Series on New Era for Complaint Handling (2)
CAPO committed to upholding integrity of Complaint System
| Professional Investigation |
CAPO handles each complaint professionally in a bid to build up a good reputation, establish credibility and boost public confidence in both the complaints handling mechanism and the Force. In the past, CAPO focused on investigation of serious and complicated cases while Formations handled minor complaints. With enactment of the Independent Police Complaints Council Ordinance (IPCCO) in 2009, the Force needs to comply with the statutory requirements stipulated in the Ordinance. An upsurge in workload, particularly during the latter half of 2009, and the increased demands from various stakeholders within the system, has put an enormous strain on CAPO. Therefore, there was an obvious need for changes in the system to further enhance professionalism in complaints handling. The concept of centralisation of complaint investigations was proprosed.
Concept of focused and controlled system
To address challenges instead of sharing the workload with Formations, it was proposed that all investigations of reportable complaints be centralised under CAPO, including more use of Informal Resolution (IR).
"The beauty of centralisation is that from the very beginning of a complaint being reported to the conclusion and submission to IPCC, CAPO is in full control of the progress of investigations and compliance in terms of procedure. Besides, all reportable complaints, regardless minor or serious, are investigated by CAPO's professional teams. This will also ensure statutory duties under IPCCO are fulfilled appropriately. Centralisation also provides an end-to-end service to the complainant, projecting an impartial and professional image for the Force in all reportable complaint investigations. More minor complaints are expected to be resolved in early stage by IR", said Superintendent Tse Ming-yeung of CAPO Hong Kong Island (HKI).
Pilot Scheme in CAPO HKI
CAPO HKI spearheaded the centralisation pilot scheme on May 1 last year, an initiative which remains in place until now. To carry out the pilot scheme, the manpower of CAPO HKI was increased by 36 per cent, allowing it to investigate all reportable complaints.
The review conducted in February this year showed a number of successes, the most notable one being an increase in efficiency and "zero" return in terms of non-compliance of IPCCO. The number of outstanding reportable complaints in CAPO HKI has gradually decreased from 550 cases in April 2010 (just before the pilot) to 340 cases, representing a drop of 38.2 per cent. CAPO HKI's client Formations have benefited greatly from the pilot scheme.
Commented Senior Superintendent Traffic HKI Chau Ping-sun: "Centralisation of complaint investigations has, to a certain extent, reduced frontline supervisory officers' workloads. Besides, impartiality with complaints being investigated by CAPO instead of the complainees' parent Formations, is seen as a very positive step."
Full centralisation
This interim review concluded that centralisation of complaint investigations across the board would enhance efficiency and ensure a high integrity for the complaints handling system.
With Senior Directorate Group's endorsement for full-scale centralisation of complaint investigations and the Force's ability to provide the necessary resources, full centralisation will become a reality on January 1, 2012.
Do right things, do things right
"Centralisation of complaint investigations aims at further improving the quality of complaints handling and reducing frontline units' workloads. More importantly, it is intended to enhance efficiency and system integrity. It is important for the Force as a whole to have an integrated and sophisticated complaints handling system with emphasis on impartiality, efficiency and professionalism to live up to public expectations. This is crucial for maintaining public confidence in the Force and also the confidence of Force members. Centralisation is the right and necessary step to take. It keeps us on track all the time and enables us to do our job correctly", said CAPO Senior Superintendent Siu Kit-hung.
| Increased transparency |
Hot on the heels of full centralisation, the Telephone Recording System (TRS) will roll out in all CAPO offices with effect from February 2012. All investigation-related telephone conversations with complainants, complainees and witnesses will be recorded.
Although the current policy laid down in the Complaints Manual with regard to the statement-taking process and video recorded interview, will remain unchanged, when CAPO officers investigate cases of minor complaints where only limited and simple questions are required to be asked, telephone recording will come into play, thereby saving complainees' time and resources. There may also be occasions when a formal statement has been obtained but needs further clarification, versions in this regard can also be obtained through telephone recording. At any point when complainants, complainees or witnesses decline to have their conversations recorded, telephone recording will cease. Recorded telephone conversations are treated as personal data and are security-proof. They will be stored in a central server for two years.
The new TRS aims to further enhance the transparency and integrity of the police complaint system, and encourage accountable reporting and receipt of complaints against police. Its introduction also aligns with the Strategic Direction Two on "Enhancing Personal and Professional Qualities of Force Member" and Strategic Direction Four on "Supporting Frontline Units", and demonstrates the Force's determination and commitment in professionally accounting for the actions and conduct of Force members, in pursuit of service improvement.
Pilot Scheme in CAPO Kowloon
To pave the way for full implementation of the TRS in all CAPO Regional Offices, a telephone recording pilot scheme was introduced to one of the investigation teams in CAPO Kowloon, commencing in January this year. Over 400 conversations were recorded and the TRS was well received by complainants, complainees and witnesses.
Woman Sergeant Sum Yun-ngor, who has been working in CAPO for more than four years, is full of praise of the TRS. She said: "At the beginning of the trial, both my team-mates and I were reluctant to accept changes, fearing they might create additional workload and slow down the workflow. However, after using the TRS for almost a year, our perception only proved to be wrong. The TRS is a supportive measure for frontline officers, saving time and resources whilst encouraging accountable reporting."
Standard Operating Procedures will soon be promulgated to guide CAPO officers in the correct use of the TRS and the appropriate handling of the records made.
| Enhanced efficiency |
CAPO continuously reviews the complaints handling mechanism in collaboration with all stakeholders to identify areas where the efficiency and effectiveness of complaint investigation can be enhanced. A Working Group has been set up with IPCC to this end.
The followings are some of the achievements of the Working Group:
* To ensure CCTV/audio recording seizures are limited to only those essential to CAPO enquiries which may hold material bearing on assessment of credibility of the parties concerned;
* If versions of police witnesses are of a similar content, formal statements are no longer required to be taken. Versions in a consolidated format subject to recording would suffice;
* For "Withdrawn" cases, proforma template has replaced a full report format.
Notwithstanding all these changes, CAPO is dedicated to maintaining the highest standard in service delivery and committed to partnering itself with the IPCC and other stakeholders to ensure continued integrity of the police complaints system.
Please find out more about CAPO's latest development through POINT - HEXAGON "New Era of CAPO".
CAPO
Sergeant Sum Yun-ngor demonstrates how to use the Telephone Recording
System