The Police Service’s Strategic Community Engagement Team (SCET) hosted a Reference, Engagement and Listening (REaL) Event at Newforge, Belfast on 24 March 2023 with representatives from the Protestant, Unionist, Loyalist (PUL) community from across Northern Ireland. The event centred on focus group discussions linked to each of the five pillars contained within the ‘Here for You’ Engagement Vision, namely attraction and recruitment, engagement, neighbourhood policing, procedural fairness and local accountability.
The organisations in attendance were the Apprentice Boys of Derry (ABOD), Armagh Bands Forum, Grand Orange Lodge of Ireland (GOLI), Greater Shankill Policing Focus Group, Independent Loyal Orange Institution (ILOI), Let’s Talk Loyalism, Northern Ireland Alternatives, Presbyterian Church in Ireland, Resurgam Trust, The Methodist Church in Ireland, The Royal Black Institution and Zacchaeus Outreach Project.
Policing Board members Joanne Bunting MLA and Mike Nesbitt MLA also joined the event to provide an overview of the attraction and recruitment and procedural fairness pillars. Colleagues from the Board also provided input on the work of Policing and Community Safety Partnerships (PSCPs) around the local accountability pillar with ACC Singleton leading a plenary session allowing for feedback on all issues.
This summary document is intended to capture some of the important highlights and potential solutions discussed across the focus groups and plenary session. In broad terms, feedback from attendees at the event indicated that the five pillars contained within the ‘Here for You’ Vision are of particular relevance to the PUL community. Each of the five pillars are explored further below spanning a range of interlinking themes and potential ways to improve trust and confidence, including:
- The importance of methods through which the community can seek to hold the PSNI to account both at a strategic level and locally;
- A review into policing within the PUL community similar to that undertaken through the South Armagh Review;
- The need to address barriers to attraction and recruitment, including Police Officers being required to inform the Service of any notifiable memberships under the Police (Northern Ireland) Act 2000.
Attraction and Recruitment Pillar
Challenges
- The most significant barrier to attraction and recruitment within the PUL community is the policy around Officers being required to inform the Service of any notifiable memberships under the Police (Northern Ireland) Act 2000. There is a perception amongst the community that “it is not acceptable to be Protestant” in the Service given that it means “leaving your culture behind” and this will inevitably impact on those interested in a career in policing. Officers or potential recruits leave bands and loyal orders as they perceive their membership is incompatible with a career in policing. Feedback highlighted that this is reinforced by the notifiable membership requirement which “singles out certain organisations but leaves out others which equally could be argued to have similar political and cultural interests”. There was also a suggestion that this has already had an impact on Officers and Staff in the organisation who have left the Service due to this policy with queries around whether exit interviews are routinely conducted by the Service.
- There was also discussion around the PUL working class community with concerns expressed that the entrance requirements for the Service present a barrier to recruitment. Applicants are currently required to have a minimum of five GCSEs (or equivalent) at A*-C grade, including English Language. Attendees highlighted that young people are more likely to want to join the military which offers a range of transferrable skills and more defined career pathways than those offered by the Police Service. The two-tier policing narrative was also highlighted as a barrier to the community as it was noted that in some areas joining the Service is seen as a “betrayal”. In addition, a view was also highlighted that the 50:50 recruitment policy impacted negatively on the PUL community given that it ran for over a decade from 2001 until 2011.
- Concerns were also raised that active recruitment by paramilitary organisations is ongoing within PUL communities which can bring a “sense of credibility, status and belonging” for young people but they can subsequently find that it can be very difficult to leave these groups. Attendees suggested that there is a need for the Service to try to combat this through more engagement with young people in schools which will also assist more broadly with attraction and recruitment for the longer term.
Actions and Potential Solutions
- Police Service statistics indicate that 66.34 per cent of Police Officers and 78.22 per cent of Police Staff are from a Protestant community background (correct as of 01/02/2023). It is worth noting that the Service already holds some data around the socio-economic background of recent applicants to the Service. These are obtained by mapping applicants based on their postcode and respective multi deprivation measure ranking. The statistics show that 20.6 per cent of applicants to the 2021 Student Officer campaign applied from the 30 per cent most deprived areas in Northern Ireland. This compares to 19.6 per cent in the previous campaign; 36.8 per cent of applicants applied from the 30 per cent least deprived areas. The Service also compares applicants against what would be expected based on the population alone. Catholic applications were 362 less than expected in the 30 per cent most deprived areas in Northern Ireland compared to Protestant applications which were 164 more than expected. In the top 10 per cent most deprived areas, the variance between Catholic and Protestant applications has reduced compared to the last campaign.
- A review of policy around notifiable memberships under the Police (Northern Ireland) Act 2000. This is already under discussion by the Service Executive Team and sentiment from the REaL event will be included in any decision making.
- The current challenging financial position for the organisation will result in some very stark choices around service delivery in the coming months; the Service will be able to undertake limited recruitment of new officers on lists from previous competitions during April to June 2023 but beyond this there is unlikely to be anything further for some time. However, despite these difficulties the Service remains committed to engagement with young people, including across working class communities. The Service will be launching a new Children and Young People Strategy in June 2023.
- The Service is also undertaking a piece of work around an updated corporate approach to school engagement to ensure greater consistency across Northern Ireland. This is currently in the planning phase and SCET can provide an update around this work later in 2023. The Service is committed to looking at a Police Cadet or volunteering scheme in the future where potential recruits could develop their skills to meet relevant entry criteria. However, it is also vital for those within the PUL community to identify role models and leaders who are willing to engage with young people around the role of policing.
- The Service is currently conducting an internal cultural audit with a ‘Your Service, Your Voice’ organisation wide survey recently undertaken to help understand the experiences of those working within the Service today. The survey had a final response rate of over 45 per cent which is the highest of any employee survey undertaken in recent years with a series of workshops and 121 interviews also due to take place with staff and officers. This will provide a wide range of information and SCET will be able to provide an update to attendees on the outcome of this work on themes relevant to the PUL community later in 2023. Consideration should also be given to People and Organisational Development creating an organisation wide policy around exit interviews in order to obtain information which may assist in placing a greater focus on the retention of Officers/Staff.
Engagement Pillar
Challenges
- Engagement with the Police Service was described by a number of the focus groups in a positive fashion. One attendee described relationships as “the best they have ever been”, adding that efforts put in over the course of the last two years assisted in preventing issues arising during the 2022 parading season. However, a number of wider external factors were highlighted which impact on trust and confidence, such as Baroness Casey’s Review into the Metropolitan Police published in March 2023 as well as the wider ongoing political instability in Northern Ireland.
- There was a recognition that ACC Singleton has provided clear leadership around community engagement. However, attendees also described the wider movement of Officers and Staff making it difficult to maintain relationships, particularly as different Commanders have different engagement priorities. They highlighted that engagement is often personality driven and dependent on NPT Officers and local communities working together. A sense was also conveyed that information from the community is not fed to senior levels of the organisation with the view that “engagement falls apart above the level of Inspector” and that the Service “only engages when it needs something”.
- A theme across the discussion groups also covered the need for greater cultural competence across the organisation, particularly around the work of the Loyal Orders. A suggestion was made that the Service should consider inviting community groups to be involved in the training of Officers and Staff, including new recruits within the Police College.
- Attendees also referenced a lack of wider public understanding around how the criminal justice system operates. For example, there is a misconception that delays within the system are solely the fault of Police as a view exists within the community that arrests are made but cases are not being dealt with by the courts quickly enough. However, this is being exacerbated by the impact of insufficient resourcing more widely, including across the Public Prosecution Service and NI Courts and Tribunals Service.
- Discussion also took place around labelling with some concern expressed that the use of ‘PUL’ can have a negative impact on communities.
Potential Solutions and Actions
- Engagement to be a central focus within new Local Policing Plans currently being developed by District Commanders, alongside Policing and Community Safety Partnerships, in line with the Northern Ireland Policing Plan 2020-2025. In addition, other points around ensuring appropriate handovers when Officers move on to other roles within the organisation to be progressed by Districts. However, it is worth noting that there is likely to be reduced staff turnover throughout 2023 and beyond due to the current financial position.
- The SCET developed specific cultural awareness sessions focusing on the parading season in 2022 and 2023 for Area Commanders and District Commanders with GOLI and ABOD. The aim of these was to provide those involved with a better understanding of the Police Service plans for these as well as an opportunity for those in the Service to meet key representatives and facilitate communication in the coming months. A hydra exercise is also currently in development to assist the Loyal Orders in their understanding around Police decision making; it is envisaged that this will give members an opportunity to experience day-to-day policing and require them to make decisions within a range of set scenarios with an opportunity for Q&A with Senior Officers. It will be ready for delivery by June 2023 and SCET can provide more information in advance of this.
- SCET to consider development of a video resource around community engagementto assist with training, including voices from the PUL community such as the Greater Shankill Policing Focus Group. The creation of a resource in video format will allow for it to reach a wider audience across the organisation.
Procedural Fairness Pillar
Challenges
- Attendees discussed the need for openness and transparency in terms of the way in which the PUL community is treated by the Service. The approach taken to policing a number of events in recent years was referenced as undermining trust and confidence across the community, including the Bobby Storey funeral, the incident at a memorial event involving two Constables on the Ormeau Road and the handling of issues around the Clyde Valley Flute Band at a parade in Derry-Londonderry. Calls were also made for a proper public acknowledgment of mistakes made in the past which would meet the needs of the community. In addition, they also asked for a review to be conducted into policing in PUL communities similar to the South Armagh Review.
- A number of further issues were raised, including Police Service participation in Pride but not Orange or Royal Black Institution parades. It is worth noting that Police participation in these such events is currently considered on a case by case basis. Concerns were also expressed around a different approach to policing for Republican parades which “rarely submit 11/1 forms” for which no action is taken whereas “PUL parades almost always submit these”. It is worth noting that Police will investigate where any offences are committed.
Potential Solutions and Actions
- The Police Service developed the ‘Here for You’ Public Engagement Vision in 2022 to ensure a consistent standard of provision across the five pillars for all communities following the South Armagh Review published in August 2021. SCET will develop further REaL events in conjunction with the PUL community. The Service commits that these will take place at a strategic level every six months at a minimum. These will focus on a range of the issues and will be thematic with the potential to look beyond the five ‘Here for You’ pillars and examine specific issues impacting the PUL community and other policy matters, significant incidents and police procedures where appropriate. This will provide a strategic forum for people from across the community to come together and have a positive influence on procedural issues across the Service.
- Recommendations from the independent investigation by Her Majesty's Inspectorate of Constabulary and Fire & Rescue Services (HMICFRS) in the wake of the Bobby Storey funeral called for the Service to consider how internal and external specialists, including engagement leads/community representatives and others, can be better included in operational planning as well as recommending that the Service should extend and formalise our community engagement approach and community impact focus in advance of, during and after events and operations. This has been actioned by the Strategic Community Engagement Team with community sentiment being used to inform the development of a regular monthly ‘Strategic Community Impact Assessment’ designed to ensure that police commanders have a broader understanding of community sentiment when planning operations and taking key decisions. The team can discuss this further with community representatives on request.
Local Accountability Pillar
Challenges
- Feedback indicated that a perception of two-tier policing still exists at a local level in some PUL areas, particularly in relation to the approach adopted around parading with some in rural locations reporting that they are either “over or under policed”. However, other attendees highlighted that there has been positive engagement with an appropriate focus at many events around traffic management.
- There was also a perception that the Service conducts a lot of engagement at a local level through social media with officers not always making themselves visible and accessible to the community in a way that promotes confidence.
- Attendees also reported patchy awareness amongst the community around the role of PCSPs and assistance that they can offer in addressing issues at a local level. There was a suggestion that those within local communities should seek to become more involved in their work.
Potential Solutions and Actions
- PCSP recruitment is due to take place in June 2023 with members of the community encouraged to register their interest via [email protected] and providing a name, email address and council area. More information here.
- SCET to plan for the roll out of REaL events at district level in order to consult and involve the views of the community on local issues involving District Commanders and other key personnel which will help to further build relationships and improve local accountability.
- A focus from parade organisers on effective communications with the Events Planning Team in each area to ensure the scale of each event and role for Police is fully understood.
Neighbourhood Policing Pillar
Challenges
- Neighbourhood Policing was recognised as being vital to the community with a range
of positive initiatives highlighted by attendees. The turnover of staff was noted as
making relationship building challenging at times and there was an emphasis put on
the fact that good neighbourhood policing can be personality driven by individual
officers. However, lack of knowledge around contacts for the relevant District and
Neighbourhood Teams was not specifically raised by attendees. - A “fractured relationship” between the Police and the community in the Ballybeen
Estate in Dundonald was specifically referenced with a particular focus on the lack of
notice provided to representatives around searches or enquiries being conducted.
Concerns were also expressed that Neighbourhood Police need to be better
equipped to have the confidence to give information to the community as some can
be hesitant around engaging on issues.
Potential Solutions and Actions
- The difficult budgetary situation facing the organisation presents challenges in terms of developing further specific training in the short to medium term. However, the eight Neighbourhood Policing Hallmarks launched in 2022 also provide a benchmark for consistent service delivery across NI. A new Neighbourhood Policing Faculty is also in development through the Police College at Garnerville to be launched later in 2023 which will place an enhanced focus on training around this important specialism.
- The Service is continuing to develop a series of ‘Let’s Talk’ Briefings on topical issues aimed at Neighbourhood Officers and Staff to provide them with key messages they can proactively use in discussions with community groups and members of the public.
- Neighbourhood Police should consider using community facilities to host Police clinics in rural areas as these offer an excellent way in which to maintain community contact and ensure local accountability.
Conclusion
The Service welcomes the participation of organisations representing the PUL community and the Northern Ireland Policing Board in the first series of REaL events held by the organisation. The Strategic Community Engagement Team conducted a post-event surveywhich received eleven responses. 100% of respondents rated the Format and Quality of Focus Group/Plenary Sessions as ‘excellent, very good or good’. 27% of respondents indicated that the PUL community finds their current experience of engaging with the Police ‘difficult’ or ‘very difficult’ with 55% describing it as ‘easy’. 00% of respondents described the ‘Here for You’ Engagement Vision Pillars as being relevant to the PUL community and 100% felt that the event was useful for engaging with Police. 100% of respondents stated that they would attend a future REaL event on another topic.
The Strategic Community Engagement Team will endeavour to take forward a number of the points outlined in the potential solutions and actions sections linked to each pillar with further input from the community wherever possible. The team would appreciate any further feedback that participants have on this summary document. We forward to holding another event later in 2023 where organisations will have the opportunity to hold us to account around delivery on these points.