Transforming South African Policing - South African Defence Review No 12, 1993

Transforming South African Policing*

Peter Stevens, Zunaid Moolla and Joe Healy

Peter Stevens is Chief Superintendent in the Metropolitan Police service, London United Kingdom, Head of Community Relations Department at New Scotland Yard and currently a member of the Commonwealth Observer Mission to SA. Zunaid Moolla is Senior Researcher on the Role of the State Project located in the School of Government, University of the Western Cape. Joe Healy is Inspector and Officer in Charge of the International Training Branch, Royal Canadian Mounted Police.

Report of a Multinational Training Panel in Laternal Entry into the South African Police June 1993

Published in South African Defence Review Issue No 12, 1993

INTRODUCTION

We were invited by the Community Law Centre which is based at the University of the Western Cape, to undertake a 'needs analysis' during April and May 1993 to facilitate the development of training in peacekeeping for an election and for rallies and demonstrations that are a feature of the interim stage.

The second part of our brief was to consider ways of integrating persons from the liberation movements and others interested in pursuing a career in the police, into the South African Police (SAP). In addition, given that the existing police organization is likely to continue beyond the elections, consideration was given to the retraining of SAP officers for a new democratic policing system and the need for this to be done in settings that will enjoy public respect and confidence and will encourage the establishment of a new corporate culture.

The long term aim is to transform the SAP into a body that represents the people of South Africa and delivers a policing service that corresponds to public needs. The SAP currently is underrepresented by women at all levels and despite having a majority of black officers, they are located primarily in the lower ranks of the orginisation. At the present time the police lack legitimacy and credibility as an organisation. Police are considered by many to be unprofessional, inefficient in crime prevention and investigation, partisan and too quick to resort to lethal force as the main form of response.

Democratic policing is underpinned by concepts and values which include, inter alia, accountability: a police service open to third party scrutiny and willing to explain actions; consultation: agreeing police priorities with local people, joint identification of problems and problem solving; working in cooperation with other agencies and bodies to maximise use of limited resources; participation in decision-making of a broad cross section of interest groups; fairness and non-discrimination: providing services to all sections of the community; celebrating diversity: not merely tolerating differences; honesty and integrity: willing to learn from mistakes, ethical, upholding civil liberties and human rights, meeting high standards of service.

To ensure that these values become part of the police corporate lifestyle it is necessary for the police to embark on a comprehensive culture change programme that supports the move from a Force to a Service and puts community expectations at the heart of policing. Many European police organisations have embarked on similar culture change programmes.

The culture change process can be accelerated by lateral entry of suitably well trained and qualified individuals into key positions where they will have power and influence within the SAP. A precedent for lateral entry of senior managers already exists in the SAP. Our suggestions will therefore build in part on current recruitment strategies. Most European countries, except the United Kingdom, have some form of lateral entry, usually described as 'direct entry'. This is based on the idea that there are different skills required by different levels within the police organisation and beyond as policy advisors to government. The different levels are Constable, Supervisor, Senior Manager and Policy Maker.

A coordinated strategy of affirmative action will assist in affirming the values so vital for democratic policing and translating these into working practices. Several levels of the SAP will need to be impacted. The entry of a handful of individuals drawn specifically from and of their communities will be powerless to effect the reinforcement of good practices will need to come from managers so that the changes permeate the whole organisation. There are several related advantages which will follow from a strategic approach to lateral entry. It will assist in ensuring that policing is seen as a desirable occupation for all South Africans, thus attracting a broader cross section of applicants than at present with core skills and abilities which are underrepresented in the SAP at present, namely, the ability to speak and communicate in African languages, to engage communities on their own terms, to empathise with those that they serve. It will enable the SAP to enjoy a credible image for the future.

This report concentrates on the immediate need to develop a strategy for lateral entry into the SAP through the identification of training requirements at several key levels within the SAP and the Ministry for Law and Order and proposes an action programme. An election in April 1994 is likely to produce a government of a strikingly different complexion to the existing one. It will have concerns as to the impartiality and reliability of the SAP and will want to place its own people into the organisation. Unless these individuals have an appropriate blend of education, training and experience they will either be marginalised or undermined by the existing organisation.

We are therefore proposing short term and long term options. In the longer term it will be necessary to create courses/training opportunities within South Africa both within police training institutions and universities and encourage the creation of learning environments in which all participate on equal terms. In the short term, it will be necessary to send candidates for training overseas which will be complemented by practical police placements.

SHORTTERM TRAINING PROPOSALS

TRAINING FOR LATERAL ENTRY IN THE SAP

Individuals will require training to prepare them for entry at five key levels within the SAP: Senior Management positions at Headquarters (national and regional); Station Commander; Constables; Criminal Investigation Department and Training.

TTRAINING FOR LATERAL ENTRY INTO CIVIL SERVICE AND GOVERNMENT ADVISORY POSITIONS

In order to ensure the development of good practice, it will be necessary to prepare individuals to provide advice and guidance to the new government on police policy and practice.

PROPOSALS FOR THE IMMEDIATE FUTURE

We recommend that, apart from the group of individuals who will undergo basic police training, all others will pass through a similar process to prepare them for lateral entry either into the SAP or into Government advisory positions. This will probably involve 4 - 6 months and cover the following stages:

Stage One	Briefing and Orientation Module in South Africa. Designing a Personal Learning Contract (may include completion of a project which can be implemented on return)
Stage Two	Training and Education at Educational Institutions Overseas Performance Assessment and Certification
Stage Three	Practical Work Placement/Attachment
Stage Four	Familiarisation to SA (context, law and practice) Assessment against Learning Contract: to what extent learning objectives have been met Performance Review and Accreditation
Stage Five	Developmental Modules Publication of Projects

APPLICATION OF THIS FORMULA TO THE VARIOUS LEVELS

Policy Makers and Advisers

In order to qualify for the scheme, candidates will have to possess sound qualifications from a recognised academic institution and, preferably, have either experience of or qualifications in public administration and/or the civil service.

Following the briefing and orientation module which will involve the agreement and definition of learning objectives including a project to be undertaken for implementation on return, candidates will be sent overseas to either a civil service college or establishment which offers strategic management within a police context. They will then be expected to undertake a placement within one of the relevant ministries, for example, the Police Department of the Home Office and/or national or regional Police Headquarters or Police Authorities. Depending on what is available and appropriate, candidates may revisit the educational establishment for a debriefing prior to returning to South Africa for their familiarisation module and performance assessment. It is anticipated that the overseas institutions will offer accreditation provided that the candidates reach the desired standards and competence. Local accreditation will also be provided.

Senior Managers at Headquarters Branches within the SAP

In order to qualify for the scheme, individuals will have to possess matriculation and experience of holding a senior management position and/or qualifications in management.

Following the orientation module during which time candidates will devise their own personal learning contract and agree to a specific project for implementation on their return, they will attend a police or business college to enhance their skills in strategic management and policy development (including human resource planning and development, quality of service initiatives, managing change and financial management). They will then be attached to either national or regional police headquarters and then revisit their training or return to South Africa for the familiarisation module and debriefing. It is anticipated that the overseas college will provide accreditation and if candidates meet the requirements of their learning contract and reach the required standards, they will be awarded a certificate of competence by the South African institution.

Station Commanders

These candidates will need to have operational police experience as a prerequisite for joining the scheme.

As above, after the orientation module, candidates will be sent to police training establishments where they will undergo first a period of training with peers from the host country (for example, attendance at an inspector's development programme). This will be followed by an attachment to a police division where they will gain first hand experience of modern operational policing and the importance of working together with their local communities. They will then return to South Africa for familiarisation and further modules to enhance their skills and competencies and provided that they meet the standards agreed in the learning contract, they will be awarded a certificate of competence in addition to whatever accreditation they received whilst overseas.

Constables

Entrants to police basic training will need to possess Standard Eight or the equivalent qualification. Attendance and completion of the Marshal Training would be advantageous to candidates who wish to join the basic training which is designed for accelerated promotion to warrant officer.

Our approach to the provision of this training deviates from the above module. We recommend that candidates attend the basic training at the police training school in Namibia. On return, they will then undergo a familiarisation to the South African context and learn South African law, practice and procedures.

Criminal Investigation Training

In order to qualify for this scheme, candidates will need to have some basic knowledge of criminal investigations systems.

We recommend that the training of Criminal Investigation Officers follows the standard formula we have devised, namely, that candidates attend an orientation module and agree specific learning objectives. They then participate in training at police colleges and establishments overseas. This training should focus on ethical dimensions to gathering intelligence and ethical investigations. It will be necessary to ensure that the different positions are catered for by the training, for example, training for basic intelligence officers in how to combat organised crime; counter intelligence; surveillance techniques (intrusive and extrusive); criminalistics and forensic science; computer technology in the investigation of serious crime. Following the training candidates again would be attached to the relevant police departments to consider how theory is translated into practice. They will then return to South Africa and update themselves on South African law, practice and procedures and debrief on how far they have met their learning objectives. A certificate of competence will be granted if the requisite standards have been attained.

Police Trainers

It would be desirable for candidates to possess training qualifications and/or basic grounding in human rights, civil liberties and the criminal justice system and/or policing

Following our model, we recommend that trainers attend training for trainers provided by the police colleges overseas or appropriate educational establishments offering relevant diplomas in police science and criminal justice. This international exposure to good practice is important in order to build in house South African capacity in the longer term. A mix of training is particularly desirable in relation to trainers to enhance their competence and confidence to communicate effectively. Key areas for prospective trainers include curriculum design, evaluation of training effectiveness, role play and case study development, staff development.

PROGRAMME FOR THE LONGER TERM

In the longer term to ensure effective integration of new lateral entrants and existing SAP officers, it would be desirable for both groups to participate on the lateral entry programme as a joint venture. This approach would be beneficial in that it would begin to develop a shared understanding of the issues and build links in constructive environments which would be sustained on their return to work.

What is also envisaged in the longer term is the creation of an in-house training facility for policing outside of existing police training establishments to ensure impartiality, international and local cross fertilisation and exchanges of views and experiences and the development of quality policy papers to advise those in policy making positions in the new government.

ACTION PROGRAMME

Short Term	Identify sponsors for overseas study and placement programme. Select candidates for potential lateral entry. Select and Train Local Trainers. Design and pilot orientation and familiarisation modules. Agree methods of accreditation. Consult stakeholders on next steps. Consider developmental modules for future police training needs.
Long Term	Assess feasibility of joint training. Launch training centre. Evaluate training initiatives and review approach.