet the above terms of reference.Section 2 describes the methodology adopted for the study. Findings relating to bothcosts and performance are presented within section 3 and section 4 covers personnelfactors.

The overall recommendations of the study are then presented in section 5. Thesehave been taken into account by the Police Negotiating Board and new regulationswill reflect these in some degree. Best practice guidelines produced by the consultantsfor selecting, implementing and managing alternative shift patterns are contained inAppendix C. These are recorded for information purposes and do not constituteadvice on how forces should behave.

INTRODUCTION

5

Selection of participating forcesThe methodology developed in support of the study relied heavily upon comparisonsbetween situations existing before the introduction of the Ottawa shift system andthose existing after. All nineteen of the forces that had been involved in trials of theOttawa shift system (referred to in this report as “Ottawa forces”) were selected totake part in this comparative study. (These forces are listed within figure 4 below.)None of the forces undertaking the trials of the new system operated it exclusivelyand, thus, it proved possible to obtain data on non-experimental areas within Ottawaforces for comparative purposes

Five of the forces which were continuing to work shift systems wholly within PoliceRegulations (referred to in this report as “Regulation forces”) were also selected witha view to undertaking comparisons. The inclusion of these latter forces also allowed amore general review of shift patterns to be undertaken. The five Regulation forcesselected are listed within figure 4 below.

STUDY METHODOLOGY

2. Study Methodology

6

Figure 4: Forces included in the study

“Ottawa Forces” “Regulation” ForcesAvon & Somerset* Leicestershire Essex*Cambridgeshire Merseyside* Metropolitan*Derbyshire* Northamptonshire Norfolk*Devon & Cornwall Northumbria North Wales*Dorset Nottinghamshire* West Yorkshire*Durham - South Wales*Greater Manchester* Sussex*Hampshire* Thames ValleyHertfordshire West Midlands*Kent*(Key: Asterisk indicates that the force was visited as part of the study.)

Selection of sub-divisions for comparative purposesThe basic unit of comparison employed within the study was the sub-division,although a few forces were experimenting with the new system across entire divisionsand the methodology had to be adjusted accordingly. (For the sake of simplicity, theterm “sub-division” is nonetheless used throughout this report.) No attempt wasmade to compare all sub-divisions within selected forces and instead a sub-sample offifty three sub-divisions was selected for analysis. This was comprised of three groups:

Sub-divisions experimenting with the Ottawa system in Ottawa forces = 19Sub-divisions operating the Regulation system in Ottawa forces = 19Sub-divisions operating the Regulation system in Regulation forces = 15

Total = 53

This sample was constructed with the assistance of liaison officers appointed withineach of the sample forces as follows:

Sub-divisions operating Ottawa systems within Ottawa forces

Each of the nineteen Ottawa forces provided details of sub-divisions which had beendirectly involved in trials of the Ottawa system (known as “Ottawa sub-divisions”).This information was used, for eighteen of the forces, to select a single sub-divisionwhere trials had been initiated in 1991. This criterion was introduced to ensure thatstandard comparisons could be made between pre and post experimental situationson the sub-division. (Where trials of the Ottawa system had commenced part waythrough 1991, data relating to the months of the trial only were converted to a fullyear equivalent.)

In one case only (Nottinghamshire Constabulary), there was no sub-division startinga trial of the Ottawa system during 1991. The sub-division ultimately chosen hadbegun running the experimental system part way through 1989. (1989 data wasweighted to provide a full year equivalent and used for comparative purposes in thisinstance.)

Sub-divisions operating the Regulation system within Ottawa forces

Each of the Ottawa force liaison officers identified a sub-division, which was broadlycomparable in terms of establishment and policing environment (e.g mainly urban,urban/rural mix) to the selected Ottawa sub-division, but was operating a Regulationshift pattern.

Sub-divisions operating the Regulation system within Regulation forces

Each of the five Regulation forces was invited to nominate three sub-divisions (oneeach from the categories of inner city, urban and rural). Liaison officers were asked togive priority to sub-divisions that had adopted experimental shift patterns, and/ordifferent approaches to policing.

As a result, a continental shift pattern operating at Benfleet (Essex Police) and afive-block pattern employed at Huddersfield (West Yorkshire) were included in thesample. (These two shift patterns are illustrated within Appendix A of this report.)A sector policing experiment operating at Battersea (Metropolitan Police), whichinvolves the allocation of dedicated teams to specific geographic areas within adivision was also selected. This enabled the study to give some consideration toexisting flexibilities within the Regulation shift system and the impact, if any, ofdifferent types of policing on shift patterns.

STUDY METHODOLOGY

7

Selection of forces for detailed study

All five of the Regulation forces and ten of the nineteen Ottawa forces were selectedfor more detailed study. In selecting the sub-sample of Ottawa forces, efforts weremade to include those with a full years experience of operating the system and toprovide a balance between inner city, urban and urban/rural policing. Other forceswere included for specific reasons:

✷Hampshire: as the originator of trials with the Ottawa system and the forcewith the most extensive application of the system;

✷Merseyside: on account of this force’s decision to apply the Ottawa shiftpattern force-wide from 1 April 1992;

✷South Wales: as the only force which had carried out trials with the Ottawasystem, but had subsequently chosen not to continue the experiment.

Data sources

The study was expected to highlight any measurable variations which might beattributable to the change in shift system. Data was obtained from three key sourcesin support of this exercise:

i The Critical Performance Measures Inventory (CPMI) questionnaire: designedto gather performance data for all fifty three selected sub-divisions;

ii The Officer Perception Inventory (OPI) questionnaire: developed to record theperceptions of up to four hundred officers actually working shifts (Ottawa andRegulation) within the fifteen sample forces selected for detailed study;

iii Interviews and group discussions: conducted with a range of groups andindividuals (including senior managers at force headquarters level, sub-divisional commanders and uniformed officers working shifts) during visits tothe fifteen forces selected for more detailed study.

The Critical Performance Measurements Inventory (CPMI) questionnaire

This questionnaire was devised to obtain data relating to areas of police activitywhich might potentially be affected by shift working. (The key categories includedwithin the CPMI questionnaire are listed within figure 5.) The data were gathered bythe force liaison officers for each of the fifty three sub-divisions nominatedpreviously.

STUDY METHODOLOGY

8

STUDY METHODOLOGY

9

Figure 5. Key categories within the CPMI questionnaire

Establishment numbers Ordinary overtimeNumber of officers joining Rest day overtimeNumber of officers leaving Bank holiday overtimeCertificated absence Total overtimeSelf-certificated absence Crimes recordedRadios – burglary dwellingVehicles – theft from vehicleMileage – theft of vehicleFuel Arrests recordedAccidents Clear-ups recordedLetters of appreciation ComplaintsMatching resource to demand

A preliminary study had been undertaken to identify the nature and range ofavailable data to ensure as complete a return as possible to the CPMI questionnairein the time given. Despite this, not all forces were able to supply the complete rangeof data requested. Marked variations in the recording procedures employed bydifferent forces were also noted during the course of the study. Even different sub-divisions within the same force were found to collect different categories of data andto use a range of recording methods.

For these latter reasons, no direct comparisons were made between situations onindividual sub-divisions (e.g. Ottawa sub-division versus Regulation sub-division insame/different force). Instead, analysis was based upon a calculation of thepercentage variation (positive or negative) experienced within each of the fifty threeindividual sub-divisions between 1990 and 1991 in relation to all variables ofinterest. This information was aggregated (by calculating a mean and a cumulativetotal) for each of the three groups comprising the sub- sample i.e.

Sub-divisions experimenting with the Ottawa system in Ottawa forcesSub-divisions operating the Regulation system in Ottawa forcesSub-divisions operating the Regulation system in Regulation forces

Comparisons between the experimental and non-experimental groups were thenmade at this more abstracted level for each of the variables. It was assumed that anybias introduced by different recording and reporting practices would be minimised inthis fashion.

It must, however, be noted that CPMI responses varied widely between sub-divisionsfor all variables; some showed very large increases between 1990 and 1991, whileothers (in the same sub-sample group) showed very large decreases. Hence, it did notprove possible to draw any statistically significant conclusions from the data regardingthe impact of the Ottawa shift system upon the factors listed within figure 5.

STUDY METHODOLOGY

10

Any comments based on the CPMI data, which are made in this report, will relateonly to the specific sample considered and extreme caution should be exercisedbefore drawing any wider conclusions.

Officer Perception Inventory (OPI) questionnaireThe OPI questionnaire was administered only to officers working at twenty sevenselected sub-divisions within the fifteen forces subjected to more detailed study. Allofficers present on the sub-division at the time of a single visit to the forcecompleted the questionnaire and a total of three hundred and seventy useablequestionnaires was returned. This represents an average of only fifteen returns persub-division and such small numbers prohibited any direct comparisons within orbetween individual sub-divisions. Instead, subsequent analysis relied entirely oncomparisons of overall results (all Ottawa officers v all Regulation officers).

The objective of the OPI questionnaire was to identify whether officers’ perceivedlevels of satisfaction with a range of factors relating to working practices, service to- the public and personal lifestyle had changed significantly on account of theintroduction of Ottawa shift patterns. (The twenty eight measurement factors takeninto account within the OPI questionnaire are listed in figure 6.) Officers workingunder the revised shift pattern were asked to indicate their present feelings (1991), aswell as those in the period before the introduction of the Ottawa system (1990),with regard to each factor. On each occasion, officers were asked to record theirsatisfaction using a scale of one to five. In all but two cases, five represented theoptimum score. (The optimum score for “complaints from the public” and “sicknesslevels” was one.)

The questionnaire was also used to gauge the extent to which the assessments of the“Ottawa officers” differed from those of their counterparts working Regulation shiftpatterns. The latter group (“Regulation officers”) were asked to report on theirpresent feelings (1991) and how they felt in 1990 in order that a comparison couldbe drawn between the two groups. The use of numeric scales meant that mean scoresper factor could be produced for the Ottawa and Regulation groups of officers forcomparative purposes. (No distinction was made between Regulation officers inOttawa forces and Regulation officers in Regulation forces on this occasion.)

Time and financial constraints placed on the study prohibited the use of a morestandardised ‘before’ and ‘after’ methodology for assessment of attitudes. Theapproach actually employed was far from ideal, since officers’ memories of a previousperiod might be unreliable. Further, officers could more readily engineer a differencebetween the two periods through the manner in which they scored the questions.Both of these caveats were, as far as possible, taken into account when reviewing theOPI data.

Force visitsVisits were made to all five of the Regulation forces and to the ten Ottawa forcesselected for more detailed study. In each case, the visits encompassed the sub-divisions for which performance data had been gathered through the CPMIquestionnaire. (Audits of the information supplied were also undertaken as part ofthese visits.) In the Regulation forces, wherever possible, visits were made to all sub-divisions involved in experimental shift patterns or policing approaches.

Interviews were also conducted, in each force visited, with the Chief Constable (orDeputy Chief Constable), with personnel responsible for developing policy on shiftsystems and with representatives of staff associations. A half-day was spent at sub-divisional headquarters, interviewing sub-divisional commanders and ChiefInspectors. (Semi-structured guidelines were used in all interviews.) A total ofapproximately one hundred interviews was undertaken during these visits.

A further half-day was spent at sub-divisional headquarters conducting the OPIquestionnaire and holding group discussions with officers working shifts. (The OPIquestionnaire was completed individually before any discussions took place.)

STUDY METHODOLOGY

11

Figure 6 Measurement factors employed in OPI questionnaire

Working Life Service to the PublicManning levels Overall level of serviceTime pressures Response timesWorkload Matching Resources to NeedsRostering ComplaintsVariety of dutiesOvertime LifestylePolice carsRadios Overall well-beingLockers SicknessCanteen Social lifeCar parking LeisureTeam Family lifeSupervisors Travel timeSub-divisional commander Study timeCivilian staff Financial well-beingSpecial constabulary

The findings presented within this section are based heavily upon the results of theCPMI questionnaire and a summary of relevant CPMI results is provided withintable 1. A comparison index for resource availability and demand, produced from aseparate exercise undertaken as part of the study, is provided within table 2. Bothtables 1 and 2 are located at the end of this section.

Anticipated cost increasesIt had been anticipated that manpower costs might be greater under the Ottawasystem, because of the need to create a fifth shift block. Despite this, an analysis ofestablishment figures suggested that the Ottawa sub-divisions had experiencedincreases of the same order as those occurring on Regulation sub-divisions. Duringinterviews, several Ottawa subdivisions did, however, report difficulties in creatingthe fifth block from within existing resources. In many cases, area beat officers hadbeen used to make good the shortfall, along with officers from specialist units. Thelarger Ottawa sub-divisions had experienced fewer difficulties in creating this fifthblock, although even here there was recognition that resources were depleted atcertain times of day. Some Regulation sub-divisions also complained of being askedto cover for their Ottawa neighbours whose shift strengths were depleted outside theoverlap periods. (The effect of transferring officers to supplement Ottawa resourcesupon other sub-divisions or duties was not examined as part of this study.)

The overlaps between shift blocks provided under the Ottawa system might meanthat additional equipment costs are incurred. The study did not indicate that thenew system had led to any difference in the number of vehicles or radios provided.Ottawa officers responding to the OPI questionnaire did, however, suggest that therewere less police cars and radios available under the new system. Fuel consumptionand vehicle mileage also appeared to be unaffected by the introduction of the newsystem.

Anticipated cost savingsWith additional officers available during Ottawa overlaps to cover periods of peakdemand, it might be expected that there would be a reduction in the amount ofovertime claimed within Ottawa sub-divisions. The data suggests that some such costsavings may have been achieved. All sub-divisions considered experienced somereduction in the level of ordinary overtime claims, but the reduction within Ottawaforces was greatest. Reductions were recorded in ten of the twelve Ottawa sub-divisions for which data was obtained and in three cases the reductions were greaterthan fifty percent.

The Ottawa system does, however, provide for an additional forty two rest days forofficers and this appears to have led to an above average increase in the level of restday overtime. Total overtime hours claimed within Ottawa sub-divisions had,

FINDINGS: COSTS AND PERFORMANCE

3. Findings: Costs and Performance

12

nonetheless, declined (on average) by an estimated fourteen percent, whereasRegulation sub-divisions had experienced decreases of only one percent (Ottawaforces) or seven percent (Regulation forces). Ottawa officers responding to the OPIquestionnaire also suggested that overtime had become less freely available with theintroduction of the new shift pattern. (The latter may, however, simply reflect atrend on all sub-divisions.)

Unfortunately, it is not possible to attach any wider significance to the overtimeresults outlined above. Further reference to the statistics (see table 1) indicates that,on a force wide basis, the average variation in total overtime for Ottawa sub-divisions could be expected to lie anywhere between minus fifty nine and plus thirtyone percent. For Regulation sub-divisions, the expected range is from minus twentyfive percent to plus twenty three percent (Ottawa forces) or from minus thirty threepercent to plus nineteen percent (Regulation forces).

Crime, arrest and clear up ratesThe operational effectiveness of the Ottawa shift system was assessed in terms of itsimpact upon the level of crime and upon arrest and clear up rates. All sub-divisionsconsidered (Ottawa and Regulation) had experienced broadly consistent increases inthe level of recorded crime. This finding held for burglary in a dwelling and theftof/from vehicles, which might have been expected to show greater impacts becauseof the additional patrol resources available under Ottawa. Arrest and clear-up rateswere also broadly similar and it was concluded that the Ottawa shift system had noimpact upon these dimensions of operational effectiveness.

Internal evaluations of the Ottawa system were obtained from a number of the forcesundertaking trials. These also contained little clear evidence of any impact uponcrime, arrest or clear up rates associated with the alternative shift pattern.

Meeting routine operational demandOttawa officers responding to the OPI questionnaire were of the opinion that theintroduction of the new shift system had allowed resources to be matched moreclosely to demand. They also suggested that, with the introduction of the newsystem, workload and time pressures had been reduced. A special study wasundertaken to assess the extent to which resources (defined as the available pool ofuniformed officers) matched demand (defined as the number of calls for servicelogged) under both Ottawa and Regulation systems. Data on both resources anddemand were collected for four sample Tuesday’s and four sample Saturdays (to reflectmid-week and week-end policing patterns, respectively) for 1990 and 1991 from nineOttawa and nine Regulation sub-divisions. (The findings of this exercise arepresented within table 2.)


13

It was anticipated that resources available on Ottawa sub-divisions might moreclosely mirror demand, because of the additional pool of officers which were availableduring overlap periods. However, subsequent analysis suggested that there was noevidence that the Ottawa system provides a better match of resources to demand. Ifanything, the opposite appears to have occurred with Regulation sub-divisionsachieving improved matches on both Saturdays and Tuesday’s between 1990 and1991 and Ottawa sub-divisions showing a smaller improvement on Saturdays and adeterioration in performance on Tuesday’s. (No attention was, however, given toresponse times or the quality of incidents attended.)

This result raises the question of whether all sub-divisional managers are using theOttawa system to its full advantage in this respect. It is also possible that thealternative system is not suited to the operational demand pattern of certain sub-divisions included in the sample. Finally, it should be borne in mind that someRegulation forces within the sample had made efforts to match resource availabilitymore closely to demand, while retaining the eight hour shift blocks required byPolice Regulations. For example, several forces had adopted a policy of supplying asmall number of additional officers during peak demand periods. Officers did,however, exhibit some resistance to the move away from the normal routine andfrom their core shift team.

Acute situations and specialist functionsSenior officers who were interviewed as part of the study commonly expressedconcern about the effect which the Ottawa system might have upon their ability torespond to acute situations, such as major public order incidents. Outside the shiftoverlap periods, the Ottawa system provides twenty percent fewer officers on-duty atany given time and permits two shifts to be absent on rest days. The operation of theOttawa system in parallel with the Regulation system was seen as furthercomplicating the situation by giving rise to serious coordination problems.

Some managers interviewed during the course of the study felt that the six days offprovided after night duty under the Ottawa system conflicted with the requirementsof community policing i.e. for regular and continuous presence of officers in an area.(They also expressed more general concerns about the difficulties of “settling backin” after a prolonged period of rest and of keeping abreast with developments.)Indeed, in some Ottawa sub-divisions visited, area officers had found the alternativeshift pattern unworkable and had reverted to Regulation patterns with eight hourtours of duty. Larger sub-divisions appeared to have experienced lesser problems inthis respect, since areas might anyway be covered by a team of officers drawn fromdifferent shifts.

A number of managers, and indeed officers, also questioned whether the Ottawa


14

system provided sufficient flexibility in individual working patterns to be appropriateto areas such as CID. Several examples were given during discussions of a reluctanceon the part of individual officers to move into specialist units because this involvedlosing the perceived benefits of Ottawa working.

Quality of serviceAll sub-divisions showed an increase in the average number of complaints receivedfrom the public, but Ottawa sub-divisions did appear to fare slightly worse. Thenumber of letters of appreciation received was also considered, but no significantdifferences could be identified. Ottawa officers responding to the OPI questionnairewere, however, of the opinion that there had been an improvement in the standardof service offered to the public. (Regulation officers perceived a decline in this area.)

General management feedbackA number of the sub-divisional managers who were interviewed (and includingseveral currently working under the new system) were of the opinion that theOttawa shift system was not particularly appropriate to their local demand patternand did not satisfy operational needs. Several of the managers currently operating theOttawa system indicated that, given a free hand, they would not have chosen tointroduce it. Some felt that the system emphasised officer welfare at the expense ofoperational requirements and that the latter needed to be more fully addressed.

Many senior managers interviewed were of the opinion that decisions aboutoptimum shift patterns should be made at sub-divisional level. (A few expressedconcerns about the ability of sub-divisional managers to undertake this challenge.)There was unanimous agreement that it would be inappropriate and undesirable forthe Home Office to prescribe in this area, although there was a demand for nationalguidelines covering issues such as minimum and maximum duty lengths.

SummaryAs far as costs are concerned, there was no conclusive evidence that the Ottawa shiftsystem brings about any appreciable savings nor that it enhances operationaleffectiveness in any respect. Further, the study did not suggest that the Ottawa shiftsystem provided a better match of resources to demand. Indeed, there were someindications that the match was actually less adequate under this system and doubtswere expressed about the Ottawa system’s ability to meet the requirements of acutesituations or non-patrol functions. Some managers were also of the opinion that theOttawa system over-emphasised the welfare requirements of officers and thatresponsibility for selecting more appropriate systems should be devolved to sub-divisional level.

Thus, the system does not appear to achieve any of the advantages that are


15

commonly attributed to it and cannot be viewed as producing better value for moneythan Regulation systems. The analysis to date has, however, been based upon arelatively small sample of sub-divisions and it is not possible to place any statisticalsignificance on the findings. Hence, the information gathered might best be viewedas a basis for future research rather than as evidence of the Ottawa system’s failure toimprove upon traditional systems in cost or performance terms. For example, thepossibility that the Ottawa system had failed to realise its full potential, becauseadditional resources (such as cars and radios) had not be provided, might beexamined as part of some future study. Further research might also determinewhether the revised system would remain viable if supplementary manpower couldnot be made available (e.g. from specialists or neighbouring sub-divisions).


16

Ottawa SubDivs Regulation SubDivs Regulation SubDivsOttawa Forces Ottawa Forces Regulation Forces

EstablishmentAverage % deviation 1.5 1.3 0.4

Standard deviation 5.4 5.7 1.5High (95% conf.) 12.1 12.4 3.4Low (95% conf.) -9.2 -9.8 -2.6

% variation: cum. totals 0.7 0.9 0.9

Certificated absenceAverage % deviation 49.8 139.0 21.1



Self certificated absenceAverage % deviation 3.6 10.6 5.7


% variation: cum. totals -2.2 12.8 -2.8

VehiclesAverage % deviation 0.8 10.0 1.8



RadiosAverage % deviation 8.1 1.7 -0.9


% variation: cum. totals 9.6 1.2 -3.3

Ordinary overtimeAverage % deviation -26.3 -5.3 -14.0


% variation: cum. totals -29.7 -5.7 -11.2


17

Table 1. Selected CPMI cost and prerformance statistics

Ottawa SubDivs Regulation SubDivs Regulation SubDivsOttawa Forces Ottawa Forces Regulation Forces

Total overtimeAverage % deviation -14.0 -1.0 -7.3


% variation: cum. totals -19.2 -2.0 -3.8

Offences: totalAverage % deviation 21.6 21.6 16.8

Standard deviation 9.3 12.4 12.0High (95% conf.) 39.9 46.0 40.3Low (95% conf.) 3.4 -2.8 -6.8


ArrestsAverage % deviation -2.5 5.1 8.5


% variation: cum. totals -3.7 6.1 6.8

Clear ups/CrimeAverage % deviation -6.2 -7.7 -4.4


% variations: cum. totals -9.5 -20.9 -5.4

Explanation of terms used in table

Average % deviation: This statistic is obtained by first calculating percentage change (positive or negative) for each sub-division between 1990 and 1991. The individual percentage variations are then summed foreach group and divided by the number of variations calculated to produce an average (mean) for the group.

Standard deviation: This is a standard mathematical calculation which measures the dispersal of responsesaround the mean.

High (95% conf.)/Low (95% conf): This indicates that there is a 95% likelihood that if data were collectedfor the whole population and not just a sample, then the result (“true mean”) would lie somewhere betweenthe high & low estimates.

% variation: cum. totals: This statistic was calculated for each group by first producing separate cumulativetotals for 1990 and 1991. The percentage change between the two years was then calculated to reflect overall change.


18

(Comparison Index)

Force Ottawa Sub-divisions Force Regulation Sub-divisions

Tuesdays Saturdays Tuesdays Saturdays

1990 1991 1990 1991 1990 1991 1990 1991

1 ↓↓ 1.50 2.22 1.43 1.48 1 ↓↑ 1.43 1.70 1.58 1.15

2 ↓↓ 1.67 2.16 1.50 1.89 2 ↑↑ 2.22 2.16 2.05 1.51

3 ↑↑ 2.14 1.41 1.56 0.94 3 ↑↓ 1.70 1.33 1.18 1.40

4 ↑↑ 1.76 1.59 1.72 1.20 4 ↑↓ 2.39 1.91 1.48 1.74

5 ↑↑ 2.40 2.37 2.83 2.46 5 ↑↑ 2.32 1.94 2.02 1.76

6 ↓↑ 2.16 2.86 1.74 1.36 6 ↑↑ 2.17 2.05 2.49 1.24

7 ↓↓ 1.87 2.64 1.23 1.62 7 ↓↑ 1.72 2.40 1.74 1.34

8 ↑↑ 2.43 2.05 1.99 1.92 8 ↓↓ 2.21 2.61 1.22 1.63

9 ↓↓ 2.06 2.40 1.86 2.14 9 ↑↓ 2.83 2.49 2.17 2.36

Mean ↓↑ 2.02 2.23 1.82 1.73 ↑↑ 2.15 2.10 1.82 1.61

Explanation of comparison indexThe comparison index represents the difference between the resources available and the resourcesdemanded. The closer the match between the two, the lower the index and a score of zero represents aperfect fit.


19

Table 2. Matching resources to demand – comparison index

The findings presented within this section draw extensively upon the results of theOPI questionnaire. A summary of relevant OPI results is provided within table 3,which is included at the end of the section.

Job satisfaction and moraleAs part of the OPI questionnaire, officers were asked about their satisfaction withtheir job and shift system during 1990 and 1991. In relation to both factors, Ottawaofficers recorded an increase in satisfaction between the two years, whilst Regulationofficers recorded a decrease. Ottawa officers also indicated increased satisfaction witha range of areas linked to their working life, such as manning levels, time pressuresand workload. (Regulation officers expressed decreased satisfaction in the sameareas.) Greater satisfaction with the range of duties undertaken was also expressed bythe Ottawa officers than by the Regulation group.

It should perhaps be borne in mind, however, that discussions with Ottawa officerssuggested that inflated levels of satisfaction had been reported within somequestionnaires (regardless of true feelings) in order to increase the likelihood of thenew shift pattern being continued. This suggests that the above results should betreated with caution, but also indicates that the Ottawa system was viewed verypositively by staff.

It was also noted that, although numerous officers left and joined the sub-divisionsunder consideration during the course of the study, only two individuals wereidentified as transferring because they were dissatisfied with the change in shiftsystem. This result is hardly surprising given that the majority of forces undertakingtrials had implemented the Ottawa system in direct response to requests from officers.

A small number of older officers did, however, express some doubts about the Ottawashift system during discussions. In many cases,these reservations appeared to stemfrom the fact that the officers resented either the change away from a familiar systemor being moved from area duties to form part of a fifth shift block. (The latter wasparticularly unpopular because it involved recommencing night duties.) There weresome complaints emanating from the fact that established teams had been broken upto create the fifth shift block for the Ottawa system. Some officers also expressedconcern that the Ottawa system might be part of a move by management towardstotally unconstrained rostering and called for adequate safeguards against this. (Otherofficers, however, regarded the Ottawa system as providing such safeguards.) Therewas considerable concern amongst all groups of officers about short-noticedisruptions to shift patterns, which were seen as adding unnecessarily to existingpressures and frustrations. Some officers suggested that these short-notice changeswere simply a result of inadequate management planning.

FINDINGS: EFFECTS UPON OFFICERS

4. Findings: Effects upon Officers

20

Overall, officers were full of praise for the Ottawa shift pattern and many pointed toan increased feeling of well-being. Several managers also commented that moraleamong Ottawa officers had improved and that there appeared to be a better sense ofteam working and cooperation. Ottawa shifts were also considered to be moreflexible in their attitude and approach to work. This contrasted with the lowermorale and increased pressures and frustrations apparently experienced by Regulationsub-divisions.

Physical well-beingIt had been anticipated that the introduction of the Ottawa system (and theprovision of additional rest periods and time to recover between shifts) might lead toa reduction in the level of self-certificated sickness. The OPI questionnairesubsequently indicated that the level of sickness experienced by Ottawa officers haddeclined, whereas those experienced by Regulation officers had barely changed.Extreme caution must be exercised in interpreting the study data as detailedexamination reveals that increases in self-certificated and certificated absence rateshad been slightly lower in Ottawa sub-divisions than in the Regulation sub-divisionswithin Ottawa forces. However, regulation sub-divisions of Regulation forcesexperienced the lowest increases of all for both categories of absence. This seeminglycontradictory finding mitigates against any real conclusion being drawn about theimpact of this shift system upon absence rates.

The OPI questionnaire also showed that, whilst Regulation officers had hardlychanged their levels of smoking and drinking between the two periods, Ottawaofficers had reduced both. Regulation officers suggested that they were taking lessexercise than before, whereas Ottawa officers appeared to be taking slightly more.There was an apparently marked change in the sleeping patterns of both groups:Ottawa officers revealed a very great improvement in their sleeping patterns (with adramatic decline in the number reporting frequent problems), while Regulationofficers reported a noticeable deterioration.

Police vehicle accidents rates were examined for all groups of officers involved in thestudy, but no particular differences were noted. (The possibility existed that theserates might reflect changes in the level of concentration achieved by officers.)

Social well-beingMarked differences between the Ottawa officers and the Regulation officers emergedfrom the OPI questionnaire in the area of personal lifestyle. Ottawa officers recordedsome improvements for travel time and financial well-being and suggested thatsubstantial improvements had occurred for overall well-being, social and family life,leisure and study time. This contrasted strongly with findings for Regulation officerswho suggested that satisfaction with the vast majority of factors pertaining to


21

personal lifestyle had deteriorated or remained unchanged. Interviews also indicatedthat the majority of Ottawa officers had welcomed the opportunities provided by therevised shift system to recover between shift blocks and spend more time with theirfamilies.

SummaryThe OPI questionnaire indicates that, in almost all areas, Ottawa officers perceivedimprovements in both their working lives and lifestyle associated with the change inshift pattern. For officers working Regulation shift patterns, there was acorresponding perception of decline. This finding is broadly in line with the researchcarried out by individual forces.


22

Ottawa sub-divisions Regulation sub-divisions

Before Now Before Now

Working practicesManning levels 2.65 2.97 2.58 2.26Time pressures 2.63 3.39 2.86 2.52

Workload 2.93 3.41 3.01 2.79Rostering 2.74 3.87 3.11 2.79

Variety of duties 2.99 3.72 3.18 3.23Overtime 3.08 2.79 2.69 2.57

Police cars 3.20 3.03 2.97 2.82Radios 3.66 3.14 3.51 3.21

Lockers 3.90 3.90 3.55 3.48Canteen 2.82 2.84 2.34 2.47

Car parking 2.63 2.35 2.26 2.02Team 3.97 4.22 4.11 4.05

Supervisor(s) 3.75 3.93 3.71 3.77Sub-div. cmdr 3.23 3.39 3.16 3.16Civilian staff 3.52 3.53 3.74 3.72

Special constabulary 2.99 3.11 3.12 3.26

Service to the publicOverall service level 3.05 3.40 3.27 3.01

Response times 3.08 3.26 3.24 2.98Matching resources/need 2.72 3.19 2.82 2.55

Complaints 2.49 2.35 2.44 2.59Lifestyle factors

Overall well-being 2.62 4.08 3.35 3.09Sickness 1.87 1.50 1.67 1.68

Social life 2.50 3.35 2.66 2.55Leisure 2.37 4.03 2.93 2.68

Family life 2.42 3.52 2.63 2.47Travel time 4.09 4.40 4.14 4.15Study time 2.48 3.52 2.45 2.26

Financial well-being 3.24 3.45 3.31 3.30

Key: All factors were rated on a scale of one to five. With the exception of sicknessand complaints, the score five is used to indicate maximum satisfaction.


23

Table 3: OPI results – average scores for working practices, service to the public and lifestyle factors

The consultancy study was expected to generate recommendations for considerationby the Home Office. These were concerned primarily with possible amendments topolice regulations and with proposals for undertaking more detailed evaluations ofalternative shift patterns at a national level. Recommendations to chief constableson selecting appropriate shift patterns and best practice guidelines for theintroduction and management of shift patterns were also provided.

A summary of these consultancy recommendations to the Home Office is includedbelow for the sake of completeness and in order to illustrate the conclusions drawnfrom the study findings. These recommendations have been overtaken by theagreement reached in 1992 on the introduction of alternative shift systems. HomeOffice guidance on this issue will follow in due course.

The consultancy study also generated guidelines directed towards the needs of sub-divisional managers. These were concerned with methods of assessing theappropriateness of shift patterns at sub-divisional level and with implementing theseand are reproduced in Appendix C.

Proposed revisions to Police RegulationsRecommendation 1: All shift patterns operated by the police service should fall withinthe scope of national regulations and consideration should be given to revisingPolice Regulations to permit greater flexibility. Precise changes must be a matter fornegotiation among the parties responsible for the Regulations, but specific attentionshould be given to:

Length of Shifts: Police Regulations specify that all shifts should be of eighthours duration. It is recommended that longer shifts of up to ten hours shouldbe permitted and that, in exceptional circumstances, shifts might be extendedbeyond ten hours. Safeguards should be introduced to ensure that officersworking longer shifts are given adequate time off between shift. In addition, alimit should be placed on the total number of hours that can be rostered in anyone consecutive block of shifts, or in any given shift cycle.

Publication of Rosters: Police Regulations currently require that rosters should bepublished annually. It is recommended that “outline” rosters should continue tobe published annually in advance, but that updated “working” rosters should bepublished during the year to accommodate any subsequent changes. Theworking roster would be distributed to all officers one month in advance.

Prior to the publication of this “working” roster, management should be able, asat present, to make reasonable changes to an officer’s shift on a rostered dutyday without the need for consultation, but changes to a rostered rest day should

CONSULTANCY RECOMMENDATIONS

5. Consultancy Recommendations

24

be made only in consultation with the officer concerned. Once the workingroster is published, any subsequent alterations to either duty or rest days shouldbe made in consultation with the officer, except where management are obligedto impose changes due to the exigencies of duty.

National guidelines on shift patternsRecommendation 2: A national working party should be established to identify andevaluate alternative shift patterns for use within the police service.

Recommendation 3: The working party should include representatives from forceswhich have undertaken trials of alternative shift patterns within existing PoliceRegulations, as well as from Ottawa forces. Up to ten forces should be representedand individual members should be nominated by their Chief Constables. Allmembers should be fully familiar with both Police Regulations and with practicalday-to-day rostering at command unit level.

Recommendation 4: The output from this working party should be ratified by ACPOand published as a set of guidelines on the various options which are available forshift working. These guidelines might cover impacts and resource implications for allshift patterns which the Working Party considered to be broadly appropriate.

Recommendation 5: The ratified guidelines could be used by forces as a referencepoint when exploring options and should be made available to all Chief Constables.

Selecting appropriate shift patterns – force levelRecommendation 6: Chief Constables should have full authority for determining theshift patterns worked within their respective forces. The Home Office should onlybecome involved at this level in order to fulfil its responsibilities for establishingPolice Regulations and advising on best practice.

Recommendation 7: Each Chief Constable should publish details of all shift patternsconsidered suitable for use by sub-divisions within the force. National working partyguidelines might be used to support this selection exercise, but Chief Constableswould be in no sense obliged to make available the entire set of options proposed.

Recommendation 8: In determining the choice of shift patterns, Chief Constablesshould give consideration to whether:

✷ The shift system will support existing force policy on the appropriate balancebetween proactive and reactive policing;

✷ The shift system will allow adequate regard to be given to both the operational


25

requirements of the area and the welfare needs of officers;

✷ The number and size of shift blocks will be in line with operational needs andallow team spirit to be maintained. (Local monitoring might be required toestablish optimum numbers and sizes for shift blocks);

✷ The shift patterns of patrol groups and specialist units can be sufficientlycoordinated;

✷ Any overlap periods will be directed with clear objectives and additionalresources (such as cars and radios) required to achieve these can be madeavailable. (Local and central budgets may need to be reviewed);

✷ The shift pattern will allow known peaks in demand to be addressedappropriately without undue resort to overtime working.

Chief officers will also wish to take into account the following before authorising theuse of particular shift patterns:

Recommendation 9: Shift patterns should not include quick changeovers, 0600 startson early shifts or more than seven consecutive duties, except where a majority ofofficers elect otherwise.

Recommendation 10: The relative costs associated with different shift systems(emanating primarily from variations in manpower and equipment requirements)must be taken into account, but operational needs and officer welfare must always begiven primary consideration.

General guidance on managing shift SystemsEven if no change has been made to existing shift patterns, management should, inthe interests of best practice, act in line with the following recommendations:

Recommendation 11: Management should endeavour to anticipate changes to officers’rostered duties in advance, and cover alterations by means of voluntary shift changesor voluntary overtime. All enforced changes should be formally recorded for periodicreview by sub-divisional commanders.

Recommendation 12: Where enforced changes to rostered duties appear to beexcessive, or the reason for their occurrence cannot be supported by exceptionaloperational requirements, sub-divisional commanders should provide rosteringofficers with further training and/or guidance in planning.


26

Recommendation 13: Shifts should not be regularly extended beyond the maximum often hours and then only on an ad hoc (rather than planned) basis. The occasionalworking of longer periods on an overtime basis would not be affected by thisprinciple.

Recommendation 14: Where individual forces wish to introduce rostered shifts ofmore than ten hours without the payment of overtime, this should only be permittedsubject to the express consent of the officer(s) concerned. Care should also be takento ensure that adequate rest between shifts is provided and that the total permissiblerostered hours within a single shift block (or cycle) is not exceeded. Again, suchshifts should only be rostered on an ad hoc basis.

Recommendation 15: Evaluation reviews should be undertaken annually in order toensure that shift patterns continue to support management objectives fully.

CONSULTANCY RECOMMENDSATIONS

27

The following reports were made available to Touche Ross during the course of thestudy.

Calgary Police Service. (1990) Hours of Work Committee: Final Report.

Canadian Association of Chiefs of Police Research Foundation Inc. (1992)Shiftwork: An International Survey of Problems and Solutions.

Hampshire Constabulary (Undated) Ottawa: The First Twelve Months of anExperimental Shift System at Portsmouth Central Sub-Division.

Hertfordshire Constabulary (1992) Ottawa – The Shift Workers Shift?

Merseyside Police (Undated) Ottawa Shift System – Force Evaluation

Merseyside Police (1991) Ottawa Shift System Seminar

Northamptonshire Police (1990) Ottawa Evaluation

Ottawa Police (1991) Phase 2 Report on the Allocation of Patrol Personnel in the OttawaPolice

Sussex Police (1991) An Evaluation of Ottawa Shift Patterns

West Midlands Police (1991) TASC Evaluation

Additional force reviews were provided by:

Avon and Somerset ConstabularyGreater Manchester Police

BIBLIOGRAPHY

Bibliography

28

APPENDIX A

CONTINENTAL SHIFT SYSTEM (ESSEX POLICE)

FIVE BLOCK SHIFT PATTERN (WEST YORKSHIRE POLICE)

29


- E E N N L 1

L - - E E N N 2

N L - - E E 3

E N N L - - 4

Key: E 0600 - 1400 L 1400 - 2200 Denotes quickN 2200 - 0600 - Rest Day changeover

APPENDIX A

30

Continental Shift System (Essex Police)

L

L

L


M M E E - - - 1

L L L M E E - 2

- N N N N N N 3

N - - L M M E 4

E - - - V V L 5

M M E E - - - 6

L L L M E - - 7

- N N N N N N 8

N - - L M M E 9

E E - - L L L 10

Key: E 0600 - 1400 M 1000 - 1800 L 1400 - 2200V 1800 - 0200 N 2200 - 0600 - Rest Day

APPENDIX A

31

Five – Block Shift Pattern (West Yorkshire Police)

APPENDIX B

STUDY TERMS OF REFERENCE SET BY

THE ACPO WORKING GROUP ON ORGANISATIONAL HEALTH & WELFARE

33

Study terms of reference

This study was commissioned with the following formal terms of reference:(i) To evaluate and report on shift systems in operation in a sample of forces

operating the Compressed Work Week (Ottawa) shift system against thefollowing criteria:

a) the capacity to meet the operational demands on forces in normalcircumstances;

b) the capacity to cater for differing policing needs and priorities (within andbetween forces) taking in operational, geographical, manpower and resourcesconsiderations;

c) value for money;

d) the capacity as a minimum to maintain or preferably to improve the qualityof service provided;

e) the capacity to take account of personnel as well as organisationalmanagement considerations including, for example, officers’ own opinions onjob satisfaction; patterns of sick absence; level of impact on accidents onduty; public opinion of the level of service; changes in the pattern ofresponse times; impact which the revised system may have on officers notworking shifts.

(ii) Taking account of the findings at (i) and taking account of but not limited toproposals under negotiation in the Police Negotiating Board, to produce a seriesof pointers to best practice in shift system development and management.

APPENDIX B

34

APPENDIX C

GUIDANCE AND RECOMMENDATIONS ON ASSESSMENT ANDIMPLEMENTATION OF FLEXIBLE SHIFT SYSTEMS

35

Guidance on assessment of sub-divisional requirementsSub-divisional commanders should undertake a detailed evaluation of their keyobjectives in order to identify which of the approved shift patterns are most suited tolocal use. This evaluation should involve the whole management team (in order toensure ownership of the resulting plan) and officers should be involved whereverappropriate. The evaluation should take into account a range of elements including:

✷ local geography and demography;✷ anticipated public order requirements;✷ forecasts of local demand patterns and seasonal variations;✷ minimum cover requirements;✷ availability of resources (staff and equipment);✷ key crime priorities;✷ staff morale;✷ public opinion regarding quality of service;✷ interests of local authority and other key community groups.

Key elements for consideration within evaluation reviewsIn order to identify and maintain the optimum shift pattern for their area, sub-divisional commanders should carry out a detailed evaluation of their key objectives.This review should be based on an appraisal of the areas listed below and shouldform a regular part of the manager’s planning responsibilities. All reviews should becarried out with the assistance of the entire management team, so as to ensureownership of the resulting plan at all levels. It is recommended at such a review isundertaken on an annual basis.

The elements which should be considered as part of a review will include:

a) Local geography:– area size–inner city/urban/rural composition–special features – airports, ports etc

Different areas within the sub-division may require the deployment of varying levelsof cover and resources.

b) Composition of neighbourhoods:– population groupings/demographics

Certain areas may require more intensive allocation of resources, depending on, forexample, reported crime levels in different categories.

APPENDIX C

36

c) Volatility:Reference to historical data and current community intelligence should helpmanagement anticipate the lIkelihood of major public order incidents arising withinthe sub-division.

d) Local demand patterns:Historical data on calls for service will enable management to more accurately tailorthe resources deployed throughout the twenty-four hour period and predict thevarying levels of demand that may be expected.

e) Public order requirements:– football matches– night clubs and pubs– regular major events

Pre-planning of resources to cover these regular activities will help avoid unnecessarychanges to rosters at short notice.

f) Seasonal variations:Variations in population within the sub-division (e.g. the influx of tourists in holidayperiods) will require additional manpower and levels of cover. The level of coverrequired may also vary with differing hours of daylight in summer and winter.

g) Section strengths:Management must ensure that individual shift blocks contain sufficient numbers toprovide operational cover and to engender team spirit and camaraderie.

h) Minimum cover requirements:Shift blocks should be large enough to ensure that minimum cover is providedthroughout the twenty-four hour period; the level of cover is likely to vary atdifferent periods throughout the day and will also be influenced by the profile of theindividual sub-division.

i) Composition of existing staffing resources:– patrol– community– traffic– specialist units

The objectives of the sub-division, and in particular the balance that is soughtbetween pro-active and reactive policing requirements, will have a direct influenceon the numbers of officers allocated to each area and the allocation of responsibilitiesand duties between them.

APPENDIX C

37

j) Equipment:– cars– radios

Where shift patterns are introduced which provide an operational overlap, extraequipment will be required if the additional staffing is to be used effectively; this mayin turn require a review of sub-divisional budgets.

k) Communications:Geographical features of the sub-division may influence the quality ofcommunications. This will need to be taken into consideration in planning forresponse to major public order requirements, as well as for on-going support betweenpatrol blocks.

l) Key crime categories:Sub-divisions may need to give different priorities to particular types of crime,depending on the population and profile of the area; in some cases, areas within asingle sub-division may have differing priorities.

m) Force policy: – policing priorities – budgets – central servicesThe published objectives of each force will help to determine the priorities of eachsub-division and centrally determined budgets will define the levels of expenditure.These will need to be taken into consideration both in establishing local objectivesand in determining the required level of resource.

n) Management audit:– chief inspector– inspectors– sergeants

Sub-divisional commanders must identify the strengths and weaknesses of theirmanagers and ensure that the objectives set can be achieved by their team; theyshould also assess the effects on management of the introduction of greater flexibility.

o) Staff morale:Strong team morale and camaraderie are essential to effective policing, and managersneed to be aware of any problems which might impair the overall performance oftheir officers.

p) Public opinion regarding quality of service:The expectations of local communities must be recognised and reflected in theoverall plans for the sub-division if an adequate level of public support is to beachieved.

APPENDIX C

38

q) Local pressure groups/media:An awareness of the interests of local groups is important in identifying theexpectations of the community and may determine certain priorities in policing thesub-division. Equally, media coverage of specific issues may influence both the levelof priority given, as well as the allocation of resources.

r) Local authority:Both short-term and longer-term plans and objectives of local bodies must bereviewed to assess the impact they may have on the allocation of resources withinspecific areas.

This review should form the basis of an annual plan for sub-divisional policingobjectives and priorities. This plan, once agreed by force headquarters, should beformally presented to the officers within the sub-division.

Recommendations for implementation of alternative shift systemsRecommendation 1: If the evaluation exercise suggests that some change should bemade in relation to the existing shift pattern, careful consideration should first begiven to all implications identified for the change. The impact upon operationaleffectiveness, officer welfare and cost factors must all be considered carefully.

Recommendation 2: Proposals for revised shift systems should be submitted to forceheadquarters for consideration.

Recommendation 3: Chief Constables should assess the compatibility of the proposalsof different sub-divisions and consider their effect on the overall policing objectivesof the force. In areas of conflict, (e.g. where a shift pattern might require anunrealistic level of support from a neighbouring sub-division), Chief Constables mayrequire sub-divisional commanders to select alternative shift patterns.

Recommendation 4: Each force should establish local working agreements on shiftpatterns in consultation with staff representatives. Changes to existing patternsshould only be made after consultation with those officers who will be working theshift pattern in question.

Recommendation 5: Sub-divisional commanders must be clearly briefed on the criteriaagainst which their performance will be judged under different shift systems. Suchcriteria might include a specified degree of improvement in the match betweenresource availability and demand, or a specified reduction in the number of ordinaryovertime hours required.

APPENDIX C

39

Recommendation 6: Consideration should be given to the possibility of staggering theimplementation of new shift patterns within a force. This will allow new patterns tobecome established locally with support from neighbouring sub-divisions. Ideally,only one sub- division should be implementing change at any given time.

Sub-divisional commanders will be responsible for implementing approved shiftpatterns within their own areas and, in so doing, should give regard to the followingrecommendations:

Recommendation 7: Any shift system is likely to require some adjustment during itslifetime in order to ensure that the objectives set for it are met fully. Agreement thatnecessary adjustments can be made should be negotiated with staff before any newshift system is implemented. (For example, some adjustments might be necessary if ashift system fails to match local demand peaks adequately.) Experience suggests thatagreement is more readily reached before a system is implemented than after.

Recommendation 8: Officers should be fully briefed on developments pertaining to theintroduction of a new shift pattern in order to ensure maximum commitment andsubsequent cooperation.

APPENDIX C

40

Documents

Effective Shift Systems For The Police Servicelibrary.college.police.uk/docs/hopolicersold/fprs2.pdf · Effective Shift Systems For The Police Service ... Selection of sub-divisions