Resource-allocation models

PASA has concerns about the quantity and distribution of both human and physical resources within SAPOL.

Over the last 10 years have come various attempts to develop and apply a resource-allocation model that provides strategic guidance on the optimum level of human and other resources required for successful policing in South Australia.

PASA has attempted during three rounds of enterprise bargaining to achieve a minimum staffing level model. SAPOL has refused to bargain on this issue and steadfastly refused to introduce a minimum-staffing model.

While the development of an appropriate model for resource allocation in policing might appear to be an insuperable problem, recent methodological innovations suggest that further investigation is warranted.

In 1999, the Premier’s Taskforce examined options available at that time for informing the allocation of resources within SAPOL. It concluded that it had “been unable to find or develop an effective model for assessing police capacity”.

Furthermore, it stated that: “The determination of police strength is, in the final analysis, a product of value judgements rather than scientific decision-making”.

While value judgements undoubtedly play an important role in resource allocation and should continue to do so, they should be made in light of all the information and knowledge potentially available. This is consistent with the intelligence gathering principles embodied in the intelligence-led policing (ILP) model and strategic problem-solving.

While the Premier’s Taskforce was not able to identify an appropriate resource-allocation model to recommend, it clearly identified deficiencies in the existing system of resource allocation that led to understaffing of LSAs. This indicated that the existing approach to resource allocation did not adequately take account of:

• The impact upon staffing levels of special events.
• The secondment of staff to projects.
• Difficulties in backfilling police on long-term absences, particularly as a result of the incorporation of relieving staff into establishment at a local level.
• The increasing complexity of administrative functions required of police.
• Outdated computer equipment.

Difficulties in backfilling police on both short- and long-term absences have not been adequately addressed and continue to affect the efficiency and effectiveness of SAPOL. PASA is concerned that the current staff relieving system, consisting of 40 officers attached to Northern and Southern operations is inadequate and ineffective.

Extra officers should be permanently placed in each country LSA to provide effective and efficient use of staffing resources for relief purposes. Further, it is axiomatic that the existence of sufficiently resourced relieving pools has significant advantages for backfilling absences across SAPOL. It is essential that an appropriate relieving system be preserved to ensure the maintenance of service standards to the community.

While the Taskforce stated it was not able to recommend a resource-allocation model and suggested that value judgements may be the best method available for resource allocation, it went to significant lengths to develop and apply a resource-allocation model to allocate the additional resources it stated were required in LSAs. The Taskforce identified and applied the criteria below for resource allocation:

• Numbers of reported crime in selected offence groups, that is, vehicle collisions, offences against persons, offences against public order and property offences.
• Number of category A, B and C patrol taskings.
• Number of police apprehensions.
• Number of high-risk incidents.
• Number of neighbourhood, rural and school watch programmes.
• Number of undelivered warrants.
• Number of expiation notices issued.
• Number of resources required for special events.

A wide range of demographic and other data was also utilized, including:

• Total population.
• Number of persons aged from 15 to 34.
• Number of persons unemployed.
• Number of low-income households.
• Number of people in public housing.
• Number of school-leavers under 15.
• Number of people from non-English speaking backgrounds.
• Number of patrol stations per LSA.

These factors were “reduced to an aggregate percentage and applied to the number of personnel distributed across LSAs”. As a result of this resource-allocation process, the Taskforce identified six LSAs as priorities for additional resources.

The work undertaken by the Taskforce, combined with more recent innovations in resource allocation within policing, suggest that it is realistic to develop an appropriate model to help guide resource allocation within SAPOL. PASA accepts that such a model should be used in conjunction with judgements based on experience and knowledge of local circumstances and needs.

PASA, in its submission to the Select Committee of the Legislative Council on the Staffing, Resourcing and Efficiency of South Australia Police, drew the attention of the committee to recent research undertaken on resource allocation in policing by the National Institute for Economic and Industry Research (NIEIR) for the Police Association (Victoria).

The NIEIR has identified a range of drivers of demand for police services in the context of the Victoria Police business plan. The NIEIR identified elements of the Commonwealth Grants Commission resource-allocation methodology as having applicability.

This methodology has been used by all states and the Northern Territory for many years to guide resource allocation to local areas. The relevant features of the model include:

• An approach which classifies council outputs, and calculates expenditure need for each output.
• Weighting of outputs according to relative importance which, for local government, is indicated by state-wide expenditure patterns.
• Reliance on objectively measured indicators which are not under the control or influence of the recipient councils to determine need for expenditure in any area.
• A double-barrelled approach, by which primary drivers of expenditure are recognized for each area, but the crude distributions of need resulting from these factors are modified by “disability factors” which summarize the influences working at the local level.

Drawing on these features, the NIEIR developed a resource-allocation model utilizing a range of data sources and addressing each of the outputs in the Victoria Police business plan. This has produced a valuable resource-allocation decision support tool worthy of consideration in the South Australian context.

Numerous examples exist within SAPOL that support the absolute need for a resource-allocation model. To illustrate the point, a case study of the South Coast LSA Criminal Investigation Branch is informative.

Between June 3 and 16, 2003, the establishment figure of this area was 83 positions. Of that 83, 44 employees were available for duty, representing only 53 per cent. The 39 employees absent from this workplace were:

• Seven employees to SAPOL corporate secondments, including Operation Chart, Operation Avatar, Operation Counteract, DNA Project, Child Exploitation Unit.
• Four employees attending SAPOL Corporate training courses, including the Communications Course, Child Abuse Investigators Course and the Senior Sergeants Development Course.
• Two employees seconded externally from the South Coast LSA to Southern Operations intelligence co-ordinator role and Dog Operations Unit.
• Four employees seconded internally within the South Coast LSA to Prosecution, Kangaroo Island and Intelligence section.
• Four employees assigned to other duties within the South Coast CIB, including Crime Management Unit and Child and Family Investigation Unit.
• Seven establishment vacancies yet to be filled.
• Eleven employees absent on leave, including annual leave, long-service leave and maternity leave.

This situation repeated between 17 and 30 June, 2003, with only 59 per cent of strength available; between July 1 and 12, 2003, with only 60 per cent of strength available; and between July 13 and August 3, 2003, when only 66 per cent of strength was available.

This situation is not unique to the South Coast CIB. It occurs in many operational workplaces in SAPOL, especially general-duty patrols. Port Adelaide, Elizabeth and Adelaide LSAs, as well as West Coast and Barossa Yorke LSAs, have reported to PASA over many years the inability of SAPOL to backfill absent staff.

The problems manifest and result in members being overworked, frustrated and at risk. Inadequate staffing is an occupational health and safety issue not given appropriate recognition by SAPOL. The NSW Industrial Relations Commission has recognized that inadequate staffing levels are an OHS&W hazard.¹

The reality of the present situation in SAPOL is that there are too few police to perform the myriad of tasks required of them in an ILP model. PASA suggested to the Select Committee that it should request SAPOL to provide a list of staff allocated to each work location, function and unit in SAPOL and conduct an audit against that list as to where employees are actually assigned and what duties they are performing.

For example, if the Parks police station general patrol base has as an establishment figure of 45 staff, are all of those 45 employees working in those patrol duties, or are a number assigned to other duties, effectively reducing the human resources available for the patrol function?

¹ Refer Maurice Michael O’Sullivan v The Crown in the Right of the State of NSW (Department of Education and Training) [2003] NSWIRComm 74 (31 March 2003)

markcarroll@pasa.asn.au

Impending delegates’ conference

Despite obstructionism by police authorities, PASA held its first annual conference in December 1923. A total of eight executive members and delegates attended the meeting in their own time, and at their own expense.

They discussed night work, Sundays off, pay, pensions, increasing annual leave from 21 to 28 days, and saluting. Other agenda items included consideration of revision of the association rules, and discussion on matters that might improve the police service generally.

Before the mid-1923 decision to hold that first symposium of delegates from each subdivision, PASA had operated almost exclusively by means of general meetings. And, owing to circumstances, metropolitan members – and the odd country member on annual leave – were often the only ones who could attend them.

Since those days, PASA delegates have continued to meet at annual conferences to discuss issues that affect their colleagues.

The conference itself, now an 80-year tradition, has evolved into an outstanding professional avenue through which PASA provides both worthy and realistic outcomes for its members.

That tradition will carry on in October, when delegates gather for two days in Fenwick Hall to make representations on your behalf.

In the lead-up to this year’s conference, 60 delegates from across the state will attend their branch meetings to discuss issues pertinent to members in their workgroups. Some of those issues will transform into motions to be moved at the conference. The PASA committee of management will act on those that are passed.

The conference agenda

A number of invited guests, including interstate and overseas police unionists, sought-after speakers, and politicians always attend the conference.

Country and interstate delegates generally begin a process networking at the Police Club on the last evening before the conference. Valuable contacts are soon forged from this interaction.

PASA’s committee of management and staff also make use of this informal time to welcome attendees before the two days of intensive discussions and information sessions.

Day one

The conference begins at 8:30am as the delegates and guests arrive at Fenwick Hall. PASA provides them with a detailed annual conference agenda, which includes:

• Delegates list.
• Committee and staff.
• Interstate and overseas visitors.
• General housekeeping and rules of debate.
• President’s report.
• Secretary’s report.
• Industrial report.
• Delegates report.
• Business session (branch motions put to conference).
• Previous year’s annual conference minutes.

Attendees also receive the Police Association of South Australia Annual Report, which includes:

• President’s report.
• Independent auditor’s report.
• Statement of executive committee.
• Profit and loss account.
• Balance sheet.
• Notes to and forming part of the financial statements.

At 9am on the first day, the PASA president addresses the conference, before the official opening and speakers’ addresses.

Lunch follows at the Police Club ahead of the afternoon’s business sessions, at which the branches’ motions are put to the conference and debated.

The Police Club, PASA and the PFA (SA branch) annual general meetings are held in the late afternoon. Day one’s business concludes at 5:15pm.

Conference dinner

At 7pm, delegates and guests enjoy the annual conference dinner at the Police Club, the only one of its kind left in Australia. After guests are welcomed, the networking continues.

Branch delegates discuss the ways in which they have resolved workplace issues, and how they might best serve as a point of contact for members who encounter problems.

Day two

The conference continues in Fenwick Hall at 10am, when the previous year’s minutes are confirmed. Oral reports are presented by the president, secretary and assistant secretaries.

Further business sessions and presentations take place until the conference closes at 5pm. In the ensuing days, the committee of management and staff meet to discuss the work with which they must deal, as a result of issues raised at the conference.

Delegates

A list of delegates appears on page 2 of each issue of the Police Journal should you wish to make contact.

• PASA’s 2004 Annual Delegates’ Conference will be held on Tuesday and Wednesday October 19 and 20.

thomasscheffler@pasa.asn.au