STANDARD SUMMARY PROJECT FICHE. 1.2 Title: POLICE TRAINING AND EDUCATIONAL SYSTEM. Improve the skills and effectiveness of the police force.

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1 STANDARD SUMMARY PROJECT FICHE 1. Basic Information 1.1 Désirée Number: ES Title: POLICE TRAINING AND EDUCATIONAL SYSTEM 1.3 Sector: Justice and home affairs Twinning code: EE00/IB/JH Location: Estonia 2. Objectives 2.1 Wider Objective: Improve the skills and effectiveness of the police force. 2.2 Immediate Objective: Developed education and training strategy and implemented action plans. 2.3 Accession Partnership and NPAA priority The objectives are supported by the following police development related documents: NPAA 2000 Chapter to "improve the professional education of police officers; to develop educational system of the police " Regular Report, Chapter 3.7: "The capacity of the Estonian police dealing with the apparent increases in crime is a concern The level of the police education should be improved". The Report also points out that "poor police performance is a concern and it is directly linked to the low pay and lack of training" (Chapter 4.2. Justice and Home Affairs) Accession Partnership short term priority: "Create an advanced integrated criminal investigation data system and improve forensic research capacity - upgrade and ensure better co-ordination between law enforcement bodies and the judiciary to continue the fight against organised crime, drug trafficking and corruption; strengthen capacities to deal with money laundering". Pre-accession Pact on Organised Crime with the applicant countries of Central and Eastern Europe and Cyprus points out that CEEC-s should have: "an efficiently structured police administration, with the powers of action, trained staff and technical equipment needed to combat crime effectively, it is necessary for effective law enforcement co-operation and judicial co-operation, both at national and at international level". 1

2 Police Development Plan for (approved by the Government on by its Decision No. 10) paragraphs 5.1 and 5.2 foresee optimisation of police organisation, raising the effectiveness of administration (administrative capacity) and preparing motivated personnel. The objective is to adapt the management by objectives system (see Annex 5). 3 Description 3.1 Background and justification: Background The administration of the Police Board and the Ministry of Internal Affairs analysed the organisation and management of the police in SWOT analysis was made in conformity with the EU requirements, the problems have been pointed out according to the Accession Partnership and Progress Report. The SWOT-analysis has been taken as a basis for drawing up both the future vision and development scenarios. The objectives were included in the Police Development Plan that was adopted by the Government The contents of the Police Development Plan have been highlighted also in the NPAA Relying on expert opinions, the action programme for realising the Plan has been worked out for the years The Police Development Plan, NPAA and the international instruments referred to in items 2.3 highlight the following problems of the Estonian Police: prevalence of command management and poor team-work; non-rational structure of police prefectures; insufficient professional suitability of the police officers, insufficient qualifications and poor language skills; lack of systematic training and personnel work. One of the main problems identified through the gap analysis of the Police performance was that the "Command line dominates in the management style of the police. The first step in making management more efficient is replacing the command-based management with target oriented management. This will enable to improve police officials' creativeness, motivation and innovative thinking which form a good base for achieving better results. As an obstacle to that, insufficient supplementary training of administrative staff has been mentioned as one of the problems in the Police Development Plan. Also, the Plan points out the following weaknesses of the Police: lack of systematic training and personnel work; insufficient professional and language skills of police officers; prevalence of command management, weak organisational links and poor team-work; poor exchange of information Justification 2

3 The current system of training is shown in Annex 6. Although training does take place, there is no long-term training strategy. Instead, needs are currently assessed annually through questionnaires, and the Police School organises its training accordingly, following approval by the Police Board. It is recognised in the Police development plan (Annex 5) that a more comprehensive approach now needs to be taken to introduce more advanced policing skills. Equally important is the context of significant institutional rationalisation and reorganisation for the Estonian police force. Developing a sustainable police training system reinforces and compliments this process of change. This is detailed in section 4. Despite the action plans included in the Police Development Plan, progress has been limited primarily due to budgetary constraints. The purpose of this project therefore is to ensure that more concrete progress is made. The main activity of the project is to elaborate the training and education strategy in cooperation with foreign experts, relying on knowledge, experience and practice of the member-states and to work out the action plan to implement the training and education strategy. It is intended that the strategy will be approved by the Police Board and will be used as a basis for the future allocation of training resources. In order to put the police education and training system into practice and to raise the quality of it, it is necessary to: - elaborate a curriculum for each category of police official proceeding from the qualification requirements for the basic groups of the police officials; - work out the education and training strategy 3 years; - train trainers needed to implement the strategy; - provide necessary training materials and facilities to implement the strategy. Police training is a specific educational process, since no university in Estonia trains trainers for police schools or other police educational institutions. In many countries police career is based on police officers rotation - working as a trainer at a police school or college is an integral part of the higher police officer's career. The overall impact of this project on the capacity of the police to tackle crime shall be: the strategy for three years will allow us to use present resources more efficiently; improved educational system will improve professional level of knowledge and practice of police in every level, e.g., in tackling crime; the police who is well-trained and has optimal management structure will detect the crimes and carry out pre-trial investigation 3.2 Linked activities: The Estonian Police plans to introduce a management system based on problem analysis, targeted action and performance dialogue. Training of 45 police chiefs was carried out in the timeframe from May 1999 to January 2000, financed by SIDA (Swedish International Development Agency). The training programme included a 1-week management course for the top level police officials (problem analysis, target management, etc.), and three days of training in workshops and a study visit to Sweden for representatives of 2 selected pilot police prefectures (Tartu and Põlva). Total cost of training was SEK. 3

4 3.3 Results: Evaluation criteria and measurement methods for police officers. Training and educational needs for police officers are mapped Training strategy for all levels of the police that includes a specific operational action plans to implement the strategy. Pilot training programmes for police officers implemented. 3.4 Activities: The project will be implemented through a Twinning package which will include the following components :- PAA: During the project the overall police education and training strategy together with action plans to implement the strategy will be prepared, implemented and evaluated. One long-term Pre-Accession Advisor (PAA) for 12 man-months in the amount of EUROs is needed. PAA's tasks will be: 1. General co-ordination, monitoring. 2. Working out measurement methods and criteria for assessing police officers' performance at the beginning of the project. 3. Performing assessment of police officers on the basis of these criteria. 4. Establishing educational needs. 5. Framing continuing education system. 6. Working out separate curriculum for junior, senior and higher police officers and built up a police training system of three stages. 7. Working out overall training strategy for all levels of the police for 3 years (activity within the project during 1 year). 8. Responsible for selecting the pilot group of trainers and organising training activities for them. 9. Organising selection and translation of suitable training material or creation of original material for pilot sessions. 10. Evaluating results of pilot training activities and adjustments of operational action plans Profile of the PAA: Excellent knowledge in police education and training Experience in personnel management Knowledge of management, especially strategic management and planning. Experience in risk assessment and programme evaluation Good command of the English language. Additional Expertise 4

5 In sector specific areas, such as corruption, terrorism, money laundering, intellectual and industrial property and international police co-operation, it is estimated that additional expertise advice in the amount of EUROs is needed. Short-term experts work out measurement methods and criteria for assessing police officers' performance in these areas, perform assessment, establish educational needs and work out sector specific training action plans. Organising selection and translation of suitable training material or development of original material for the areas which shall be approved by the PAA. Pilot Training activities EUROs is needed to implement the first stage training for the trainers of relevant sectors selected by PAA, to be the "kick-off" for the action plan to implement of the training and education strategy. The pilot training will enable the PAA to evaluate the implementation of action plans and make necessary corrections into action plans for the implementation of the strategy. Training materials EURO's is needed for training materials which have to be approved the PAA. The training materials will support the pilot training. During the pilot training the PAA has the possibility to evaluate the materials used and corrections to materials will be made if necessary. 4. Institutional Framework Structure of the Police The Police Board is under the jurisdiction of the Ministry of Internal Affairs (see Annex 4). The merging of police prefectures is a part of the Public Administration Reform that is currently being carried out in Estonia. The reform will be concluded by the year The aim is to reduce administration costs and increase the administrative capacity of Estonia. The Estonian Police Development strategy envisages optimisation of the police structure by merging regional police units (there are currently 17 regional prefectures but it is planned to reduce the number of prefectures down to eight). At the end of 1999, the staff of the police was already reduced by 424 police officers, which allowed for the raise in police officers' salaries. Higher salary enables the police force to set higher demands for the level of training and skills of the police officers, and to organise better selection of managers. As of March 2000, the Estonian police consist of 188 higher police officers, 2478 senior police officers and 930 junior police officers. Police Training Institutions The police organise courses mainly at the Police School and the Public Defence Academy, the facilities of which have been completed with regard to police training. In this aspect, the police are one of the best equipped organisations in Estonia. 5

6 The Police School is a police educational institution subordinated to the Police Board, which trains junior and senior police officers giving them a vocational secondary education. The Police School functions on the basis of general secondary education. The Public Defence Academy is an institution of applied higher education subordinated to the Ministry of the Interior, which prepares officials of the state, and local self-governments giving them applied higher education and also carries out continuous education and applied research work. The number of officers participating in training courses reached 4515 last year. The estimated number for the current year is about the same. There are on the average 700 police officers per year participating in the supplementary training courses. In police officers completed the first stage of the basic training course and 175 police officers completed the second stage of the basic training course. This year the numbers were accordingly 251 and 112, the total numbers of police officers completing the basic course being 363. The average number of senior police officers acting as fulltime students graduating from the Public Defence Academy is 60 a year. In the Open University of the Public Defence Academy about 244 police officers are educated. The Law on Adult Education (entered into force 10 November 1993) prescribes not less than 3% of the total payroll of state institutions must be used for supplementary training. The same applies to the police forces. The budget of 2000 for supplementary training is 4.8m EEK or 300k. Courses include computers, languages, accounting, jurisprudence, management etc. The Police School will also implement supplementary training within its budgetary funds. The budget of the Police School for the current year was EEK or 1.2m. 5. Detailed Budget (EUR) Investment Support Phare Institution Building Total Phare (=I+IB) National IFI Cofinancing TOTAL Twinning Package : - Pre-Accession Advisor Short term advisers Local advisers Pilot training Training materials Total * National co-financing will come form the State Budget of Implementation Arrangements A project steering group will be established, chaired by the Deputy Secretary General responsible for Internal Security of the Estonian Ministry of Internal Affairs Mr. Kalev Timberg, to supervise the project implementation. The steering group will include representatives from the Police Board, Ministry of Internal Affairs, Public Defence Academy, EC Delegation in Estonia and the Ministry of Finance. 6

7 Personnel Department that is responsible for the education of police personnel and the strategies of the training is under the Director General of the Police Board. The project manager is Mrs. Vilve Kalda, Head of the Personnel Department (Tel: ). 6.1 The Implementing Agency is CFCU. CFCU will be responsible for tendering, contracting and accounting. Responsibility for preparation, implementation and control will remain in the recipient institution. The Programme Authorising Officer is: Mr. Martin Põder, Deputy Secretary of the Ministry of Finance, Tel: (372) The Program Officer is: Mr. Kalev Timberg, Deputy Secretary General responsible for Internal Security of the Estonian Ministry of Internal Affairs, Tel: (+372) The project manager is: Mrs. Vilve Kalda, Estonian Police Board Head of the Personnel Department Tel: (+372) Twinning The Estonian twinning counterpart is: Mr. Marco Anderson Leading Police Inspector of the Personnel Department, Training and Development Unit Phone: marco@pol.ee Address: Pagari 1, Tallinn, Estonia The twinning will be contracted according to the European Commission rules, DIS Manual will be strictly followed. 7. Implementation Schedule 7.1 Start of tendering/call for proposals August Start of project activity January Project Completion January Equal Opportunity Equal opportunity for men and women to participate in the project will be guaranteed and measured by recording carried out by the experts and consultants employed. 7

8 9. Environment N/A 10. Rates of return N/A 11. Investment criteria N/A 12. Conditionality and sequencing The Estonian Government will ensure that implementation of the training strategy (that will be elaborated in the frame of the present project) will be financed by the State Budget. See also implementation schedule (Annex 2). Annexes to the project fiche: Annex 1. Logframe planning matrix Annex 2. Time Implementation Chart Annex 3. A) Cumulative contracting schedule B) Cumulative disbursement schedule Annex 4.a Structure of Estonian Police 4.b Structure of Estonian Ministry of Internal Affairs Annex 5 Extract from Police Development Plan Annex 6 Current Training System 8

9 ANNEX 1 to Project Fiche LOGFRAME PLANNING MATRIX FOR PROJECT Police training and educational system Programme name and number: Contracting period expires: 31/12/2002 Project Number ES Total Budget:(EUR) Wider Objective Indicators of Achievement How, When and By Whom Indicators Will Be Measured Improve skills and effectiveness of police force % Crimes successfully resolved Crime rate Police education reports and statistics (yearly, quarterly) Assumptions and Risks Date of drafting: Disbursement period expires: 31/12/2003 Phare contribution: (EUR) The continuous government support to the strategy Immediate Objectives Indicators of Achievement* How, When and By Whom Indicators Will Be Measured Developed education and training Number of police officers trained Reports of Ministry of Interior, State Audit strategy and implemented action Number of training days per year Office and Police Board plans per officer Amount spent per officer on training per year Outputs Indicators of Achievement* How, When and By Whom Indicators Will Be Measured Evaluation criteria and Written criteria and measurement Project reports measurement methods for police methods Regular reports of the steering committee officers. Assessment report approved by Pilot training evaluation report Mapped training and educational the Ministry of Internal Affairs Training materials evaluation report needs for police officers. of Estonia and Estonian Police Training strategy for all levels of Board. the police that includes a specific Action plan to implement the operational action plan to strategy written and approved implement the strategy. Pilot training and training. materials evaluated and corrected Trained pilot group of trainers who will put the education strategy of Assumptions and Risks Police development as a priority of the Government. Commitment of the police structures according to the Police Development Plan for Police system is financed in accordance to the budget committed. The number of police officers is stable Assumptions and Risks Necessary inputs available in time. Number of staff in police 9

10 three years into practice. Training materials. Inputs Indicators of Achievement* How, When and By Whom Indicators Will Be Measured PAA STTA's Pilot training activities Training materials Foundation of supplementary and management training system. The twinning package contracted Twinning counterparts EU relevant auditing institutions CFCU Assumptions and Risks Availability of experts, funds Activities carried out in time Contracting in time 10

11 TIME IMPLEMENTATION CHART ANNEX 2 Project N : ES Project Title: Police training and educational system JFMAMJJASONDJFMAMJJASONDJFMAMJ JASONDJFMAMJJASOND Sub-programme Institution Building Pre-Accession T C I I I I I I I I I I I I Advisor Measurement I I methods and criteria for police officers Assessment of police I I officers Establishing of I I educational needs Framing of continuing I I education system Drawing up curricula I I for junior, senior and higher police officers and building up a three-staged police training system Working out overall training strategy what I I I I I I I I I I I I includes specific areas. Translation of training material or creation of original material I I I I Pilot Training Activities I I I Evaluation and needful adjustments for action plans I I 11

12 ANNEX 3 A CUMULATIVE CONTRACTING SCHEDULE Project No: ES Project title: Police training and educational system Total (EUR) Date Twinning package CUMULATIVE DISBURSEMENT SCHEDULE ANNEX 3 B Project No: ES Project title: Police training and educational system Total (EUR) Date Twinning package

13 ANNEX 4a 13

14 ANNEX 4b 14

15 ANNEX 5 : EXTRACT FROM POLICE DEVELOPMENT PLAN In recent years the police have been brought into order organisationally, the management scheme and responsibility have been defined more clearly. The adoption of the Police Service Act set preconditions for achieving stability, as well as for motivating a police officer in designing his/her career by creating possibilities of development and giving social guarantees by the state. The people expect the availability of the police service quickly, everywhere and for everyone. The maintenance of public order and internal security, the detection of crimes as well as fast and efficient pretrial investigation of crimes are spheres in which achieving the breakthrough is important at the present time from the viewpoint of both the society and individual. Now that the Estonian State is about to reach a stage of stable development, the police must be formed into an organisation, which is capable of carrying out its main tasks, and able to fulfil the requirements set to an applicant country of the European Union. Those significant changes must be started during the following three years. As a precondition for achieving the objectives and further development of the police, the plan of development approved by the Government of the Republic, which would proceed from the need of modernising the police on the whole. Up to the present time, there were no clearly defined principles and directions of developing the police. At the same time, those principles are needed not only for securing the development of police materially and technically but also for making the activity of the police understandable to the people, unify the management and raise thereby the efficiency of the police. For determining the strengths and weaknesses of the police organisation as well as the possibilities and risks which may become actual in the different stages of the development, a SWOT analysis was carried out when drawing up the plan of development. The SWOT analysis has been taken as a basis for drawing up both the future vision and development scenarios. A longer version of the SWOT analysis with comments has been presented in the annex of the plan of development. Relying on the expert opinions, the action programme for realising the vision of development of the police has been worked out. The precondition for its realisation is a minimal possible exposure to risks, which were identified in the SWOT analysis. The objectives and priorities presented in the plan of development serve as the basis for the implementation of concrete action plans. VISION OF THE DEVELOPMENT OF POLICE FOR YEAR 2001 ORGANISATION AND MANAGEMENT As a result of optimising the management structures, the number of police prefectures in Estonia is not larger than eight. The basis for the system of police management will be the gradual replacement of the command based management by the new system built on normative regulation (so called normative management). When the normative model of management is put into operation, it provides an important precondition for the use of creative ideas and value judgements of each police officer in the everyday police work and in developing the system. For evaluating the efficiency of the functioning of police as a system, new fundamentals have been worked out in place of the present evaluation system, which is mostly based on clear up rate. The main evaluation criterion will be the satisfaction of the people both with the work of the police and the situation concerning law and order. The making of management decisions concerning the organisation of the main activity of the police has been delegated to the heads of police organisations, while the management of everyday police work has been assigned to the heads of police departments and stations. 15

16 The preventive police work has become dominant, in which an important role belongs to finding out the circumstances facilitating an offence, giving advice to the people and supporting legal self assistance structures. The detection and preliminary investigation of first degree crimes will be the responsibility of a well prepared and centralised criminal police. The reorganisation of the central apparatus of the police according to new basic principles has made it possible to democratise the organisation of the management of police and to improve its quality. The main tasks of the Police Board as the management body of the police are: analysing crime, defining its present state, dynamics and reasons and establishing the main directions of the police work on the basis of prognoses; directing, coordinating and controlling the activity of the police; representing in the qualified way the interests of functioning and development of the police; analysing the police organisation, it s different directions of work and determining its development prospects, needs and priorities; organising the selection, control, development and training of the police personnel; ensuring the activity of the police in material and technical terms; organising the foreign relations of the police. The transparency and clarity have been achieved both within and outside of the organisation. The Police Council has been set up, headed by the Minister of Internal Affairs and comprising prominent figures of the public life and representatives of local governments. The tasks of the Police Council are to receive reports form the Director General of the Estonian Police Board on the activity of the police and to discuss the general problems, priorities and objectives of the police work, providing them with the necessary public response. PERSONNEL By improving the prestige of the police work, preconditions have been created which allow the career of the police officer to proceed in a way which would secure the person s interest in working in the police until the retirement age. Police propaganda that is directed to the public through the mass media channels and the setting of emphasis on the reflection of positive results of everyday police work will improve the prestige of the police officer s profession among the population. Fluctuation of personnel has decreased to 5 per cent per year. The system of service based and graduated salary specified by the Police Service Act has been implemented and the social insurance of the police officers has been secured. The recognised principle to be observed will be that the minimum salary of the police officer must be higher than the country s average wages. In order to select and fix the police personnel, special professional requirements have been established for police officers, which will be applied at the entrance of cadets to the Police School and at personnel recruitment. The unified system of police training will determine the basic and professional training of the Police School as the preparatory stage for receiving higher education in the Police College of the Public Defence Academy. The curricula and the study plans of the Police School and the Police College have been coordinated in order to ensure the agreement between different parts of training and their quality. Practical training has been made part of police training, necessary training bases have been constructed and completed. Advanced training and retraining system has been established, including the management training of senior officers. Taking the respective courses has been made the precondition for professional promotion. Every police officer will be entitled to a minimum one week of advanced training per year. 16

17 A system of personnel development and career planning has been worked out and is implemented. Personnel are recruited, promoted, rotated and relocated according to fixed principles. The professional certification system has been replaced by the system of permanent personnel evaluation. The new system will ensure that chiefs work permanently with their subordinates. The system of psychological counselling of police officers has been created. Police officers have to pass regular medical examinations. The law provides that the police officers are guaranteed pensions ACTION PROGRAMME FOR REALISATION OF VISION ORGANISATION AND MANAGEMENT Start End of activity of activity 1. Updating the Police Act May 1999 Establishment of the Council of the Police July Realisation of pilot projects in 2 3 regions May nd quarter for the purpose of uniting police prefectures Realisation of the process of uniting 3 rd quarter 2001 police prefectures Establishment of the national network Sept rd quarter of police stations and departments Optimisation of the structure and work 2 nd quarter of the Estonian Police Board Implementation of the unified administrative software for the Estonian Police Implementation of accounting 1 st quarter Software 2000 Implementation of personnel management software Developing the methodology 2 nd quarter for the transition to normative management 2000 of the Police 9. Progressive transition to the normative 3 rd quarter management of the Police Progressive transition to the preventive 3 rd quarter model of policing Centralisation of management of 2000 the Criminal Police on the level of police prefectures 12. Extensive delegation of decision-making 3 rd quarter to the leaders of police organisations and 2000 their structural divisions 17

18 PERSONNEL Start of End of activity activity 1. Unification of the curricula of the Estonian Sept 1999 Police School and of the Police College of the Public Defence Academy with the purpose of establishing three-stage police training 2. Establishment and implementation of the system of July 1999 psychological counselling for police officers 3. Preparation of the requirements for professional March fitness of police officers and on their basis, testing 1999 the police cadet candidates before admitting them to the Police School 4. Arranging regular medical examinations for Sept 1999 police officers 5. Issuing and taking into use of the handbook on the principles and objectives of the police organisation Sept Developing the system of advanced police 1 st quarter training in three directions: 2000 professional advanced training training in communication skills management training 7. Updating the professional requirements of 1 st quarter the police officer, working out and implementing 2000 the system of career planning (setting up the reserve of personnel promotion, etc) 8. Developing the permanent system of personnel 2 nd quarter evaluation (criteria of evaluation) 2000 Implementation of this system Working out the new remuneration system Nov 1999 for the police 10. Introduction of the new remuneration system 1 st quarter of the police Preparation and taking into use of the brief March nd quarter guidelines for different police activities in policing

19 Annex 6 : Current Training System DIRECTOR GENERAL OF THE POLICE DEPUTY DIRECTOR GENERAL POLICE CHIEF, POLICE PREFECT DEPUTY POLICE CHIEF, DEPUTY POLICE PREFECT POLICE ADVISER/COUSELLOR CHIIEF SUPERINTENDENT SUPERINTENDENT high rank officers years LEADING POLICE INSPECTOR, LEADING CONSTABLE 1 year senior police officers 2660 SENIOR POLICE INSPECTOR, SENIOR CONSTABLE 1 year POLICEINSPECTOR, CONSTABLE ESTONIAN PUBLIC SERVICE ACADEMY 3,5 years POLICE SCHOOL SENIOR POLICE OFFICER 1 YEAR TRAINING 1 year JUNIOR POLICEINSPEKTOR, JUNIOR CONSTABLE POLICE SCHOOL JUNIOR POLICE OFFICER 1 YEAR TRAINING ESTONIAN CITIZENS UNPUNISHED BY COURT AT LEAST 19 YEAR-OLD PERSONS WHO HAVE SERVED IN ARMY junior police officers