NUMBER OF PCSOs INITIALLY ALLOCATED 6
NUMBER OF PCSOS INTERVIEWED 5
REGULARS INTERVIEWED 7
COUNCIL STAFF INTERVIEWED 8
RESIDENTS/TRADERS INTERVIEWED 1
Documentation supplied
- NSO Sergeant’s summary of PCSOs’ and NSOs’ progress towards divisional and
force objectives – May 2003.
- Copy of NSO 12-month Performance Contract
- NSO Sergeant summary of PCSO supervised patrol
- Recorded crime figures for Sheerwater, provided by local PCSO and NSO.
Woking covers an area of 25 square miles. Population growth between the Census periods 1991-2000 was estimated at 7.7%, one of the fastest growth rates for the county. The borough is prosperous, with a healthy economy (the employment rate is 68%) and good transport links to London (the rail station is the busiest in Surrey). House prices are high, but pockets of deprivation exist. Two of the borough’s wards are among the three most deprived in the county. The Jarman Index identifies these two wards as having the highest healthcare needs in Surrey. One of these wards also has the county’s largest ethnic minority population.
Initial thoughts and expectations before PCSO arrival
It seemed to be well understood by regulars in Woking that the incoming PCSOs would have limited powers. This was not seen as a drawback, largely because, as the comments below demonstrate, it was considered an opportunity to attend to matters that NSOs rarely had the time to attend to, or else did not require their involvement.
“I thought it would be a good thing, simply because a lot of the things the public approach me about aren’t police matters, but I thought it would be a good thing in a minor way. The difference between satisfied and unsatisfied customers is giving them what they want. This is a busy crime area and I have my own agenda [of things to do]. So I was giving a lot less satisfaction on the non-crime matters. Being seen, speaking at meetings, committees and schools – that was reassurance – but they are big jobs and it was difficult. So I felt if someone else could handle some of the other stuff…”
[NSO]
“I expected PCSOs to deal with low-level problems – graffiti, kids being anti-social, reporting abandoned vehicles. Taking some of that away from us so we could deal
with the high level stuff.” [NSO]
“I knew they’d have less powers, but would do a lot of reassurance, community-based work, and hopefully good liaison with ourselves. The usual suspects are abandoned vehicles, graffiti, nuisance, and young people hanging around on street corners.”
[Council staff]]
From the point of view of deterrence, one NSO also suggested that another uniformed presence with the Surrey Police crest on could only represent an improvement.
Bearing in mind the expectation that the role would involve developing a dialogue with potential uncooperative people, one of the PCSOs had not expected that a uniform would be required. That apart, her expectations at the outset were in line with the subsequent reality. Tenancy Support Officers (TSOs) at Woking Borough Council had dffferent expectations, based on their recollection of how much information had been provided to them about the role beforehand. It was believed that PCSOs would take on some of the traditional ‘bobby on the beat’ tasks; befriend and work with youths; act as a visible presence; and share
information with TSOs. Some saw the role as very close to that of the CSW.
Knowledge of area beforehand
The two PCSOs who were asked were happy that theye had beebn given sufficient notice about where they would be posted before the job began.
Involvement in initial bid to Chief Constable
One of the council interviewees explained that the initial bid to the Chief Constable was for seven PCSOs. This was done by herself with the Borough Inspector. Decisions about where to locate PCSOs were based on available documentation, the community safety projects that
were already running or planned, and, for good working practices, alignment with NSOs. They did not overbid, she added, but applied for what was thought realistic.
Knowledge of area beforehand
One of the PCSOs commented that she had no knowledge of the area she was assigned to, but was informed that she would be based there one week before initial training began, which was content with.
Explanation of powers beforehand
There was a general belief among regulars and PCSOs that the powers had been explained adequately before PCSOs arrived in Woking. One of the PCSOs had found that NSOs, and those from TPT and other non-community-oriented units were aware of what he could and could not do. The only interviewee who did not feel the role had been explained to him was the NSO Sergeant, though he added that at the time when this might have been done, he had no expectation that he’d be in his current post. In any case, he had considered it clear from the point at which he started what PCSOs’ role and powers were.
TSOs reported that there had been no group meeting to outline the powers available. Instead, TSOs had learned the powers in a more ad hoc manner after the PCSOs had begun work, often relying on pre-existing relations with an NSO as a source of knowledge. Most seemed philosophical about this, though one was more critical, saying that
“even though we met them, they were unclear. We didn’t know what autonomy they have on their areas, whereas they’d know we’d manage cases from the cradle to the grave.”
Initial training
PCSOs were, on the whole, satisfied with the initial three weeks training. One would have preferred more input at that stage on the workings of the local authority, as it soon became apparent to him that at least half his work would involve collaboration with them.
CIS access was available post-training on a read-only basis. The NSO Sergeant considered its initial absence to be a major drawback, for two reasons:
“I task them each month to provide me with a nominal target – someone who’s
committed crime or caused problems on their area. That requires research on activities, associates, vehicles used – the best way to do that is by CIS. Also I task all of them with follow-up work after a report of a burglary on their area. That involves contacting local Neighbourhood Watch, conducting crime prevention surveys, which the NSOs were trained to do by my predecessor. I’m considering getting PCSOs trained in this. They will contact websites relevant to the neighbourhood, can go to the crime report and on the investigation section record what they’ve done so the investigating officer can see who did what. If they can do the CIS they won’t have to ask the NSO to update it for them.”
Conflict training and vulnerability
Two regulars felt there was a need for PCSOs to receive training in self-defence. They both stressed that only a certain level of ability was required:
“Not to the degree that they’ll go haring down the street after people, but there have been a couple of occasions when PCSOs on patrol have been confronted by violent individuals. They only came away ok because of their gift of the gab. Needs some basic self-defence – ‘hands on, get back’. Can see why it was not addressed in three weeks – new role, there’s going to be trial and error, things we haven’t thought of. You’d spend all your time planning and less implementing.”
“There are two kinds of conflict. One – we impose it on a member of the public. Two – the member of the public starts it off. Because of the second case, they should have some kind of training on how to break someone’s hold on you long enough to use your radio or alarm.”
Two NSOs felt that the need for conflict management training was greater for PCSOs working in the town centre – one even considered it a “desperate” requirement. One
remarked that even if back-up was quick to arrive, “being on your own even for two minutes is a long time.”
One of the PCSOs argued that although she had been happy enough to receive conflict
management training, she was confident that using her radio would result in the timely arrival of back-up. She had never felt vulnerable, but one of her colleagues did not share these views. She believed that impracticalities of the uniform contributed to this.
“I absolutely hate going out after dark. I feel very intimidated. At night I feel threatened by people who aren’t a problem during the day. It might be that Surrey Police need to give us some gas (not an ASP). Our uniforms are not user-friendly. Big bulky three-quarter length fluoro – one size only – no good in summer and your belt with your radio on is underneath it. And we are told to get straight on radio if we’re in trouble - state zero. Police officers’ jackets have pockets at the side which you can reach through. Two seconds and you’re in.”
One council employee commented that feelings of vulnerability were understandable, although another felt that this was not inevitable. He pointed to the PCSO he had worked with as an example, saying that she had “a fantastic relationship even with the residents that you think are a bit dodgy.”
Further training
In addition to conflict management training and CIS use, PCSOs had received subsequent tuition in operating, and training, others to operate the mobile CCTV van; a five-day course on diversity at HQ; a course on behaviour in the workplace course; and SPIKE training. Training had also taken place on ASBOs, jointly for PCSOs, magistrates, the CPS and members of YOTs. TSOs did not report that they were involved in this, although one said he would not have expected joint training with PCSOs as a matter of course.
Arrival and integration
PCSOs were content that they had been fully integrated into the Neighbourhood Specialist Team. Suspicion that the role represented ‘policing on the cheap’ had been kept to a minimum, reported the NSO Sergeant. One NSO reportedly had voiced concerns, but now saw the full benefits and “would not be without his PCSO”. Another said that he had felt no negativity, and heard none from anyone else, which he took as a good sign as “police officers are the first people to moan when they’ve got something to moan about”. He surmised that certain police officers would make an effort to understand and support the role, while others would not think they needed to know about it.
PCSOs were also happy that they had been allowed the chance to hold their own PCSO meetings every two months, in the presence of the NSO Sergeant. One felt the local set-up was “very forward-thinking”, which had made for a smooth accommodation of the new role. One of the NSOs described her strategy for familiarising her PCSO with her area:
“She could’ve gone alone a lot sooner than she did. At first we were constantly together – then I’d do the same shift but different streets. To be fair they need at least a month. I had to be satisfied that [the PCSO] could recognise someone dangerous at sight. As civilians [PCSOs] are very trusting – so if someone smiles and is nice, they think they are nice. To keep safe they need to know that what you see in front of you isn’t necessarily what you’ve got in front of you. She’s very bubbly and lively and gets to know people very quickly. I’ve found she’s taken a lot of the strain off, and I find I’m happier in my job. She is more than capable and now I wouldn’t swap her for anything.”
The council’s Community Safety Co-ordinator explained the procedure for dovetailing PCSO work with that of the authority:
“When [PCSOs] first came in, training sessions were held here in February. We had one whole day multi-agency. I gave one of the presentations. Someone from Woking [borough council] environmental health also presented, mainly on licensing,
Pubwatch, late night entertainment etc – but also general noise nuisance, bonfires. All NSOs and PCSOs were invited. I did the press and the PR on the same day too. They were also given information to take away on contacts. Since then, I’ve been to PCPG meetings – which they’ve attended. All information exchange is done under an information sharing protocol. The NSOs have developed good relationships with our local TSOs (ie Housing Officers). TSO patches don’t match NSOs’ exactly, but there is a good connection. Because of this they’ve been able to pass that onto PCSOs, who have really just piggy-backed on that. Therefore they have naturally come to know who their local TSO is. There are joint visits to tenants where problems have been reported.”
One TSO felt that the NSO and PCSO he had dealt with worked “fantastically well together”. Two others speculated that the NSO teams, if not other sections of the police, would welcome PCSOs’ assistance. One of these, however, added that although efforts had been made when PCSOs arrived, more could be done to integrate TSOs with police in a wider sense.
“I should imagine…a police officer who is saved doing a lot of dross by somebody else would be grateful. PCSOs cam here, and there was a general introductory chat on
each others’ role, soon after they were in post. There were no negatives. I think we appreciated being asked at the beginning. But we’re hazy on how the police work – only a few of us are aware of that through working with them on certain issues. We do get lists of local officers, changes in personnel, but we’ve always argued, ‘Where’s the family tree?’ We have had the same trouble with social services.”
Activities and deployment
Issues in Woking which it was felt appropriate for PCSOs to address included: graffiti; youths hanging around; underage drinking; litter; anti-social behaviour; inconsiderate riding of motor scooters; vandalism; dealing with victims in the aftermath of a crime; seasonal concerns, such as the throwing of eggs and flour at people’s property by youths at Halloween; and offering crime prevention advice.
Initiatives in which PCSOs had been or would be involved in order to address these problems included:
Foot patrol
Liaison with representatives of other agencies
Making the acquaintance of local residents
Helping to establish and increase membership of NW schemes
Implementation of a drinking ban in certain streets
Participation in a sponsored walk to raise money for a community action group’s
summer fair
Tree planting to increase the attractiveness of the environment
Distribution of letters to shops and supermarkets advising against the sale to youths of food stuffs which might be used to cause criminal damage
Obtaining a grant for the refurbishment of a vacant shop, and transforming this into a
multi-purpose community facility
Reassurance visits to victims and other residents offering advice on new lighting and
increased privacy
Interviewed three months in, the NSO Sergeant was clear that a principal goal of PCSOs was to reassure by addressing anti-social behaviour, and that the job was not merely about
visibility. One of the PCSOs agreed, saying that “a lot of this job is reassurance – talk, talk, talk”. The NSO Sergeant was anxious that taskings be in line with divisional priorities. After nine months, however, he had started to feel that other personnel needed a greater
appreciation of PCSOs’ brief.
“Lately PCSOs and NSOs have been given a lot more jobs from our Tasking and Co- ordinating Unit. That needs to be addressed. The TCU have jobs outstanding, they don’t know who to send them to. I’ve been intervening and saying these aren’t within the team’s remit, but a lot are still slipping through the net…We’re still defining exactly what their responsibilities are.”
Several TSOs had noticed differences since PCSOs had begun work, in terms of
increased uniformed physical presence; resurrecting NW schemes;
greater environmental activity in the form of clean-up days – especially in the borough’s reassurance site;
more on-street discussion with residents, resulting in a greater likelihood that tenants would be listened, given advice, and consequently report incidents;
more efficency around notification of abandoned vehicles;
an increased possibility that evidence would be effectively gathered which the TSO
could subsequently use if taking a tenant to court.
One TSO firmly believed that, in tandem with the police and with an increase in the number of security guards, PCSOs had played a large part in the improvements in the area for which he was responsible. One agreed that the impact had exceeded his expectations, partly his views at the outset had not been accurate. He had also been struck by the variety of work they had become involved in.
“I’ve been pleasantly surprised by the PCSOs’ ability to work in a more police- oriented role. I expected them to be like CSWs, and where I live [outside of Surrey] I’ve been a little bit disenchanted that wardens haven’t been able to have that impact. I know two PCSOs – have regular contact. One does a lot of community engagement – establishing residents’ association while I try to feed in tenancy participation initiatives. We are trying to get the residents’ group to also function as a NW group – sustains residents’ interest as crime, disorder, anti-social behaviour gives them something to get their teeth into. With the other PCSO we’ve done more practical stuff – lots of joint visits with the NSO also, to the two parties in an almost intractable neighbour dispute.”
Some TSOs had had less to do with PCSOs. One had had not contact at all, although this reflected the fact that her post was part-time and focused on a gypsy site where no PCSOs worked. She believed however that some presence would be useful, and that a PCSO would be just as appropriate a way of achieving this as a police officer. Prospective involvement in ASBOs was welcomed by TSOs, as “they’re as well-placed as anybody to know who the troublemakers are”.
Sufficiency of powers
On the whole, PCSOs were happy with the powers they held. One felt that some grey areas had existed, but these had now been cleared up to his satisfaction. Another was broadly happy, but said she would like to be able to stop vehicles in m ore circumstances than she was currently able to.
The council’s Community Safety Co-ordinator felt that the powers were sufficient for what PCSOs were being asked to do. One NSO, however, felt that, although PCSOs would find it easier than NSOs to find the time to carry out this work, PCSOs were limited in what they were able to achieve,
“…and I think that needs to change. The main thing the public want is someone to