Level 3, South Tower, 459 Collins Street, Melbourne VIC 3000 GPO Box 4676, Melbourne VIC 3001 T (03) 8635 6188, 1800 818 387 F (03) 8635 6185 DX 210004 TTY (03) 8624 6311 W www.opi.vic.gov.au

April 2010

Flexible work practices for policing

Issues paper no. 1

Since its establishment in 2004, OPI has embarked on a program of police reform to improve the integrity and professional standards of Victoria Police. Through our research and reviews, our work has sought to initiate and support necessary cultural and systemic change in key reform areas such as the police discipline system, complaints handling, police training and accreditation, and information security. This review of flexible work practices continues our major police reform work.

April 2010

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Contents

Introduction 4

Whatareflexibleworkpractices? 5

Structureofreport 6

Emergingworkforcetrends 7

Workforceparticipation 7

Characteristicsofwork 8

Scienceandtechnology 9

Globalisation 10

EconomyandEnvironment 10

OverviewofVictoriaPolice 11

Organisationalstructure 12

Figure1:VictoriaPolice–OperationalCapability 12

Rankstructure 13

Figure2:Swornpoliceranks 13

Regionalstructure 14

Figure3:Regionalboundaries,February2010 14

Figure4:NewVictoriaPoliceregionalboundaries,July2010 15

Figure5:RegionalstructureofVictoriaPolice 16

Strategicdirection 16

Flexibleworkpractices 18

OPIReview 18

Recruitmentandtraining 19

Policestrength 19

Table1:Policestaffper100,000population,2007-2008 20

Figure6:Operationalpolicestaffbyjurisdiction,2008-2009 20

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Skillsandexperience 21

Education and training 22

Researchfocus 23

Transferandpromotion 24

Expressionofinteresttransfers 25

Regulation21 25

In-situpromotions 27

Appeals 28

Interstatemobility 30

Researchfocus 30

Movementofstaff 30

Tenure 30

InspectorandSuperintendentrotations 31

Relocationandredeployment 32

Researchfocus 32

Returntowork 33

Operationalreadiness 34

Researchfocus 34

Exit 34

Ageretirement 35

Table2:Preservationageforsuperannuation 35

Dismissal 36

Researchfocus 38

Nextsteps 39

References 40

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Introduction

ThisissuespaperisthefirststageofamajorprojectbeingundertakenbytheOfficeofPoliceIntegrity(OPI) toexamineflexibleworkpracticesforpolice. It identifiesthekeyareasforexaminationandprovidesanoverviewoftheworktobeundertakenbyOPIinthecomingmonths.

The nature of policing and the way policing services are provided to the Victoriancommunityhavechangedsignificantlyoverrecentdecades.Inhisreport,Planning for a Capable Victoria Police Workforce, theAuditor-General (2006)mappedtheprogressionofVictoriaPoliceapproachestocrime:

Since the 1970s policing in Victoria has reflected both reactive and proactive approaches to crime. Taskforces were established to deal with major criminal activity after it had occurred and to develop strategies for preventing such crime. In the 1980s, the emphasis was on working with the community to prevent and deal with crime. In the mid-1990s, local priority policing became the vehicle for working with the community to prevent and react to crime more effectively.

The development of Victoria Police’s strategic plan, The Way Ahead 2008-2013,emphasises proactive and intelligence-basedpolicing, a responsive and client-focusedpolicing service, and working partnerships with the community, government and supportagencies.

A flexible and responsiveworkforce is essential to the future delivery of ethical andprofessionalpolicingservices inVictoria.Overtheyears,OPIhas identifiedthatsomework practices within Victoria Police appear to act as constraints in achieving thisgoal. In some cases,Victoria Policeworkplace practices are based on historical ratherthan operational considerations or are restricted by legislative provisions inconsistentwithcontemporarypolicing(suchas thePolice Regulation Act1958orPoliceEnterpriseBargainingAgreement).

OneoftheobjectsofOPIistoensurethatthehighestethicalandprofessionalstandardsaremaintainedwithinVictoriaPolice.Inkeepingwiththis,thepurposeofOPI’sflexiblework practices project is to ensure that Victoria Police has a framework to deliver acontemporary andprofessional policing service able tomeet the changing needs andexpectations of Victorian communities. While the project recognises the increasingproportionof civilian employeeswithinVictoriaPolice, it isprimarily focusedon theworkplacepoliciesandpracticesofswornpoliceinprovidingpolicingservicesinVictoria.

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Whatareflexibleworkpractices?Flexibleworkpracticesrefertoworkplacepoliciesandprocessesthatenableaworkforcetorespondtochangingcircumstances.ForVictoriaPolicethismeansbeingabletorespondto changes in crimeandcriminal activity, tomeet changing communityexpectations,andtoadapttochangesinlawandorderpolicyandpeace-keepingpriorities.

Flexibleworkpracticesoperateintwoways.Manyareassociatedwithmorefavourableworking conditions for staff, for example conditions that facilitate a greaterwork/lifebalance,enhancepersonalandcareerdevelopment,orenablestafftohavemorecontrolover how andwhen theyundertake their duties. Just as important are the flexible or‘mobile’workpracticesthatstrengthenorganisations,thatis,thosethatprovideagreatercapacitytomeetcurrentandfutureserviceneeds.Examplesareorganisationalpracticesthat allow for the recruitmentand retentionof the right staff, that enable resources tobe readilydeployed tomeetunexpectedor short-termdemands, and thatprovide foradequateandeffectivesuccessionplanning.

Thisreviewconsidersflexibleworkpracticesinbothcontexts–theneedsofindividualsand the needs of Victoria Police as an organisation. It recognises that the primaryresponsibilityofapoliceserviceistoservethecommunity,andthatdecisionsmustbemadeinthepublicinterest.Italsorecognisesthemutualresponsibilitythatcomeswithstrengtheningtheprofessionalismandflexibilityofpoliceorganisations,enablingthemtofulfiltheirfunctions.Apoliceserviceneedstoremainattractiveasanemployer,andemployeesneedtosupporttheorganisationbycarryingouttheirdutiesinaccordancewiththeorganisation’svaluesandexpectations.

StrengtheningtheprofessionalpracticeofVictoriaPoliceinvolvesmorethanchangingpolicyandpractice. It involves instigatingchange in thewaypeople thinkabout theirrole,abouttheorganisationandabouthowitconductsbusiness.Withoutchangeatthislevel,theintentionandeffectivenessofanyproposedpolicyandpracticechangeswillbeminimisedandpotentiallylost.

Theimportanceofproactiveleadershipandanethicalandprofessionalculturecannotbeoverestimatedwhenconsideringflexibleworkpracticeswithinanorganisation.ForrealchangetobeeffectivewithinVictoriaPolice,anychangestoorganisationalpoliciesandprocessesmustbeaccompaniedbyeffectiveleadership.Thisleadershipmuststartwith theVictoriaPoliceexecutive takingresponsibility for thedevelopmentofflexibleand professional practice. Real change must also be supported by cultural changein which staff accept and demonstrate their commitment to the values and goals of theorganisation.

ThisreviewdoesnotaddressspecificleadershiporculturalissueswithinVictoriaPolice.Itdoeshoweverrecognisethedependenceofeffectiveworkpracticeonstrongleadershipandprofessionalculture.

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StructureofreportThisissuespaperisdividedintofoursections:

• Thefirstsectiondiscussesemergingworkforcetrends.Inparticular,itidentifiestherangeofsocialandeconomictrendsthatmayimpactonpolicingandwhatthiswillmeanformaintainingaflexibleandprofessionalpoliceservice.

• The second section provides an overview of Victoria Police, including its currentmanagementstructure,andhowpoliceservicesaredeliveredacrossthestate.

• Thethirdsectionidentifieskeyworkplaceissuestobeexaminedaspartofthisreviewincludingthoserelatingtorecruitment,transferandpromotion,tenureandrotations,returntoworkandexitstrategies.

• ThefourthsectiondetailsthenextstepsforOPI,includingthestakeholderswhowillbeconsultedaspartofthisreview.

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Emergingworkforcetrends

Policing has seen significant change in the last 20 years. Population growth, theemergence of new technologies such asmobile telecommunications and the internet,and the proliferation of synthetic drugs have all required police services to rethinkthe way they do things. Similarly, changes to the entry requirements for police, theincreasing civilianisation of police organisations, and a stronger emphasis on ethicalandprofessionalstandardshaveallchangedthewaypoliceorganisationscarryouttheirbusiness.Inevitably,thenexttwodecadeswillalsobecharacterisedbymarkedchange–withinlocalcommunitiesandwithinpolicingorganisations.ThechallengeforVictoriaPolicewillbetoensureitisadequatelyequippedtorespondtothesechanges.

In2005,theAustralasianCentreforPolicingResearchidentifiedanumberoffactorslikelytoaffectdomesticpolicing in the future.Someof these includedanageingworkforce,moremobileemployees,andthetrendtoward‘information-based’work(Lynch,2005).The Australian Federal Police (AFP) hosted a major conference, International Policing Toward 2020,which focused on long-term, emerging global issues likely to impact onthe international policing community (Australian Federal Police, 2007).1Globalisation,thedigitalage,forensicscienceandclimatechangeweresomeoftheissuesidentifiedat thisforum.

Domestic and international trends will continue to shape our communities and thedemands on policing services. This section briefly describes some of the key factorsidentifiedintheresearchliteratureandOPI’sconsultationsthatarelikelytoimpactonpolicinginVictoria.

WorkforceparticipationVictoria will continue to see significant changes in its workforce. In 2005, Victoria’sWorkforceParticipationTaskforcereleaseditsreportVictoria: Working Futures.Itidentifiedthat the ‘combination of low fertility rates and increasing life expectancy means that Victoria, like the rest of the nation, will experience major demographic change over the next 35 years’.

Inthelastfewdecadesfemaleparticipationinpaidworkhasincreasedsignificantly.InDecember2009, itwas estimated thatwomencomprised46%ofpeople employed fulltimeinVictoriacomparedto34%in1999.2

Twoothertrendsforecasttoaffectworkforceparticipationinthefutureincludetheageingofthepopulationandareducedgrowthoftheworkingpopulation.BothwillresultinareductioninVictoria’slaboursupply.Inotherwords,therewillbefewerpeopleavailable

1 InJune2009,anauditofAFPcapabilitiestomeetcurrentandfuturepolicingdemandswascompleted.SeeTheAllenConsultingGroup(2009),New Realities: National Policing in the 21st Century: Federal Audit of Police Capabilities.ReporttotheMinisterforHomeAffairs,theHonBrendanO’ConnorMP

2 AustralianBureauofStatistics,Labour Force, December 1999(6203.0)andLabour Force, December 2009 (6202.0)

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toparticipateintheworkforce.HigherratesofworkplaceparticipationwillthereforebeneededtoensurethesupplyoflabourissufficienttomeettheneedsofVictorianbusinessandindustry(WorkforceVictoria,2008).

Withanageingpopulation,VictoriaPolicewillneedtoconsiderwaysofretainingtheparticipationofolderemployeesandmaximisingtheuseoftheirskillsandexperience.This will include ensuring older workers remain enthusiastic and motivated in thelater stages of their career and have access to continued learning and developmentopportunities. In addition,VictoriaPolicewillneed to ensure that there are sufficientnumbersofstaffbeingtrainedanddevelopedtotakeupvacanciescreatedbyretiringolderworkers and that there is adequate successionplanning inplace,particularly intermsofimpartingandsecuringcorporateknowledge.

AsthemeanageoftheVictorianworkforcecontinuestorise,VictoriaPolicewillconsistofolderworkerssomeofwhommaynotbeabletomeetthephysicaldemandsrequiredofpolice.Atthesametime,asthebaby-boomersretire,anewgenerationofemployees– Generation Y – is entering themarket. There will be greater competition for theseemployeesasthenumbersofpeopleenteringtheworkforcedecline.VictoriaPolicewillneed tobemindful ofways to attract and retain these employeeswhohavedifferentexpectationsandattitudestoworkfrompreviousgenerations.

CharacteristicsofworkThe contemporary workplace is now characterised by information- and knowledge-basedworkwhichemphasisesknowledge,skillsandefficiency(Lynch,2005).Thishasinfluencedhowservicesareprovidedbyorganisationsandhasshapedtheirdemandforemployeeswithparticularskillsandexperience.Twokeytrendsmostlikelytoimpactonpoliceorganisationsinaknowledge-basedeconomyincludethemorefluidmovementofemployeesbetweenjobs,andthemoreflexibleworkingarrangementsexpectedbystaff.

Inter-organisationalmobilityisbecomingthenorminthebroaderworkforce(Lynch2005).Therehasbeenatrendawayfrompeoplewanting‘jobsforlife’insteadchoosingtomovebetweendifferentrolesandpositionstobuildtheirprofessionalskillsandexpertise.Thishas resulted in greatermovement between organisations and jurisdictions, nationallyandoverseas.

Themobilityof contemporaryemployees isperhapsmostatoddswith theprofessionof policing, which has traditionally been viewed as an occupation in which recruitsremaintheirentireworkinglives.However,ithasbeenarguedthatpolicingmeetsthemobilitychallengegiventhediversityofrolesandpositions–bothprofessionallyandgeographically.Policeserviceswillneed toconsider theirstrengthsandhowtheycanremainanattractiveemployer,especiallyinprovidingthetypeofcareerandpersonaldevelopmentopportunitiesthatpeopleseekfromthecontemporaryworkforce.

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Flexible working arrangements are increasingly a feature of modern workplaces. Inparticular,thenumberofpeopleengaginginpart-timeworkarrangementshasincreasedsignificantly across the country. Between 1979 and 2009, the proportion of employedpeopleworkingparttimealmostdoubledfrom16%to30%.Inaddition,20%ofpeopleareemployedonacasualbasis,atrendthathasremainedsteadysince1996.3

Peopleexpectorganisations toprovide themwithgreaterwork/lifebalance, and theyexpecttohavemorecontroloverhowtheymanagetheirtimeandundertaketheirduties.Organisationswhichoffermorediverseandflexibleworkingarrangementswillbemoreattractivetopotentialemployees,andwillalsoenableworkerstooptimisethebalancebetweenpaidworkandotheraspectsoftheirlives.4Thechallengeforpolicingwillbetobalancetheflexibilityandattractivenessofworkoptionsforstaffwhilemaintainingorganisationalandoperationaleffectiveness.

ScienceandtechnologyArguably, developments in the field of science and technology have had the greatestimpactonhowpeoplecommunicatewitheachotherandaccessinformation.Theeffectofscientificand technologicalchange for lawenforcementwasdiscussedat theAFP’sToward 2020conference:

The implications of these developments will have a significant impact on policing in terms of who commits a crime (person or technology or combination of both), change in crime types, investigation techniques, and subsequent legislative and administrative reform (AFP, 2007).

State and territory police services are embracing the advantages of scientific andtechnological changewithinworkplaces, andare continuing to respond to the impactof its uptake within communities. In particular, police services are dealing with theonsetofmoresophisticatedandorganisedcrimesuchas illicitdrugmanufactureanddistribution, identity theft, and internet-based crimes including fraud, theft and childsex offences. Advances in science, in particular forensic capabilities, have improvedthemeansbywhichpolicecanidentifyandinvestigate individualsandtheircriminalactivities.Andtheavailabilityofinformationtechnologysolutionshaschangedthewaypolicestore,accessandexchangeinformation.

Keepingpacewith scientific and technological changewill be themain challenge forpolicing organisations.Aspects of the task involve responding to safety and securityissueswithincommunities,foreshadowinghowtechnologicaldevelopmentsmaybeusedforcriminalgain,andensuringthesecurityofinformationwithinorganisations.Tothisend,understandingthecapabilitiesandapplicationoftechnologyandhowtechnologymightbeusedtothreatensafetyandsecurityinthefutureisofsignificantconsequence.

3 AustralianBureauofStatistics,Australian Social Trends: Patterns in Work, December 2009 (4102.0)4 AustralianBureauofStatistics,Australian Social Trends: Patterns in Work, December 2009 (4102.0)

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GlobalisationSimilar to the developments in science and technology, globalisation has markedlychangedthewayindividualsandcommunitiesoperate.Theworldismoreinterconnectedand interdependent than ever before. Social and professional lives are characterisedby increasingtrade, travelandcommunicationbetweencountries,andamuchgreaterexchangeof information.Forpolicing,globalisationhasplacedadditionalpressureonpolicingservicestorespondtoawiderrangeofcriminalthreats.

While acknowledging positive changes that have followed globalisation, Naim (2003)arguesthatglobalisationhasalsocreatedanumberofadditionalstrugglesand‘wars’,particularly for law enforcement. These ‘wars of globalisation’ have boosted the sizeand resourcing of criminal networks, include illicit drug markets, arms trafficking,intellectualpropertyandpiracy,peoplesmugglingandmoneylaundering.

Itissometimesdifficulttograspthelocalresponsibilitiesofdomesticpoliceservicesinrespondingtoglobalornationalissues.Moreoftenthannot,theseissuesareconsideredthe realm of national and international law enforcement agencies. However, in aninterconnectedcommunity,globalcrimesarelocalcrimessomewhere,andthatincludesAustralianstatesandterritories.Fornationalanddomesticagencies,thecomplexitiesofthesecrimeswillrequireaninvestmentinspecialisteducationandtrainingofofficersinsomefields.

EconomyandenvironmentTwoother factors likely to impact onpolice in the future include economicpressuresand environmental change. In early 2009, the Chief Commissioner of Victoria Policeobserved that the ‘economicdownturnhas already started to create significant issuesfrom a policing perspective’with increases in shop stealing and burglary crimes.5 In toughereconomictimes,itislikelythatincreasesinparticularoffencesoractivitieswillbeseen.Peoplemaylooktoothermeanstosupportthemselvesthroughcriminalactivity,toescapepressuresandrelievestressthroughdrugandalcoholuse,andtorespondtoproblemsandconflictwithphysicalviolenceandweapons.Whileitisdebatablewhethereconomicpressureswillresultinoverallincreasesincrime,itisclear‘breadandbutter’policing–ofinterpersonal,propertyandsubstance-relatedcrime–willcontinuetoaffectVictoria.

Finally,itisexpectedchangestotheenvironmentwillalsocreatedemandsonpolicingresources. This demand is expected to be heightened when changes to the naturalenvironment,suchasextremeordevastatingweather,resultindisplacementofpeople,scarcityofresourcesandlossofinfrastructure(Abbott,2008).Areasofpotentialstrainfor law enforcement in thewake of environmental changemay include demands forgreaterbordersecurity,changesinratesandtypesofcrime,policingnewlegislation,and

5 PressClubLunchSpeech,ChiefCommissionerSimonOverland,20April2009,http://www.pressclubonline.com/Assets/720/1/Overlandspeech.pdf(accessed 7 January 2010)

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responding tonaturaldisasters (Abbott,2008).Forexample, thepotential introductionof emissions trading or carbon reductionmeasuresmay create opportunities for newcriminal exploitation such as corruption or fraud in these areas. Stricter conditionssurrounding water use may see increased police involvement in regulating andsafeguardingnaturalresources.

Emergencyresponsemanagementwillbeakeyissueforpoliceintermsofenvironmentalchange. Victoria Police has already been challenged by these demands, particularlyin light of the 2009 Black Saturday bushfires. Environmental change will not onlyrequireresponsesmeasuredontheseverityandintensityofevents.Itislikelypolicingorganisations will also have to plan and be prepared for the increased frequency of theseincidents.

Chief Commissioner

Chart 1

Deputy Commissioner (Public Safety)

Region 1 Region 2 Crime

Specialist Support Region 3 Intelligence and Covert Support

Counter Terrorism and Emergency Management

Region 4 Ethical Standards

Operations Coordination

Region 5 Forensic Services

Deputy Commissioner (Road Policing)

Deputy Commissioner (Crime)

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OverviewofVictoriaPolice

VictoriaPoliceprovidesa24-hour,7-days-a-weekservicetotheVictoriancommunity.Itsjurisdictioncoversanareaof227,416squarekilometresacrossthestate6,andapopulationof5.42millionpeople–3.89millionofwhomliveinMelbourne.7

The organisation employs over 14,000 police officers and civilian staff,making it one of the largest public sector organisations in Victoria. As at 28December 2009, 11,326 police officers, and 2,839 public servantswere employed byVictoriaPolice,and373recruitswereintraining.8Theorganisation’sbudgetforthe2008–2009financialyearwas$1.7billion.9

OrganisationalstructureVictoriaPolice is ledbyaChiefCommissionerwhooverseesboththeoperationalandcorporatefunctionsoftheorganisation.Operationally,threeDeputyCommissionersareresponsiblefortherespectiveportfoliosofPublicSafety,RoadPolicingandCrime.

Figure 1: Victoria Police – Operational Capability

6 AustralianBureauofStatistics(2008),National Regional Profile – Victoria7 AustralianBureauofStatistics(2009),Australian Demographic Statistics, 3101.0: June Quarter 2009.Populationof

Victoriaistheestimatedresidentialpopulationasat30June2009,andthepopulationofMelbourneisestimatedresidentialpopulationasat30June2008.

8 UnpublisheddataprovidedbyVictoriaPolice–January20109 VictoriaPoliceAnnualReport2008/2009,p5

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Rank structure

VictoriaPolicehasa12-rankstructurefromConstabletoChiefCommissioner.Likemostpolicing services across Australia, the organisation’s operational capacity is ‘bottomheavy’with over 90% of sworn police being at the rank of Sergeant or below. FewerofficersoccupytheseniorranksofInspectorandabove.

Figure2breaksdownthenumberofswornpoliceateachrankasat28December2009.10 Ofthe11,326swornpoliceemployedbyVictoriaPolice,nearly60%areSeniorConstables,followedbySergeants(17%)andConstables(16%).FourteenofficershavebeenappointedtoAssistantCommissioner,DeputyCommissionerandChiefCommissionerpositions.

Figure 2: Sworn police ranks

Rank Count Percent

Chief Commissioner 1 0.01

DeputyCommissioner 3 0.03

Assistant Commissioner 10 0.09

Commander 7 0.06

ChiefSuperintendent 1 0.01

Superintendent 76 0.67

ChiefInspector 9 0.08

Inspector 269 2.38

Senior Sergeant 576 5.09

Sergeant 1946 17.18

SeniorConstable 6657 58.78

Constable 1771 15.64

Total 11326 100

10UnpublisheddataprovidedbyVictoriaPolice–January2010

Region 1

Region 2

Region 3

Region 4

Region 5

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Regional structure

PolicingservicesinVictoriaareprovidedthroughadecentralisedstructurethatcurrentlycomprisesfivepoliceregionsacrossthestate.

Figure 3: Regional boundaries, February 2010

With the exception of Region 1, each police region covers a diverse geographic areaincludingmetropolitan and regional police service areas. In July 2010, Victoria Policewillredistributeitsboundariestoformfourpoliceregions–western,northern,easternandsouthernVictorian.ThisfollowsawiderVictorianGovernmentinitiativetoimprovethe overall coordination of government services to the community. The new policeboundarieshavebeendesignedto‘morecloselyalignwithothergovernmentboundariesand agencies and in turn aid emergency management’.11 Figure 4 shows the newpoliceboundaries.

11 Police Get New Regions,StarNewsGroup,11June2009,http://www.senews.com.au/story/75704(accessed8January2009)

GREATER BENDIGO

MANSFIELD

CORANGAMITE

GREATER SHEPPARTON

MOUNTALEXANDER

CENTRALGOLDFIELDS

SOUTH GIPPSLAND

SOUTHERN GRAMPIANS

NORTHERNGRAMPIANS

GREATER GEELONG

MORNINGTON PENINSULA

ALPINE

ARARAT BALLARAT

BASS COAST

BAW BAW

BENALLA

BULOKE

CAMPASPE

CARDINIACASEY

COLAC OTWAY

EAST GIPPSLAND

FRANKSTON

GANNAWARRA

GLENELGGOLDEN PLAINS

HEPBURN

HINDMARSH

HORSHAM

HUME

INDIGO

LATROBE

LODDON

MACEDON RANGES

MELTON

MILDURA

MOIRA

MOORABOOL

MOYNE

MURRINDINDI

NILLUMBIK

PYRENEES

QUEENSCLIFFE

STRATHBOGIE

SURF COAST

SWAN HILL

TOWONG

WANGARATTA

WARRNAMBOOL

WELLINGTON

WHITTLESEA

WODONGA

WYNDHAM

YARRA RANGES

YARRIAMBIACK

WEST WIMMERA

MITCHELL

New Police RegionalBoundaries

Local Government Areas

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Figure 4: New Victoria Police regional boundaries, July 2010

Unlike the existing Victoria Police boundaries, the new boundaries will cover eitherregionaloroutersuburbanareasorametropolitanarea.Thisshiftrecognisesthat‘oftentheneedsandissuesexperiencedbycountryandoutersuburbanareasareverydifferenttothosetakingplaceinthecityanditsfringes’.12Theseboundarychangeswillthereforeallow formore region-specific strategies to be implemented to tackle local issues andcrimeproblems.

While the zoning of Victoria Police boundaries is soon to change, the reporting andorganisationalstructureofVictoriaPoliceregionswillremainthesame.

EachpoliceregionofVictoriaPoliceismanagedbyanAssistantCommissioner(AC)whois responsible for theadministration, coordinationandresourcingofpolicingserviceswithintheirjurisdiction.

12 Police Get New Regions,StarNewsGroup,11June2009,http://www.senews.com.au/story/75704(accessed8January2009)

Region

Chart 5

Division

Division

Police Service Area

Police Station/Unit

Police Station/Unit

Police Station/Unit

Police Station/Unit

Police Service Area

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Figure 5: Regional structure of Victoria Police

Within the current five police regions are 22 divisions, divided into 56 Police ServiceAreas(PSA).EachPSAhousesanumberofpolicestationsandunits.Inall,thereare324policestationsandunitsacrossVictoria.

The regional structure of Victoria Police is supported by seven specialist operationaldepartments. Four of these departments – Crime; Counter Terrorism CoordinationandEmergencyManagement; Ethical Standards; and Intelligence andCovert Services–arealsomanagedbyanAC.Theremaining threedepartments–SpecialistSupport;OperationsCoordination;andForensicServices–aremanagedbyeitheraCommander(swornofficer)orDirector(civilianofficer).

Strategic directionShortlyafterhisappointmentasChiefCommissionerofVictoriaPolice,SimonOverlandoutlinedhisvisionfortheorganisation:‘a framework to focus on what [Victoria Police] can achieve over the next five years, and what the organisation might look like in 2014’.13

Thisframework,whichcomplementsVictoriaPolice’sstrategicdirection,The Way Ahead 2008-2013,identifiedfivekeyareasfortheorganisation:

• Asaferandinclusivecommunity

• Effectiveandinnovativemanagementofcrime,publicsafetyandroadsafety

• Aflexible,dynamicandresponsivepoliceorganisation

• Strongleadershipandeffectivemanagement

13SeePressClubLunchSpeech,ChiefCommissionerSimonOverland,20April2009,http://www.pressclubonline.com/Assets/720/1/Overlandspeech.pdf (accessed7January2010)

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• Ahealthy,engaged,well-educatedandequippedworkforce.

AnimportantfunctionofOPIistoensureVictoriaPolicemaintainsitsstrategicdirectionand delivers a professional and ethical policing service to the Victorian community.GiventheframeworksetbytheChiefCommissioner,OPIhasidentifiedwhatitconsiderstobe‘measuresofsuccess’againsteachofthesekeyareasinprovidingacontemporaryandresponsivepoliceservice.Theseinclude:

A safer, inclusive and more connected community– increasedpublicconfidenceinVictoriaPolice; increased public reporting of crime particularly from people in diversecommunities;andincreasedperceptionsofsafetyincityandregionalareas.

Engaged, skilled and equipped workforce–policeofficerswhoareethical,professionalandconfident;areequippedandconfidentforcareersoutsideoflawenforcement;arepeopleratherthanprocessfocused;andareadequatelyskilledtorespondtothechangingneedsofcommunity.

Flexible dynamic and responsive–increasedmobilitywithintheorganisation;targeteduseof resources; a better fit of civilian and swornofficers in non-operational roles, and agreaterflexibilitytotransferbetweenotherpolicingandgovernmentroles.

Effective and innovative crime management, public safety and road safety–adecreaseinvolumecrimes such as burglaries, assaults, thefts, alcohol-related crime, family violence andsexualassaults;greateremphasisonpreventionoforganisedcrime;andadecrease indeathsandseriousinjuriesassociatedwithtraffic-relatedincidents.

Strong leadership and effective management–consistencyofoperationsacrosspoliceregions;improvement inorganisationalpractices;astrongercultureofethicalandprofessionalservice delivery; increased staff engagement and satisfaction; and a focus on earlyinterventiontoimproveperformance.

The next section of this report looks more closely at Victoria Police work practices,particularlyinthecontextofthecapacityofVictoriaPolicetoachievethesegoals.

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Flexibleworkpractices

Flexible work options were a significant focus of the 2007 Enterprise BargainingAgreement negotiated by Victoria Police. These provisions were designed to deliverincreasedefficienciesandincreasedservicedeliveryoutcomesfromavailableoperationalresourceswhileprovidinganacceptablework/lifebalanceforemployees.Someoptionsnegotiatedaspartofthisagreementincluded:

• Cashing out accrued time off: employees are able to cash out their accruedtimeoffinordertoreceiveextraincomewhileworkingontargetedoperations.VictoriaPoliceadvisesupto6,000shiftswerefilledinthefirsttwoyearsofthisbecomingavailabletopolice.

• Part-time policing: employees are now provided with greater flexibility inworkingpatternsincludingtheabilitytoownmultiplepart-timepositionsandundertake irregular part-timeworkwhich allows police to access additionalshifts. A part-time employment panel was also established to review anygrievancesarisingfrompart-timework.

• Supplementaryduties:employeesonunpaidleaveareabletoworkoccasionalshifts,whichallowemployees toearnextramoneywhileon leave, transitionbacktowork,andmaintaincontactwiththeworkplace.

Fixed-term employmentwas another option negotiated as part of the 2007 EnterpriseBargainingAgreementwhichallowsformerpolicetobeemployedonacontractforuptothreeyears.Previously,formerpolicewerenotabletobeemployedonacontractualbasis.ThischangehasyettobeimplementedduetothelegislativechangerequiredtoaffectthisprovisionunderthePolice Regulation Act1958.

OPIReviewInSeptember2009,OPIconvenedaroundtableofVictoriaPolicemembers,andconsultantsto help identify some of the key workplace issues potentially affecting the capacityof Victoria Police to meet its organisational goals. Preliminary interviews were alsoconductedwithrepresentativesofVictoriaPoliceandthePoliceAssociationtoidentifyanyfurtherissuesrelatedtoflexibleworkpoliciesandpracticeswithintheorganisation.Thissectionbrieflyintroducestheseissues,andprovidesanoverviewofthefiveareastobeexaminedaspartofthisreview:

1. Recruitment and training

2. Transferandpromotion

3. Movementofstaff

4. Returntowork

5. Exitstrategies

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Recruitment and training

Police strength

The number of police officers employed byVictoria Police is determined by the StateGovernment(Auditor-GeneralVictoria,2006).VictoriaPolicemaintainsthistarget–orpolicestrength–byrecruitingtheadditionalnumberofpoliceofficerssetbyGovernment,andbyreplacingpoliceofficerswholeavetheorganisation.

In2006,thecurrentLaborGovernmentcommittedtofundinganadditional350VictoriaPoliceofficers,aboveattrition,overafour-yearperiod.Theplannedinductionoftheseadditionalofficerswereasfollows:

Year1 100

Year2 100

Years3&4 150

Victoria Police advises that all resources under this commitmentwill be recruited byJune2010.

ThemostrecentcommitmentofadditionalpoliceissignificantlylessthanthatfundedbyGovernmentsinpreviousyears.In1999,theStateGovernmentagreedtoincreasepolicenumbersby800byJune2003,andinOctober2003,itcommittedtofundinganadditional600policeofficersbylate2006(Auditor-GeneralVictoria,2006).

WhilethecommitmentofadditionalVictoriaPolicehasdeclinedsince1999,thepopulationofVictoriahascontinuedtoincrease.Attheturnofthecentury,theestimatedresidentpopulationofVictoriawas4.76millionpeople.Thishasclimbedto5.42millionpeoplein2009,andisexpectedtoreach6.28millionby2021.14

InthelatestReport on Government Services(2010),Victoriawasreportedtohavethelowestratio of operational staff per head of population, compared to otherAustralian statesandterritories.15ThisisshowninTable1.In2008–2009,Victoriareportedaratioof206operationalstaffper100,000peoplecomparedtoSouthAustralia(303operationalstaff)andWesternAustralia(287operationalstaff)whichreportedthehighestratiosamongthe states. It is important tonote that someof thesedifferenceswillbedue to factorssuchasresourcingacrossregionalandremoteareascomparedtomoredenselyorcloselypopulatedareas,anddifferentstateandterritorydefinitionsof‘operational’staff.

14AustralianBureauofStatistics-Population by Age and Sex, Victoria, 3235.2: June 2000 and Australian Demographic Statistics, 3101.0: June Quarter 2009.Projectedpopulationfor2021basedonSeriesBprojectionswhichassumesmediumlevelsoffertility,lifeexpectancy,overseasmigrationandinterstatemigrationflows.

15OperationalstaffisdefinedbytheProductivityCommission(2010)as‘anymemberwhoseprimarydutyisthedeliveryofpoliceorpolicerelatedservicestoanexternalclient(whereanexternalclientpredominantlyreferstomembersofthepublicbutmayalsoincludelawenforcementoutputsdeliveredtoothergovernmentdepartments).Operationalstaffinclude:generaldutiesofficers,investigators,trafficoperatives,tacticalofficers,stationcounterstaff,communicationofficers,crimescenestaff,disastervictimidentification,andprosecutionandjudicialsupportofficers.’

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Table 1: Police staff per 100,000 population, 2007-20081

Vic NSW Qld WA SA Tas ACT NT Total

Police staff numbers

Operational 11074 16677 11543 6324 4885 1399 819 1472 54193

Total 13901 19153 14222 7474 5431 1602 945 1587 64315

Population numbers

Per 100,000 53.65 70.41 43.50 22.04 16.12 5.00 3.48 2.22 216.44

Police staff numbers per 100 000

Operational 206 237 265 287 303 280 235 664 250

Total 259 272 327 339 337 320 272 716 297

Source: Report on Government Services 2010, Productivity Commission, January 2010

Notes: 1Police staff attributed to the national policing function of the AFP are excluded from these data. Data are FTE staff except for the NT where data are based on a head count.

VictoriaPolicealsohasthelowestpercentageofoperationalstafftonon-operationalstaffacrossthecountry.ThisisshowninFigure6.

Figure 6: Operational police staff by jurisdiction, 2008–20091

Source: Report on Government Services 2010, Productivity Commission, January 2010

Notes: 1Data is based on FTEs for all jurisdictions except the NT where the data is based on a head count.

100%

90%

80%

70%

60%

50%

40%

30%

20%

10%

0%

State and Territory

Perc

enta

ge

VIC NSW QLD WA SA TAS ACT NT AUS

Non-operational Operational

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In 2008–2009, 79.7% of Victoria Police staff was operational, compared to 92.8% intheNorthernTerritory, 89.9% in SouthAustralia, and 87.1% inNewSouthWales. TheoperationalstrengthofVictoriaPolicewasalsobelowthenationalaverageof84.3%.

Duringourconsultations,OPIwasadvisedthatthecurrentprocessfordeterminingandallocatingadditionalpolice–thatis,atthediscretionoftheGovernment–maynotbethemosteffectivewayofensuringrecruitsareemployedandtrainedwithintheorganisation.Thisisparticularlyapparentwhentheorganisationisrequiredtoinductlargeintakesofrecruitsattheonetimetomeetgovernmentfundingcomittments.

Large intakes can affect the quality of training and supervision provided to recruits,particularly once they have graduated from the academy. This was identified by theAuditor-General’sOffice(2006)initsreviewofVictoriaPolice:

The recruitment of large numbers of trainees increases workload at the operational level where large numbers of trainees require daily supervision. The quality and quantity of training that can be provided may also be compromised.

AmoreconsistentapproachtotheplanningandinductionofadditionalpolicenumberswouldallowVictoriaPolicetobettermanagethequalityandtrainingofrecruits.

Skills and experience

In 2008, the Ministerial Council for Police and Emergency Management – Police(MCPEMP)identifiedkeyworkforceplanningprioritiesforpolicetohelpfoster‘efficiency,effectiveness,continuous improvementandinnovation’.16 Recruitment and retention of staffisfundamentaltothisframework.Initsstatement,MCPEMPsetoutthatpolicingservicesneedto:

• identify the skills, knowledge and personal attributes required to meet futureorganisationalandoperationalneeds;and

• developearlystrategiestoattractandretainaneducatedandskilledworkforce.

ForVictoriaPolicetobeamodernandprofessionalpoliceserviceitneedstoattract,trainandretainthebestpeople.

VictoriaPoliceisfortunatetohave‘areadypoolofpeopleseekingemploymentwiththeorganisation’.WhiletheorganisationisnotchallengedbythenumberofpeoplewaitingtojoinVictoriaPolice,itsstrategicdirectionmandatesthatthe‘right’peopleberecruitedforthejob.Thisincludespeoplewhosevaluesareconsistentwiththeorganisation.

Akeyissueregardingrecruitmentofpoliceofficersconcernsthetypeofpeoplepoliceorganisations should be targeting as future members, in particular, whether policeservices should look to attract peoplewith a broad range of base skills to undertake

16DirectionsinAustraliaNewZealandPolicing2008-2011,APolicingStrategybytheMinisterialCouncilforPoliceandEmergencyManagement–Police

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generaldutiesrolesorpeoplewithmorespecialistskillswhomayfulfilfutureofficerormanagementroles.

Following the Fitzgerald (1989) and Wood (1997) Royal Commissions of Inquiry inAustralia,manypoliceservicessoughttoattractolderrecruitswith‘lifeexperience’orrecruitswithhighereducationqualifications.Thisshiftrepresentedtheviewthatolderoreducatedrecruitsarebetterequippedandmorelikelytohavenecessaryskills(suchasanalyticalandproblem-solvingskills)forthechallengesofpolicing,andarethereforelesslikelytoposeamisconductandcorruptionrisk.

However, some have argued that age and educationmay not necessarily be essentialprerequisitesforpolicing.Someolderapplicantsmaybechallengedbytherigoursofthejobsuchasshiftworkandthephysicallydemandingnatureoftrainingandoperationalduties,whilehighereducationasaprerequisitemayexcludepeoplewithotherimportantattributessuchasbroadlifeexperience,effectiveinterpersonalskillsandresilience.

InJanuary2010,VictoriaPoliceannounceda$1millionrecruitmentcampaignwiththeaimofdiversifyingitspoliceservice.Theaimofthiscampaignistorecruitpoliceofficerswhonotonlyhavethe‘right’skillsandpersonalattributesforpolicing,butwhoarealsoreflectiveofthecommunityVictoriaPoliceserves.Tothisend,therewillbeafocusonrecruitingpeoplefromabroadrangeofculturalbackgroundsandexperiences.

Education and trainingCloselyrelatedtowhoshouldberecruitedtopolicingishowtheyaretrainedtobecomepoliceofficers.ThepredominanteducationandtrainingmodelusedbyAustralianstateandterritorypoliceservicesispoliceacademytraining.Thisrequiresrecruitstocompleteapproximately20weeksoftheoryandpolicepracticebeforebeingswornintotheOfficeofConstable.

InVictoria,policerecruitsarerequiredtoundertake100daysof trainingat thepoliceacademy. Academic components include courses on law and policing procedures,communicationskills,computingandscenario-basedtraining.Physicaltrainingincludessessionsonpolicedrills,watersafety,defensive tactics,firearmstrainingandphysicaleducation.Upongraduationfromthepoliceacademy,policeconstablescompleteatwo-yearperiodasaProbationaryConstable,usuallyinametropolitanstation.17

In 2009, Victoria Police built on thismodel and introduced a two-week pre-academycoursedesignedtoproviderecruitswithanintroductiontopolicinginthecommunity.TheimplementationofthecoursefollowsakeyrecommendationoftheIntegritySystemforPoliceProject,andhasastrongemphasisonethicsandvaluestraining.18 The training alsoincludesarangeofcommunicationandcommunity-basedunits–suchascommunityengagement, Indigenous relations, cultural and religious awareness, ethical decision-

17SeeVictoriaPolicewebsite:atwww.police.vic.gov.au/content.asp?Document_ID=1445118TheIntegritySystemforPoliceProject(2008)wasajointprojectofVictoriaPoliceandtheCentreforApplied

PhilosophyandPublicEthicswhichwasfundedunderanAustralianResearchCouncilLinkageGrant.

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making,andthehistoryandfutureofpolicing–andaimstoprovideafoundationforallVictoriaPoliceeducationandtraining.VictoriaPolicereportsthat ‘eventually, ethics and values training will be rolled out to all ranks and classifications within Victoria Police to further reinforce and embed ethical decision making in all aspects of policing’(VictoriaPolice,2009).

Whilepoliceacademytrainingisnowawell-establishedpartofVictoriaPolicetrainingandeducation,theissueforflexibleworkplaceplanningiswhetherthistypeoftrainingmodelfullyequipspoliceofficerstoconfidentlyandcompetentlyundertaketheirdutiesupongraduation.Inparticular,doesthecurrentstructureofacademytrainingprovidearealisticintroductiontopolicingincludingworkingatapolicestationandundertakingshiftwork?Similarly,doesthecurrentProbationaryConstablemodelallowforarecruit’seducation and training to be sufficiently consolidated and appropriately developedoncetheyleavetheacademy?Thislatterissueisparticularlyimportantgiventhestronginfluenceofsupervisors,fellowswornofficers,andworkplacecultureonthebehavioursandattitudesofrecruitsandjuniorofficersoncetheycommenceduties.

Victoria Police is currently reviewing its education strategy, including police recruittraining.OPIwillconsiderthisworkaspartoftheflexibleworkpracticesreview.OPIwillalsoexaminetheapplicabilityoftrainingmodelsusedinotherpolicejurisdictionsandgovernmentsectors–suchasthemilitaryormedicalfieldswhichemployspecialistentryordesignatedstreamtraining–toensurethatpoliceofficersareadequatelypreparedfortheirroles.

Research focus

TheOPIprojectteamwillconsiderthefollowingrecruitmentandtrainingissues:

• Theprocessfordeterminingtheallocationofadditionalpolice

• ResourcingrequiredtomeetVictoriaPoliceoperationalneeds

• ThetypeofpeopleVictoriaPoliceshouldseektorecruit–including:

• the skills and experience required to fulfil the role of a police officer – forexample:

• personalattributes–includingintegrityandvalues;

• specialistorgeneralistpolicingskills;

• prerequisite standards for recruit training (role or gender specificcriteria);and

• diversity in recruitment (levels of education, gender, ethnicity,languages,andworkexperience)

• Thetypeofeducationandtrainingmodelneededtoensurethatrecruitsareadequatelyequippedandtrainedtodotheirjobs–forexample,considerationof:

• policeacademytraining;

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• accreditedtrainingcentres;and

• specialistentryordesignatedstreamtraining

TransferandpromotionIn2005,VictoriaPolice commenceda reviewof the transfer andpromotion system inresponse to concerns raised bymembers. In particular, these concerns related to thelengthoftheprocess,perceptionsandinstancesofbias,nepotismandcronyism,andalackoftransparencyandconsistencyinitsadministration.Therecommendationsarisingoutofthe2005reviewincludedtheimplementationofathree-phasedstrategytoaddresstheproblemsidentified.In2009,VictoriaPolicecompletedapost-implementationreviewofphaseone,whichwastoestablishacentralisedTransferandPromotionUnit(TPU)toperformadministrativetasks,coordinatepanelsandwritefinalsectionreports.19

Someof thefindings from thepost-implementation reviewof theTPUare relevant toOPI’sreviewofflexibleworkpractices.Theseincludethefollowing:

• Claims of bias, nepotism and cronyism have significantly decreased, howevertransparencyofdecision-makingandperceived/actualinconsistenciesinshort-listingapplicantsremainaconsiderableissue.

• Members are supportive of a centralised transfer and promotion system, howevertheybelievetheprocessneeds‘fixingratherthanabolishing’.

• Theuseofgenerickeyselectioncriteriaisconsideredtoocorporatefocusedanddoesnotprovidememberswithsufficientopportunitytodemonstratetheirrelevantskillsandexperiences.

• Fillingofvacancieswithinatimelymannerisstillamajorconcern.

• ToomuchweightingisplacedonCVsandpanelinterviews,withlittleornoaccountofotherkeyattributessuchasexperience,businessresults,diversity,technicalskills,refereesandprobityrelevanttotherole.

• Overwhelming support exists for the introduction of exam-based pre-qualifyingassessment, and the use of assessment centreswheremembers can demonstrate arangeofattributesrelevanttorankorposition.

• Thecurrentlevelofprobitycheckingisconsideredinadequate.

• The current transfer and promotion system stifles lateral movement, and there issupportforwiderconsiderationofexpressionofinteresttransfers.20

19PhaseonewasimplementedinApril2007.Theimplementationofphasestwoandthree–whichincludesconsiderationofinformationtechnologysupport,accreditationofpanelmembers,changestotheappealsprocess,andtheintroductionofpre-qualifyingassessment–istobeconsideredbyVictoriaPolicefollowingthereviewofphaseone.

20VictoriaPolice,TransferandPromotionReview2009–ReportandRecommendations.Unpublisheddocument

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VictoriaPolicemade10recommendationsinresponsetothesefindings.TheseissuesandrecommendationswillbeconsideredaspartofOPI’sreview.

In addition, OPI will examine the following issues raised during our preliminaryconsultations.

Expression of interest transfers

VictoriaPolicehasdifferentprovisionsgoverningthetransferandpromotionofmembersand officers depending on rank. For Probationary Constables, Constables and SeniorConstables,VictoriaPoliceemploysa‘generaldutiesallocation’processtofillfull-timegeneraldutiespositions.Thisprocess,whichissetoutinSection306oftheVictoriaPoliceManual,allowsmembersattheselowersrankstoapplyforanat-leveltransferthroughan‘expressionofinterest’system.Underthissystem,ifamemberwishestoapplyforatransfertoanothergeneraldutiesposition,thememberplacestheirnameonadivisionalwaitinglist.Asvacanciesarise,positionsarefilledwiththememberonthetopof thelist.21Memberswishingtotransfercanonlyplacetheirnameononedivisionalwaitinglist,andcannotdeclinethepositionifoffered.Similartothein-situpromotionprocessforConstablesdiscussedbelow,memberswhonominatefortransferthroughthegeneralduties allocation process are not required to compete for the position throughmerit-basedselection.Rather,thegeneraldutiesallocationprocessoffersanautomatictransfer.

For the ranks of Sergeant and above and specialist positions, the transfer process isdifferent.Higherlevelrankshavea‘merit-based’selectionprocessfortransferswherebysenior members and officers are required to apply for advertised vacancies througha selection criteria and interviewprocess. This process also applies to Inspectors andSuperintendentswhowanttotransfertootherpositionsoutsidetherotationsystem(seenextsection).

Whilesomehavearguedthatmerit-basedselectionprocessesforat-leveltransfersallowtheorganisationtoselectthemostsuitableofficertofillavacancy,othershavesuggestedthat it creates barriers for seniormembers and officerswishing to broaden skills andexperienceinotherworkplaces.Itisalsoconsideredaslowerandmoreadministrativelyburdenedprocesswhen seeking tofill advertisedpositions.Oneof the advantagesoftheexpressionofinterestprocessfor juniorranksisthatitallowsmemberstotransferrelatively easily and quickly subject to the length of the waiting lists for particulardivisions. The challenge for Victoria Police is to provide equitable opportunities formembersandofficerstomovearoundtodeveloptheirskillsandexperience,whileatthesametimeensuringthebestpersonisselectedforavacantposition.

Regulation 21

Regulation21ofthePolice Regulation Act1958allowstheChiefCommissionertousehisorherdiscretiontotransferanyVictoriaPolicemembertoanypartofthestate‘where

21Thisissubjecttonosuitablyqualifiedsurplusemployeesbeingavailableforredeployment.

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it is efficient for Victoria Police to do so’. Situations in which Regulation 21 may be exercisedinclude:

• facilitatingpressingnecessityrequests

• assistingthepersonaldevelopmentofanyemployee

• resolvingastaffingproblemsuchasaclashofpersonalities

• relocatinganemployeewhoseworkperformancehasdeterioratedinordertoprovideclosersupervision

• resolvingasupervisoryproblem

• meetingchangesinresourcingrequirementsbetweenparticularlocationsandunits

• better utilising the skills of a particular employee to perform an alternative role or function

• redeployment

• addressingafailuretoattainmandatoryqualifications.22

UnderRegulation21,theChiefCommissionermayfillavacancybytransferringapersontoaposition,orbyadvertisingapositionandtransferringorpromotingapersontotheposition.OneofthekeyadvantagesofRegulation21transfersisthegreaterflexibilitytomoveVictoriaPolicememberswhereoperationalresourcesareneeded.TheregulationalsoallowstheChiefCommissionertotransfermembersoncompassionategrounds,ortofind suitablepositions for thosewhohave returned fromoverseasdeployment (i.e.InternationalDeploymentGroup),secondmentorextendedleavewithoutpay.

Regulation21isnot,however,withoutitscritics.Primarily,thepolicyhasbeenopposedforbeing‘unfair’tootherswornpolicebygivingthosetransferredundertheregulationa (perceived) ‘free-kick’ or ‘leg-up’ to a positionwithout having to compete onmerit.ThisisconsideredtoparticularlydisadvantageswornpolicewhomaywanttoapplyorseekappointmenttopositionsthathavebeenfilledthroughaRegulation21transfer.Inaddition,Regulation21hasbeencriticisedasan inappropriateway tomanagepeoplewho are underperforming or to relieve supervisors of the responsibility to providedifficultstaffwithprofessionaldevelopmentandguidance.

AnexampleoftheuseofRegulation21–andsomeofthepotentialadverseconsequences–isdemonstratedbythecaseoftheCejaTaskforceinvestigatorswhoweretransferredunderthisregulationaspartoftheirreintegrationintoVictoriaPolice(OPI,2007).

VictoriaPolicedevelopedareintegrationstrategyformembersoftheinternalcorruptiontaskforce–whichincludedRegulation21transfers–toaddressarangeofworkfactorsthat directly affected Ceja investigators. Some of these factors included the loss of

22See306-5oftheVictoriaPoliceManual

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potentialworkopportunities,personaldevelopmentneedsofmembers,andostracismand resentment experienced by investigators as a result ofworking on a high profiletaskforce.Aspartofthereintegrationstrategy,VictoriaPoliceofferedsomeCejaTaskforceinvestigatorsatransfertoapositionthatthepersonwasqualifiedtofill,attheperson’sexistingrank,andforwhichthepersonhadexpressedapreference.Thesetransfersweredesigned to ensure that Ceja investigators were not professionally disadvantaged byworkingonthetaskforce,andthattheskillsandexperiencesgainedfromCejacouldbeusedinotherareasofVictoriaPolice(OPI,2007).

OPI’sreportontheCejaTaskforce(2007)detailsthe‘significantcriticismandoppositionwithin[VictoriaPolice]tothesetransfers’.Inparticularitnotesthatnineofthe28transfersmadeunderthisregulationwerethesubjectofappealstothePoliceAppealsBoard,andthatsomeofficersweresubjecttoseriousinstancesofharassmentorvictimisationaftertransferringtotheirnewworkplaces.

The point to bemade here is that Regulation 21 can be useful in allowing theChiefCommissioner to redeploy members to meet operational needs or on compassionategrounds following their assignment to taskforces, but use of the regulation can alsoresultinmembersfeelingaggrievedbytheprocessandwillingtochallengeitsvalidity.

In-situ promotions

Unlikeotherstateandterritorypoliceservices,VictoriaPoliceoffers‘in-situ’promotionfromtherankofConstabletoSeniorConstable.In-situpromotionsarenotofferedtoanyotherrankwithintheorganisation.

Section 306-6 of the Victoria Police Manual provides that, to be eligible for in-situpromotion,Constablesmusthave:

• successfullycompletedrecruitandadvancedtraining;

• successfully completed the required components of the Victoria Police SequentialTrainingandEducation,ifrecruitedafter1July1997;

• completedfouryearsofduty;and

• beenassessedashavingperformedsatisfactorily.

’In-situ promotions’ for Constables within Victoria Police are, in essence, automaticpromotions.Thepracticeallowsforpromotiontothenextrankwithnoskillstestingandwithnorequirementformemberstodemonstratetheirsuitability.23Instead,eligibilityforpromotionisbasedonlengthofexperienceandsatisfactoryperformanceatthecurrentlevel. This creates potential risks for the organisation. Primarily, ‘in-situ promotion’fosters non-movement of personnelwhenConstables are promoted and receive a payincreasewhileremaininginthesameworklocation.Italsopotentiallyshiftsthebalance

23TheonlyprocesscriteriaisthattheConstablehasnooutstandingEthicalStandardsDepartmentfiles–i.e.complaintsordisciplinarymatters.

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of experienced and non-experienced members in regions. Perhaps more importantly,the process promotes people into more senior positions without a need for them todemonstratetheskillsorknowledgerequiredtoundertaketherole.

Thecurrentprocessof‘in-situ’promotionisnotnecessarilyconsistentwithensuringthebestormostsuitablepeoplearepromotedtotherankofSeniorConstable.Itisalsonotconsistentwiththepromotionprocessesadoptedforotherranksacrosstheorganisation– Senior Constables and above – where suitability for a higher ranked position isdemonstratedthroughmerit-basedselection(i.e.applicationandinterview).

Appeals

VictoriaPolicemembersmayappealaselectiondecisionfortransferorpromotiontothePoliceAppealsBoard(PAB).24 The Police Regulation Act1958providesthatappealscanbemadeonthegroundsof‘efficiencyofthecandidate’–where‘efficiency’means:

the aptitude and special qualifications necessary for the discharge of the duties of the position in question, together with merit, diligence, good conduct, quality of service, mental capacity and physical fitness.

InthecaseofInspectors,efficiencyalsoincludesthe‘potential to develop the executive ability and leadership and management skills essential in senior executive positions’,while forChiefInspectorstoCommandersitincludes‘the executive ability and leadership and management skills essential in senior executive positions’.

Tothisend,membersmayappealatransferorpromotiondecisionbasedontheperceivedabilityorcharacterofthepersonselectedfortheposition.

Concernshavebeenraisedaboutthebasisonwhichappealstotheboardaremade.Ithasbeensuggestedappealsshouldbeheardonthebasisofprocessandnaturaljusticeissuesrather than the personal attributes and ability of the successful candidate.Under thecurrentlegislativeprovisions,thegroundsforappealamounttoarequestfora‘secondopinion’onthesuitabilityofthecandidatechosenfortransferorpromotion.

In practice, the re-hearing of a transfer or promotion matter actually amounts to arequestfora‘moreinformedopinion’onthesuitabilityofacandidate.Thisisbecause,aspartofare-hearing,thePABisentitledtorequestandconsideradditionalandmoreextensive information not available to the original selection panel – for example, thecomplaintshistoryofthepersonselectedandtheappellants,professionaldevelopmentand assessment reports, personnel files, and appeal briefs prepared by the successfulcandidateand theappellants.Swornpolicewhoapplied for thepositionbutwerenotselected for interview in the original processmay also prepare an appeals brief and

24ThePoliceAppealsBoardalsohasauthoritytoreviewsomedecisionsoftheChiefCommissionerincludingconfirmationofpromotionorterminationofemployment,compulsorytransfer,disciplinehearings,criminalchargeconvictionspunishablebyimprisonment,andinquiriesfindingamemberincapableorinefficientinperformanceofduty.

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appearbeforetheboardtodemonstratetheir‘efficiency’aspartofare-hearing.Thiscancreatesignificantworkloadissuesfortheboard.

Inaddition,thereisnovalidationoftheinformationsuppliedbyappellants,whichraisestheissueofhowthePABcanadequatelyassessthe‘efficiency’oftwoormorecandidateswhenthereisnomeanstoverifywhatisbeingsubmittedinsupportoftheclaimsmadebythoseinvolvedintheprocess.

AnalysisoftheworkloaddataofthePABin2008–2009furtherstrengthensargumentsforchangingtheprocessandcriteriauponwhichappealscanbeheard.ThisisparticularlyapparentwhenconsideringthehighproportionofappealswithdrawnbyappellantsandthelowpercentageofappealsactuallyupheldbythePAB(PoliceAppealsBoard,2009).

In2008–2009,495appealswerefinalisedbythePAB.25Ofthese,approximatelyhalf(243appealsor49%)werewithdrawnbyappellantsorlapsed.Oftheremaining252appealsthatwereheard,only22wereallowed.Thisrepresents9%ofthoseappealsheard,andonly4%ofthosefinalisedinthelastfinancialyear.

TheincreasingworkloadandtimelinessofthePABhavealsobeenidentifiedasconcerns.26 In the lastfiveyears, theproportionof selectiondecisionsappealedbyVictoriaPolicemembershassignificantlyincreased.In2003–04,9%ofadvertisedtransferandpromotiondecisionswereappealedcomparedto25%in2008–09,representingoneinfourselectiondecisionsinthelastfinancialyear.Ithasbeensuggestedthis increaseisrelatedtothedecreaseinthenumberofadvertisedpositions.Membersarebecomingmorecompetitiveinanenvironmentoffeweradvertisedvacanciesanddecreasingstaffattrition.27

Intermsoftimeliness,thenumberofdaysbetweenappeallodgementandhearinginthelastfinancialyearwas74days.Whilethisisareductiononthenumberofdaystakeninthepreviousfinancialyear,ithighlightsthatthosetransfersandpromotionssubjecttoappealaretakingovertwomonthsonaveragetofinalise.Thisdelay,coupledwiththeaveragetimeittakestocompleteaselectionprocess(40days),meansitcantakeVictoriaPoliceupto114daystofillaposition.

Suchdelaysultimatelyaffecttheorganisationinadvertisingandfillingvacancies,andpoliceundertakingtheirduties.Inaddition,lengthydelaysinfinalisingpromotionandtransfer decisionsmay threaten staffmorale,motivation, and productivitywithin theworkplace.

Victoria Police needs amechanism for police to appeal any flawed selection process.Thisreviewwillconsideroptionswhichgiveeffecttotherightofpolicetoappealwhileensuringanefficientandfairprocess.

25Between01/07/08-30/06/09,517appealswerelodgedwiththePAB,80appealswerecarriedoverfromthepreviousfinancialyear,and102appealswereoutstandingasat30/06/09.

26Thetimetakentoresolveanappealhasalsobeenattributedtotheavailabilityofmemberswhomaybeonleave,attendingtrainingorcourts,andonoverseasdeployments(PoliceAppealsBoard,2009).

27AlsoidentifiedasacontributingfactorwastheadvertisementofalargenumberofInspectorpositionsandthesubsequentmultipleappealsagainsteachoftheseselections(PoliceAppealsBoard,2009).

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Interstate mobility

MobilityofpolicemembersbetweenAustralianstatesandterritoriesisanissuethathasplaguedstateandterritorypoliceservicesforthepasttwodecades.Themainimpedimentforpoliceofficerstransferringtoother jurisdictionsistheperceiveddifferencesinroleand rank requirements tofill similarpositions across states and territories.Generally,members wanting to move interstate are required to complete some form of recruittraining–whetherinfulloranabridgedversion–andmayberequiredtocommenceatalowerrankandsalarybeforebeingeligibletoapplyforpositionsattheirformerrank.

In Victoria, there are no lateral transfers available to police members from otherjurisdictions. Potential applicants may apply for recognition of skills and policingexperience,which,ifgranted,allowsamembertocompleteareducedperiodofsixweeksrecruittraining,insteadofthe23-weekcourse.

TherearenolegalimpedimentspreventingVictoriaPolicefromrecruitingswornofficersat lowerranksfromother jurisdictions.Indeed,thecurrentprovisionsdonotapplytoofficers at the levelofCommanderandabovewhoareable togain lateral entry fromanotherpoliceservice.Rather,itseemsthebarriersforlowerrankedofficersarehistoricalandpolicybased.VictoriaPolicemaywishtoconsiderremovingthesebarriersinordertoattractandretainskilledandexperiencedpoliceofficers.

Research focus

Thereviewwillexaminethefollowingtransferandpromotionissues:

• ProvisionsgoverningthetransferofmembersandofficerswithinVictoriaPolice;

• Processes for ensuring that the best people are selected for promotion to vacantpositionsacrosstheorganisation;

• Processesforstrengtheningthemeritandefficiencyoftheappealsprocess;

• Strategies to attract, andmaximise the skills and experience of officerswanting totransferfromotherAustralianoroverseaspolicingservices.

MovementofstaffInbuildingaflexibleandresponsiveworkforce,anorganisationneedstobeabletoshiftresourcestomeetcurrentandfuturedemands,andmaximisetheskillsandexperienceof itsmembers. In addition to transfer provisions and regulations governingVictoriaPolice,practicesadoptedtomoveVictoriaPolicemembersthroughouttheorganisationincludetenure,relocation,redeploymentandrotationofstaff.

Tenure

Perhapsoneof themorecontentious issues inpolicing is thatof tenure.Tenure refersto a specific length of time a member can stay in a particular position before being

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rotated. The application of tenure to certain police positions has traditionally beenassociatedwith integrityconcernsandproblemsrelatedtomembersworking inhigh-riskmisconductandcorruptionareas.Itisbasedonthepremisethatmovingorrotatingpeoplewithintheseareas–particularlyspecialistsquadssuchasdrugsquads–reducestheriskofcorruptionandmisconductbypreventingstagnationandthedevelopmentofinappropriaterelationships.Morerecently,however,tenurehasbeenpromotedandusedasameansbywhichtheorganisationcanplansuccession,refreshthebalanceofskillsandexperiencewithin regions, andallowmembers tobroaden their ownexperiencesandcareerdevelopment.

VictoriaPolicehasaminimumtenureonalladvertisedpositionswhichrequiresamembertostayinapositionfortwoyearsbeforebeingabletoapplyortransfertoanotherposition.MaximumtenureislesscommonlyappliedinVictoriaPolice,althoughsomepositionsdohaveupperlimitsonthetimeamembercanspendinthisrole–forexamplethedrugsquadandclandestinelaboratorysquadshavethree-yearmaximumtenureonpositionsbeforeswornofficersarerotatedtoanotherareawithintheCrimeDepartment.Similarly,SeniorSergeantstransferredtothepoliceacademyhaveathree-yearmaximumtenureoneducationandtrainingpositionstoensurecurrencyinteaching.

Oneoftheissuesraisedaspartofthisreview,iswhetheramaximumtenureshouldbemorewidelyappliedtopositionswithinVictoriaPolicetobetterrefreshandstrengthenthe capability of the organisation andprovide for further development of staff. Somealternative views have been expressed in relation to tenure. It has been suggestedthereisnoneedtoexpandmaximumtenuredpositionswithinVictoriaPolice–whichmaydisadvantagemembers–when thereareotherorganisational systems that couldachievesimilargoals,forexample,effectivemanagementandsupervision,performancemanagement, natural attrition and staff movement through transfer and promotionandothercareerdevelopmentopportunitiessuchasdeploymentsandsecondments.Inaddition, somehavehighlighted that somepolicepositions–whichattract significantorganisational investment in specialist educationand training,and require significanttimespentinthefieldtodevelopexpertise–arestrengthenedbythelongertermretentionofspecialiststaff.Assuch,tenuremayweakentheorganisation’scapacityifappliedtothese areas. To this extent, any tenure policywould need to considermaximising anorganisation’sreturnoninvestmentinpeopleandmaximisingtheskillsandexperienceofswornofficersinkeypolicingareas.

Similar concerns have been raised in relation to the rotation of Inspectors andSuperintendentswithintheorganisation.

Inspector and Superintendent rotations

AllCommissionedOfficers, including Inspectors and Superintendents are attached totheOffice of the Chief Commissioner. In Victoria Police, these ranks are subject to arotationsystemwhichallowstheChiefCommissionertomoveofficerstoanylocation

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withinaregionordepartment.TheprovisionsgoverningtherotationofInspectorsandSuperintendentsincludewhere:

• theyhavebeeninthecurrentRegionorDepartmentfor5yearsormore;

• thereareorganisationalneeds;

• therearedevelopmentneeds;and

• individualswhohavebeenintheirrolesfortwoormoreyearsrequesttobeconsideredforrotationandthisissupportedbytheirmanager.

Like transfer and mobility policies, Inspector and Superintendent rotations provideVictoriaPolicewiththemeanstomoveCommissionedOfficers tomeetorganisationalneedswhileprovidingforsuitablecareerdevelopment.Thepolicyhashoweverreceivedsomecriticism.Therehavebeenobjectionstomovingofficersandtheirfamiliessimplytoensurecompliancewiththepolicy,especiallywhenmovingthemfromcountryareastometropolitanareaswhichmayresultinfinancialburden,andwhenmovingofficerswhoare completely satisfied in their currentpositions andareperforming their rolesadequatelyandinaccordancewiththeexpectationsoftheorganisation.Concernshavealso been raised about the use of the rotation policy tomanage underperformance –whetherperceivedorreal–effectivelyrelievingseniormanagersoftakingresponsibilityforpoorperformance.Inthesecases,therotationofpoorperformersmerelyshiftstheproblemelsewhere.

While policies which result in sworn officers beingmoved between posts have beenpromotedasameans toenhance thepersonalandcareerdevelopmentof individuals,somehavesuggesteditcouldactuallybearisktotheorganisation.Thisisapparentwhenconsidering thepotential loss of corporate knowledge, thedifficulties associatedwithsuccessionplanning,thelossofcontinuityinmanagingnewstrategiesorinnovations,thepotentialweakeningofcommunityrelationships,andthereductionofexpertiseincommandandcontrolandemergencymanagementthatmayoccurwhenlessexperiencedofficersorthosewhoarenotabest-fitarefillingpositions.

Relocation and redeployment

AfinalissueinrelationtothemobilitypracticesofVictoriaPoliceconcernsrelocationandredeploymentofstaff.Thisreviewwillexaminetheincentivesandprovisionsprovidedtomembersinsupportofmovementinaccordancewiththesepolicies.

Research focus

Inexaminingtheworkpracticesfortransferringormovingstaff,theprojectteamwillconsiderstrategiestoensurethatVictoriaPolice:

• canflexiblymovestafftowhereresourcesareneeded;

• canattracttherightpeopletoregionalorruralareas;

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• hastherightbalanceofpolicenumbers,skillsandexperienceacrossthestate;

• hasappropriatecareerandskilldevelopmentopportunitiesformembers;and

• hasappropriatetermsandconditionsunderpinningrelocationandredeployment.

ReturntoworkInOctober2008,VictoriaPoliceintroducedanewmobilitypolicyforswornemployeesunabletoperformtheirdutiesduetoaworkornon-relatedworkinjuryorillness.Theaimofthepolicyistoensureillorinjuredmemberscanremainemployedbytheorganisationwheretherearepositionsthatcanaccommodatetheirmedicalrestrictionsonanongoingbasis.

Threeoptionsareavailabletostaffreturningfromworkafteraperiodofsickleaveorworkerscompensation:

• returntothepre-injuryorgazettedpositiontoundertakethesameormodifiedduties;or

• transferorberedeployedtoanotherposition;or

• bemedicallydischargedfromVictoriaPolice.

Victoria Police members are not able to occupy a uniform position and work in anoperational capacity if they are not Operational Tactics and Safety (OTS) trainingqualified(formerlyknownasOperationalSafetyTacticstraining).Thisincludespositionsin stations and shop fronts.One of the challenges forVictoria Police is how to betterreintegrateworkerswhoarenolongerinapositiontocarryouttheiroperationaldutiesormaintainanOTSqualification.

Peopleneedtohavetherightskillsandexperiencetoundertakethework–oratleasthaveaccesstoadequatetrainingtoallowthemtofulfilthefunctionsoftherole,forexample,membersmovingfromoperationaltopolicyoradministrativeroles.Potentialproblemsfor the organisationmay arisewhen thepersonwhohas returned from sick leave orworkerscompensationmaynotbequalifiedfortheposition,maynotbeinterestedinthework,ormaybefinanciallydisadvantagedbythepositionoralternativesbeingoffered.In these cases Victoria Police needs to ensure there are adequate systems in place tomaintainthemotivationandenthusiasmofmemberswhilemaximisingtheirskillsandexperience,andstillprovidingcareerandpersonaldevelopmentopportunities.

A separate issue thathasbeen raised in relation tomemberswhoare ill or injured isthe conflicting provisions governing paid leave for employees accessing workerscompensation. More specifically, this relates to the period of time employees can beheld against their positions beforeVictoria Police is able to considermorepermanentarrangements (for example, transfer to another position or medical discharge). TheAccident Compensation Act 1985provides thatmembersmay takeup to 52weekspaid

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leave28,whiletheVictoriaPoliceEnterpriseBargainingAgreementprovidesforupto104weeks.Thissituationwillneedtobeexaminedtoaddresspotentialstaffingissues,whichmayimpactonbusinessoutcomesandservicedelivery.

Operational readiness

Whenrequired,VictoriaPolicecandeploylargenumbersofoperationalpolicetomanageplannedorunforeseensecurityeventsacrossthestate.RecentexamplesofthisincludetheSafeStreetsInitiative,OperationUnite,theG-20SummitandtheCommonwealthGames.Asidentifiedinthesectiononpolicestrength,VictoriaPolicehasthelowestproportionofoperationalmemberscomparedtootherstatesandterritories.Oneoftheissuesraisedaspartofourreviewwaswhetherregulartestingofmembersshouldbeintroducedtoensurepoliceofficerscontinuetomeetentrancecriteriaandremainoperationallyready.

OPIexaminedOperationalSafetyTacticstrainingbyVictoriaPoliceaspartofitsUseofForcereport(2009).Thereportwascriticalofthesystemoftrainingswornpolice.

FollowingthekeyfindingsofOPI’sreviewanditsowninternalreview,VictoriaPoliceimplemented changes to its training,which is now referred to asOperational Tacticsand Safety training. The revised traininghas reverted to twodays training every sixmonthsand there is a strongemphasison tactical communication, conflict resolution,andmanagingincidentsinvolvingpeoplewithmentalhealthissues.FromJanuary2010,OperationalTacticsandSafetytrainingwillbeundertakenbyeveryoperationalpoliceofficerintheorganisationincludingCommissionedOfficers.

ThecapacityofVictoriaPolicetoremainoperationallyreadywillbeexaminedfurtheraspartofthisreview.

Research focus

TheprojectteamwillconsiderhowVictoriaPolicecan:

• betterintegrateemployeeswhoarereturningfromillnessorinjury;

• ensurethemotivationandinterestofstaffreturningtoworkismaintained;and

• manage peoplewho are not able tomaintain their Operational Tactics and Safetytrainingqualification.

TheprojectteamwillalsomonitorthestatusofOPI’srecommendationsonuseofforce.

ExitInthe2008–2009financialyear,366policemembersseparatedfromVictoriaPolice,whichwas23fewerofficersthanthepreviousyear.Themajorityofthesepeopleseparatedbyresignation(132people),ageretirement(94people),andill-healthretirement(72people).29

28SeeSection155A(3)(d)(i)oftheAccident Compensation Act198529UnpublisheddataprovidedbyVictoriaPolice.

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TwokeyissuesraisedinrelationtostaffseparationsduringourconsultationswereageretirementsandtheChiefCommissioner’spowerofdismissal.

Age retirement

Under the Police Regulation Act 1958, sworn police, with the exception of the ChiefCommissioner, are eligible for age retirement at ‘the age of 50 years or at any timethereafter’.30 The Emergency Services Superannuation Act1986,whichgovernssuperannuationfor Victoria Police, complements this by allowing access to superannuation upon oraftertheageof50years.31CurrentfederallegislationhoweveroverridestheprovisionsoftheEmergencyServicesSuperannuationActandprovidesthatemployees,includingswornpoliceofficers, areeligible toaccess their superannuationonce they reach theirpreservationage.32

Ratherthandefiningauniversalageforemployees, thepreservationageforaccessingsuperannuationisdependentonthedateofanemployee’sbirth.ThisissetoutinTable2.

Table 2: Preservation age for superannuation

Date of birth Preservation age

Before1July1960 55

1July1960–30June1961 56

1July1961–30June1962 57

1July1962–30June1963 58

1July1963–30June1964 59

After30June1964 60

Source: Super and your retirement: introduction for retirees. Australian Tax Office,November2007

In short, sworn officers born before 1960 are eligible to access superannuation benefits once they reach 55 years,while those born after 1964 can access it once they reach60years.

Uponreachingtheirpreservationage,employeeshavethreemainoptions:

• accesstheirsuperannuationandretire;

• access their superannuation (through ‘transition to retirement’ income) and reducetheirworkinghours;and

30TheageofretirementfortheChiefCommissioneris55yearsorolder.31SeeSection20D,EmergencyServicesSuperannuationAct1986.32 See Super and your retirement: introduction for retirees.AustralianTaxOffice,November2007

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• continue working and access their superannuation at 65 years even if they haven’tretired.

Different provisions govern how employees can access superannuation under each oftheseoptions,includinghowmuchsuperannuationcanbeaccessed,andtherateoftaxappliedtoeachoption.Forexample,superannuationbenefitsaretax-freeifpaidfromataxedsourceandthepersonis60yearsorover.33

In effect the federal legislation prevents sworn police from accessing superannuationuntiltheyareolder.ThedifferencebetweenwhenVictoriaPoliceofficersareeligibleforage retirement andwhen they are eligible to access superannuationbenefitshasbeenidentifiedasapotentialworkforceparticipationissuefortheorganisationandindividuals,particularlyforoperationalpolice.Thisissueariseswhenswornpolicechoosetoremainintheworkforcelongertomaximisethebenefitsofsuperannuation.

Foroperationalpolice, laterretirementmaymeanthatsomeofficersmayno longerbewillingtoundertakeoperationalwork,ormaynolongerbeabletoadequatelyperformit. In its submission to the Australian Federal Government onAustralia’s Future TaxSystem,thePoliceFederationofAustraliaarguedswornpoliceshouldbeexemptfromthe standard superannuationpreservationage.While theAssociationproposedpolicebeabletoretirefrom55years,itsviewwasthatgreaterflexibilityisrequiredforpoliceonthegrounds‘policingisparticularlyphysicallyandpsychologicallydemandinganddangerousworkandgenerallyinvolvesextensiveyearsofshiftwork,allofwhichtakeaseveretollonofficers’.34

Forced retirements are inconsistentwith policies aimed atmaximising the skills andexperiencesofswornofficers,particularlyinanageingpopulation.Theyarealsounfairifofficersarecompetentlyperformingtheirdutiesandarehappytocontinuetodoso.The issue forVictoriaPolicehowever ishowbest tomanageoperationalstaffwhoareat retirementageandmaynotbe inaposition tocontinue in their current roleeitherphysicallyormentally.

Dismissal

Section 68 of the Police Regulation Act 1958 provides the Chief Commissioner withauthority todismissVictoriaPolicemembers. It setsout that theChiefCommissionermaydismissamember if satisfied themember isunsuitable tocontinueasamemberof the organisation, having regard to (a) themember’s integrity; and (b) thepotentiallossofcommunityconfidenceinVictoriaPoliceif thememberweretocontinueintheorganisation.

Forswornofficers,dismissalfromVictoriaPolicemayfollow:

• adisciplinaryinquirywherethechargeagainstthememberhasbeenproven,or

33Taxed-sourcereferstofundswheretaxispaidoncontributionsandearnings.34SubmissiontoAustralia’sFutureTaxSystem,PoliceFederationofAustralia–17October2008.Seewww.pfa.org.

au/files/uploads/Taxation_Review_Submission_October_2008.pdf

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• an inquiry into the fitness for duty which finds the member to be incapable ofperformingorinefficientinperformingtheirduties.35

BeforetheChiefCommissionercandismissaswornofficerunderSection68oftheAct,heorshemust:

• givethememberanoticesettingoutthegroundsonwhichheorsheconsidersthemembertobeunsuitabletocontinueasamemberofVictoriaPolice;

• givethememberatleast21daysinwhichtomakewrittensubmissionsinrelationtotheproposeddismissal;and

• takeintoaccountanysubmissionsmadebythememberduringthatperiod.

In addition, the order given to the sworn officer must set out the reasons the ChiefCommissionerissatisfiedthememberisunsuitabletocontinue.

Since 2005, 22police officers have beendismissed fromVictoriaPolice, including onepersoninthelastfinancialyear.36

Section 68 of thePolice Regulation Act 1958wasmost recently examined byOPI in itsreviewof theVictoriaPolicediscipline system (2007). TheOPI found that the currentdismissalprocessis ‘complex, lengthyandasourceofdelayanddifficultyforVictoriaPoliceinriddingitselfofitsworstmembers’.

OPIrecommendedmajorreformtothedisciplinesystem,includingchangestotheprocessavailabletotheChiefCommissionertodismissmembers.Itstated‘the better approach for dismissing officers is by way of a streamlined discipline process which provides natural justice to members concerned but is done in a prompt manner’. Inparticular,OPI recommended the‘noconfidence’procedurebereplacedbyaninvestigationand‘showcause’process‘on thepapers’.

The recommendationsmade byOPIwere considered by Parliament in 2008 and 2009aspart of itsdeliberationsonproposedamendments to thePolice Regulation Act 1958.However therecommendationsrelatingto theauthorityof theChiefCommissioner todismissswornofficerswerenotsupported.

OPI continues to support the streamlining of the process available to the ChiefCommissioner to dismiss police officers. This issuewill be considered further in thecontextofthisreview.

35Section315-1,VictoriaPoliceManual Discharge of Employees.36Referstolastfivefinancialyears(2004–2005to2008–2009).UnpublisheddataprovidedbyVictoriaPolice

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Research focus

In addressing issues related to staff exits, theproject teamwill consider strategies forVictoriaPoliceto:

• moreeffectivelymanagepeoplewhoarenolongermeetingtherolerequirementsorexpectationsofVictoriaPolice;

• increasetheretentionandmotivationofskilledandexperiencedstaff,includingthosewhoareeligibleforageretirement;and

• streamline the process for theChiefCommissioner to dismiss someonewho is nolongersuitabletoremainamemberofVictoriaPolice.

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Nextsteps

ThisreviewaimstoensureVictoriaPolicehasaframeworktodeliveracontemporary,flexible and professional policing service that is able to meet the changing needs ofVictoriancommunities.

Indevelopingthisframework,OPIwillseektoensureVictoriaPoliceworkplacepractices:

• providefortheeffectivemanagementofaprofessionalandflexibleworkforce;

• areconsistentwiththemaintenanceofthehighestethicalandprofessionalstandardsinVictoriaPolice;

• areconsistentlyapplied;and

• arereflectiveofbestpracticeandconsistentwithcontemporarypoliciesandpracticesinotherjurisdictionsandotherpublicsectorworkplaces.

OPI’sconsultationstodatehaveshownthatVictoriaPoliceiscurrentlyundertakingsomesignificantworkinrelationtoworkpracticesandpolicyreform,especiallyintheareasofeducationandtraining,andtransferandpromotion.WhileitisnottheintentionofOPItoduplicatethiswork,partofOPI’sroleinundertakingthisreviewistoensureVictoriaPolicehasconsideredandiswellplacedtoaddresstheissuesraisedasimpedimentstoflexibleandprofessionalpolicing.

Over the next few months the project team will examine more closely the issuesidentified in this paper.OPIwill conduct a series of semi-structured interviewswithkeystakeholdersincludingVictoriaPoliceCommand,metropolitanandregionalpolicestations, the Police Association, the Police Appeals Board and Ombudsman Victoria.Otherpublicsectorandcommunityagencieswillalsobeconsulted.

In addition, a series of focus groups with Victoria Police members and officers willbe facilitated. Thepurpose of these focus groups is to obtainmembers’ views on theidentifiedworkplaceissuesandtodiscussanysuggestedstrategiesorrecommendationsforimprovingpoliciesorprocesses.

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References

Abbott, C. (2008). An Uncertain Future: Law Enforcement, National Security and Climate Change.London:OxfordResearchGroup.

Auditor-GeneralVictoria. (2006).Auditor-General’s Report - Planning for a capable Victoria Police workforce.Melbourne:VictoriaGovernmentPrinter.

Australian Federal Police. (2007). International Policing Toward 2020 - TheOutcomes.Canberra,19-21November2007.

Lynch, J. (2005). Looking to the Future: implications of emerging trends for police workforce planning.SouthAustralia:AustralasianCentreforPolicingResearch.

Naim,M.(2003).TheFiveWarsofGlobalisation.Foreign Policy Magazine, January-February,29-37.

Office of Police Integrity. (2007).Ceja Task Force Drug Related Corruption: third and final report.Melbourne:VictorianGovernmentPrinter.

OfficeofPoliceIntegrity.(2009).Review of the Use of Force by and against Victorian Police.Melbourne:VictorianGovernmentPrinter.

PoliceAppealsBoard.(2009).2008/09 Annual Report.Melbourne:PoliceAppealsBoard.

Productivity Commission. (2010). Report on Government Services 2010. Canberra:CommonwealthofAustralia.

VictoriaPolice.(2009).Annual Report 2008-2009.Melbourne.

VictoriaWorkforceParticipationTaskforce.(2005).Victoria: Working Futures.Melbourne:DepartmentofVictorianCommunities.

Workforce Victoria. (2008). Working Victoria: Victoria’s Workforce participation strategy.Melbourne:DepartmentofInnovation,IndustryandRegionalDevelopment.