“Policing Change – systems thinking
for managing cultural change”
Learning from Avon and Somerset
Constabulary
Louise Hutchison – ‘People Lead’ –
Reshaping our Operating Model
programme
WHAT I CAN SHARE WITH YOU
•
•
•
•
•
A little about the Constabulary
Why we needed to change
How we have gone about it
What challenges we have faced
What we have learned about ourselves
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AVON AND SOMERSET
llllllllllllllllllllllllllllllllllllllllllllllllllllllllllllll
SOUTH
GLOUCESTERSHIRE
BRISTOL
NORTH
SOMERSET
BATH &
NORTH EAST
SOMERSET
O
SOMERSET WEST
SOMERSET EAST
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AVON AND SOMERSET CONSTABULARY
POLICE OFFICERS
2754
POLICE SUPPORT STAFF
2179
SOUTHWEST ONE SECONDEES
281
SPECIAL CONSTABULARY
523
POLICE SUPPORT VOLUNTEERS
251
POLICE CADETS
236
OUR PEOPLE TOTAL
6158
WWWWWWW
WWWWWWW
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WHY WE NEEDED TO CHANGE
The Constabulary had not
undertaken a review of its
Operating Model for a
number of years
The policing landscape
and the nature of police
business is changing
Spending Review savings
had been implemented in
silos resulting in inefficient
processes
Future savings
requirements will
be substantial
The government is
driving collaboration
between forces, partner
organisations in the
public sector and private
sector partnerships with
business
Hillsborough and
Leveson
enquiries have
knocked public
confidence in
policing
With the arrival of a new Chief
Constable and PCC, a renewed focus
was placed upon public service,
transparency, professional standards
and quality
Inconsistencies in
ways of working
was leading to
pockets of best
practice existing in
isolation and an
unequal level of
service
5
THE ‘AUSTERITY’ CHALLENGE
Where we have come from?
Total cost increased
by £23.2m
(7.8% cash increase)
Total funding reduced by £22.7m
(7.6% cash reduction)
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£45.9m
Savings
(15.4%
real cut)
THE ‘AUSTERITY’ CHALLENGE
What does the future hold?
Total cost increased
by £23.2m (7.8%
Total
cost increased
cash increase)
by £48.7m (16.3%
cash
increase)
Total funding
reduced
by
£22.7m (7.6% cash reduction)
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£80.7m
Savings
(27.0%
real cut)
RESHAPING OUR OPERATING MODEL
£8 million
Savings
FIT FOR THE FUTURE
Geographic
restructure
2014/15
6 areas to 3
Major
estate
rationalisation
programme
New
technologies
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WHAT
S SYSTEMS THINKING?
Concept
“A system is a whole that
cannot be divided into
independent parts without
loss of its essential
properties or functions”
Russell Ackoff
“System thinking is a discipline for seeing
wholes…..A framework for seeing
interrelationships rather than things, for
seeing patterns of change rather than
static snapshots.”
Peter Senge
“When the performances of the parts of a system,
considered separately, are improved, the performance
of the whole may not be (and usually is not) improved.”
Russell Ackoff
9
HOW GOOD WERE WE AT DELIVERING IT?
Systems Thinking:
Six stages of Check
PURPOSE
MANAGERS’
THINKING
DEMAND
SYSTEM
CONDITIONS
CAPABILITY
FLOW
We looked for evidence…
SIX STAGES OFCheck
CHECK
CHECK
ONE
1
Purpose
• What is the purpose from the customers’ point
of view?
• An outside-in view, not an inside-out view
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OUR STARTING POINT? OUR PURPOSE
WHAT THE PUBLIC
CAN EXPECT FROM US
THE PUBLIC TOLD
US WHAT MATTERS
We will respond to your requests for
service in the right way
You will have access to Avon &
Somerset
police services 24 hours a day, 365
days a year
We will treat you professionally,
with fairness and respect
We will listen to ensure we tackle
issues that matter most to you
We will endeavour to prevent crime and
protect you from criminals
We will keep you informed
and updated
Be there when I need you
Be visible and accessible to me
and my community
Treat me fairly and with respect
Tackle the issues that matter most
and keep me safe
Keep me informed and do what
you say you are going to do
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SIX STAGES OFCheck
CHECK
CHECK
TWO
2
Demand
• What are the types, frequencies, predictabilities of customer
demand?
• What is value or true demand – aligned with purpose?
• What is failure demand – demand caused by a failure to do
something or do something right for the customer?
• Managers need to “go and see” where the organisation
transacts with the customer – they need a thorough
understanding of demand
• Customers – why do they call, what do they want, what
represents value to them?
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SIX STAGES OF Check
CHECK3 - CHECK THREE
Capability
• How well does the system respond to customer demand?
• What’s the purpose of the system and the critical
measure?
• The measure will almost always be an end-to-end
measure from the customers perspective.
• What managers are likely to find is that the current
organisational measures are unrelated to customer purpose
and critical measure – they provide a different and
misleading picture.
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HOW DID WE MEASURE UP?
THIS IS THE
EVIDENCE WE
FOUND. WASTE,
INEFFICIENCY AND
INCONSISTENCY
AND OUR PEOPLE
NOT THERE WHEN
THE PUBLIC NEEDS
THEM MOST.
JJ
WE NEED TO ALIGN OUR
FRONTLINE RESOURCES
TO BE AVAILABLE AS
ANDWHEN DEMAND
INCREASES
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SIX STAGES OFCheck
CHECK
CHECK
FOUR
4
Flow
•An understanding of purpose and demand is required before
considering flow
• Flow value demand through the system; not failure demand
• Manufacturing : flow object
Service
: flow value
• Flow needs to be mapped - understanding demand enables
development of performance measures that support purpose
• Follow the work – repeatedly through the process – only two
things will be happening: value for the customer and waste
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WE DESIGNED END TO END
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SIX STAGES OFCheck
CHECK
CHECK
FOUR
5
SYSTEM
CONDITIONS
•What causes the system to behave in the way it does?
 Structure
 Process
 Measures
 People
 Information
• What is creating failure or waste in the system?
• System conditions will need to change to sustain improving
the process.
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SIX STAGES OF
CHECK
CHECK
SIX
Check 6
MANAGEMENT
THINKING
•Command and Control versus Systems Thinking
• Meeting targets or meeting purpose?
• Managing people and budgets or managing the system?
• Controlling or learning?
• Information>>knowledge>>learning>>improvement
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SO WHAT DID WE DO?
1. PROCESS
4. CULTURE
2. PEOPLE
3. SYSTEMS
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SYSTEMS THINKING AND CULTURE
“A
bad system, will
defeat a good person,
every time.” Deming
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WHAT DID OUR PEOPLE TELL US?
We travelled the length and
breadth of the constabulary,
asking for help to invent
what the future looks like.
588
49
HOURS
STATIONS
2088
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OFFICERS
AND STAFF MARKEDBRIEFINGS
SUGGESTION
CARDS
AND OUR PEOPLE MANAGEMENT?
WE ARE NOT
OPERATING AS ONE
TEAM.
WE WORK IN SILOS
WE COMPETE
RATHER THAN
COLLABORATE
WE DON’T FEEL
SUPPORTED BY OUR
SENIOR LEADERS
STOP MICRO MANAGING
US. JUST TRUST US.
WE DON’T HAVE
THE RIGHT SKILLS
TO DO THE JOB
FRONT LINE OFFICERS
WITH 6-10 YEARS SERVICE
ARE THE MOST
DISENGAGED
WE ARE AN OVERMANAGED, UNDERLED ORGANISATION.
WE ALSO GOT THE EXPERTS INVOLVED
We have sought every possible
opportunity to engage with people
in the development of our
operating model, involving the
public, stakeholders, subject
matter experts, professional
leads, partners and the
constabulary at large.
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Culture – What needs fixing?
“To change our culture,
first we need to change our systems”.
IMPLEMENT SYSTEMS THINKING :- Variation is in the work, not in the
workforce. Working on people only tackles 5% working on the system tackles
the other 95%. When you change the system, the behaviour changes.
‘Study the work, study the causes of variation, what are the causes; the system
is 95% of the answer. Take the big ones and then go to work on changing them,
you will then see dramatic improvements. When you derive your measures from
the purpose of the service from the customers point of view, and put those
measures in the hands of the people doing the work, you liberate method.
Innovation occurs, we are bringing the brain to work, we are using ingenuity;
not to survive in the system, but to be engaged and understanding how to
improve their work. When you design systems this way people actually work
harder and they are less stressed! ‘
John Seddon
PEOPLE HAVE REACTED IN DIFFERENT WAYS
“I FEEL I AM BEING
PERSECUTED BY YOUR
MISCALCULATIONS.”
“I like the current shift
pattern and don't feel
there is an issue with it.
Also I strongly object to
doing a 9am start as I
feel it involves a longer
commute in rush hour”
This is a ridiculous plan that anyone
with any forethought would see will
lead to a huge rise in sickness,
conflict between uniform and plain
clothed teams, exhaustion, stress and
divorces.
How do you fancy having a
drugs team, perhaps you
can see past the ludicrous
nature of this decision!
“I’LL SEE YOU IN
THE EUROPEAN
COURT OF HUMAN
RIGHTS (JUST
JOKING, SORT OF)”.
CHANGE HAS ALWAYS TRICKY FOR PEOPLE
“It must be considered that there is nothing more difficult
to carry out nor more doubtful of success nor more
dangerous to handle than to initiate a new order of things;
for the reformer has enemies in all those who profit by
the old order, and only lukewarm defenders in all those
who would profit by the new order; this lukewarmness
arising partly from the incredulity of mankind who does not
truly believe in anything new until they actually have
experience of it”
Nicolo Machiavelli (1469-1527)
INGREDIENTS OF SUCCESSFUL CHANGE
Leading Change – John Kotter 1996
1. CREATE A SENSE OF URGENCY: ‘A BURNING PLATFORM’
2. BUILD A GUIDING COALITION TO LEAD THE CHANGE
3. DEVELOP A COMPELLING CHANGE VISION
4. COMMUNICATE THE CHANGE VISION CLEARLY
5. GENERATE BROAD-BASED ACTION: INVITE CO-CREATION
6. ACHIEVE SHORT-TERM WINS
7. DON’T LET UP: IT IS A LONG ROAD
8. MAKE IT STICK: CHANGE THE CULTURE
1. A BURNING PLATFORM?
2. CREATE A GUIDING COALITION?
OUR TEAM
Picture from In the Know 3
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THE PUBLIC TOLD
US WHAT MATTERS
Be there when I need you
Be visible and accessible to me
and my community
Treat me fairly and with respect
Tackle the issues that matter most
and keep me safe
Keep me informed and do what
you say you are going to do
WHAT THE PUBLIC
CAN EXPECT FROM US
We will respond to your requests for
service in the right way
You will have access to Avon &
Somerset
police services 24 hours a day, 365
days a year
We will treat you professionally,
with fairness and respect
We will listen to ensure we tackle
issues that matter most to you
We will endeavour to prevent crime and
protect you from criminals
We will keep you informed
and updated
4. COMMUNICATE THE CHANGE VISION CLEARLY
5. GENERATE BROAD-BASED ACTION
6. ACHIEVE SHORT TERM WINS
SO HOW HAVE WE DONE SO FAR?
Leading Change – John Kotter 1996
The Ingredients of successful change:
1. CREATE A SENSE OF URGENCY: ‘A BURNING PLATFORM’
2. BUILD A GUIDING COALITION TO LEAD THE CHANGE
3. DEVELOP A COMPELLING CHANGE VISION
4. COMMUNICATE THE CHANGE VISION CLEARLY
5. GENERATE BROAD-BASED ACTION: INVITE CO-CREATION
6. ACHIEVE SHORT-TERM WINS
7. DON’T LET UP: IT IS A LONG ROAD
8. MAKE IT STICK: CHANGE THE CULTURE
HOW IMPORTANT IS CULTURE?
Peter Drucker
“Culture eats
strategy for
breakfast”
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WHAT ABOUT OUR LEADERS?
Change is the normal environment and more is expected with less
To meet these challenges,
we need outstanding leaders
who thrive in a changing environment,
engage their people
and are
authentic
in their behaviour and actions
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.
WHAT DO WE MEAN BY LEADERSHIP?
Leadership
Behaviours
PPQs
Public First
Programme
Leadership Days
‘leadership of key
behaviours’
?
HPDS
Staff Survey 2011
Engagement
drivers
Senior
Leadership
Teams
HR Strategy
‘equip leaders to
lead’
Leadership
training
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WHAT DO OUR POLICE OFFICERS SAY THEY WANT
FROM THEIR LEADERS?





To be supportive, value and develop them
To listen
To be fair and consistent
To make decisions
To motivate a team & keep them working together
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WHAT DO OUR BEST LEADERS SAY IS
IMPORTANT?
 Caring
 Having the right team in place &
then using each person’s strengths
 Making sure each person on the
team knows their own role in the
big picture
 Taking personal
responsibility/ownership
 Attitude
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RESEARCH OUTSIDE ASC
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WHAT WERE THE THEMES?
AUTHENTIC
CHANGE
ENGAGES
Lives by Force values, cares
about their people & the service
provided, retains integrity and
invokes trust and confidence.
Actively leads & manages
change, taking the long term
view.
Knows their people; releases
discretionary effort and builds
individual and team capacity.
Consistent & careful on
behaviour
Challenges the status
quo
Sees people as route to
performance
Takes ownership &
encourages others to do
the same
Living in the grey
Plays to people’s
strengths
Energised not daunted by
the environment
Puts ‘we’ before ‘me’
Provides guiding sense
of purpose
Develops people through
challenge & support
Holds the tension whilst
focussing on delivery
Creates a sense of team
Fair; addresses
performance & behaviours
below expectation
Listens; Lack of ego
Values based decision
making
Coaching not telling
Taking deeper breaths for
longer
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LEADERS DETERMINE SUCCESS (OR FAILURE)
Nothing undermines a change programme more quickly than
inconsistent actions by leadership. Nothing speaks as powerfully
as someone who is backing up their words with behaviour.
When an entire team of senior management starts behaving
differently and embodies the change they want to see, it
sends a powerful message to the entire organization.
These actions increase motivation, inspire confidence and
decrease cynicism.
John Kotter, Leading change 1996
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BUT IT IS NOT JUST ABOUT LEADERS…
…It is also about team
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HOW ARE WE USING THIS LEARNING?
Roles and responsibilities
Clarity and consistency
Equipped with the right
skills
Decision making at right
level
Knowledge, skill,
permission to act
Celebrate success and
recognise excelling in
role
Structures
Re-structure to support
‘One Team’, delayering
& focus on spans of
control
Remove multiple teams;
simplify processes
Career paths that are not
necessarily about
promotion
Continuous learning
Evidence based
approach – trial and test
(against a control) before
implementation
Establish forums for
sharing best practice
Support and embed
corporate horizon
scanning and problem
solving
Communication and
engagement
Provide channels for staff
voice
Open and transparent
engagement with public
and staff
Clear and consistent
communications
regarding priorities and
approach
Leadership
Develop leaders who
can mix
transformational and
transactional leadership
underpinned by
professional credibility
Early intervention to
address poor
performance and
behaviour
Leaders who are more
people than task
oriented
Accepting base level of
competence, develop &
use people according to
their strengths.
Building & embedding
diversity
Truthful & more
sophisticated self
awareness as an
organisation &
individuals; particularly
on complexity of
motivation, values,
practice & how these
can lead to
inappropriate
behaviours.
Support Code of Ethics
(College of Policing) link
with pilots of Ethics
Committee
Cross force audit on
approaches , practices,
& attitudes to minority
groups, vulnerable
victims & domestic
violence.
Recruit & develop for
diversity; educate staff
to value difference &
challenge - not just
‘fitting in with the
team’.
Develop leaders who can adapt – a mix of transformation and transactional leadership is most effective in policing
(*NPIA 2010,211), focus on employee engagement, wellbeing, and build a diverse workforce where difference is valued.
COLLABORATION & COMPETITION IN BALANCE
+
=
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SO WHAT HAVE WE LEARNED?
• Use evidence to understand your AS IS and to build your TO BE
• Engage people in diagnosing PROBLEMS and designing
SOLUTIONS
• You must attend to PROCESS, PEOPLE, SYSTEMS and CULTURE
• Culture comes last, not first; it presents the greatest RISK and
OPPORTUNITY and it is the hardest to get right
• COLLABORATIVE and COMPETITIVE behaviour must be carefully
balanced and constantly managed
• We now have an embedded Culture Programme and a great deal of
specialist help. CULTURE is too important to get wrong!
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