Understanding Policing Delivery

Independent Panel Hui Summary

Independent Panel
Summary Date Range 18/06/21 to 08/04/22

Understanding Policing Delivery

The Understanding Policing Delivery (UPD) programme was announced by the Police Commissioner
Andrew Coster in March 2021 when he appointed the Chair of the Independent Panel Tā Kim
Workman.

Its purpose is to identify whether, where, and to what extent, bias exists at a system level in Police’s
operating environment so that Police can ensure it delivers policing that is fair and equitable for all
our communities. UPD will look at all aspects of bias affecting our communities.

Purpose of the Independent Panel

The Independent Panel (Panel) was established in mid-2021, chaired by Tā Kim Workman KNZM QSO
to provide independent, academic and cultural oversight and advice to the research programme. The
Panel brings together a diverse range of skills and experience to ensure the research, analysis and
advice is informed by a holistic range of views and perspectives, particularly an understanding of and
the application of a tikanga Māori view.

Initially, the Panel had a significant role in providing advice to Police about the research programme,
including identifying research possibilities, determining the research approach and methodology,
including who should undertake the research. The Panel is now responsible for the management of
the research team and the research programme going forward.

What have we spoken about?

• From the beginning of the programme, the Panel has sought to prioritise tikanga Māori,
kaupapa Māori methodology, and Māori-centredness by regularly asking questions such as:
who should lead this research? Who makes decisions about it? How does Police support the
integrity of the research and maintain independence in the research process?
• This research is complex and is looking for a significant shift in operationalising te Tiriti o
Waitangi and understanding systemic bias and racism, not just within Police, but across the
Public Sector. For the programme, this has meant exploring both Eurocentric and Māori views
of research and evidence, and what these mean for unpacking systemic bias.
• The Panel resolved to ensure that involvement of frontline staff and engagement with Iwi and
community is timely, purposeful, meaningful, and beneficial to these groups.
• While the Panel recognises the potential for negative politicising of the programme, it is
important to let the research determine what the conversation is regarding systemic bias and
racism.
• The Police transformation and change environment is complex, with many projects going on
simultaneously. There is the potential for many other projects and activities to be happening
that impact the programme, so aligning across the organisation and working together will be
key to success. As well, the police operating environment is changing all the time, with regular
topics such as tactical responses, arming, emerging technologies, social media, and more
making up a moving landscape, all of which this programme seeks to keep in mind.
 Understanding Policing Delivery
Independent Panel Hui Summary

What have we done?

• The Panel unanimously agreed that Kaupapa Māori should be central to the programme, with
our responsibilities to Te Tiriti prioritised as foundational. A Māori co-leader of the research
team is appropriate. The Evidence-based Policing Centre has a strong relationship with Te Puna
Haumaru NZ Institute for Security and Crime Science at the University of Waikato, who had
originally been asked to lead the research.
• However, the programme decided a broader process for selecting a research team was
necessary, to deliver different aspects of this complex research programme especially for parts
where criteria such as Māori leadership and strong relationships to Māori communities were
important.
• This change in approach contributed to the decision for Te Puna Haumaru to complete an
extensive international academic literature review and other research bodies to complete other
parts of the research. It also allowed the Panel the time to create a robust process for selecting
a combined team with a broad set of research skills moving forward.
• Preliminary Findings from International Literature Review were presented to the Panel by Te
Puna Haumaru, noting:
o Of over 10,000 pieces of research, around 420 were found to be in scope for this review.
o Many places have diversified their police workforces; this hasn’t necessarily reduced
disparities.
o Training programmes have been used in many places; there is mixed evidence on the
effectiveness.
o Around 80% of the relevant research is from the United States, with a mixture of larger
metropolitan policing departments as well as rural.
o It is important to consider how the legacy of colonialism influences how different
social/ethnic groups view the police and vice versa.
o Bias may operate at different levels ranging from individual to institutional to structural,
and therefore it is important to consider what Police can address.
• An independent Māori research institute was engaged to complete a grey literature stocktake.
Following limited submissions to the initial request for grey literature from across the country,
a proposal was written and accepted for Te Atawhai o te Ao (TAOTA) to undertake this work.
TAOTA have significant Māori research networks and a strong focus on generating and
rediscovering health and environment knowledge for the benefit of their people. Key findings
include:
o A lack of data captured by Police that is necessary for quantifying rates of bias
o There are consistent areas of concern that have not changed over time
o Individualising responses to allegations of bias is insufficient
o Policing by consent requires community buy-in

Recommendations include:

o Explore legislation, policies and practice guidelines

o Gather data from independent researchers rather than using Police data
o Review IPCA processes and approaches
o Explore how reducing bias in policing will create positive outcomes
o Explore how the perception of ‘unsafe communities’ shapes understandings of police
legitimacy
 Understanding Policing Delivery
Independent Panel Hui Summary

• Translating the literature reviews – the two reviews have been amalgamated and will be made
available to guide the Research Team. The following topics were outlined:
o Kaupapa Māori research
o The need to address racism when examining bias within Police and community relations
o Intersectionality – whereby individuals occupy multiple positions within social and
cultural groups
o Imperialism and its influence on the current situation
o The impact of neoliberalism and class
o Disproportionate policing and resource allocation
• A Panel session with the Commissioner of Police was held. The Commissioner highlighted how
events such as Officer Matthew Hunt’s death, the George Floyd murder in Minneapolis, and the
Black Lives Matter movement have resulted in increased scrutiny of police around the world
and have influenced the need to better understand the consequences of any changes to the
unique style of policing in NZ. Panel discussion challenged the ways Police can respond to issues
such as gun violence and the numbers of police working together. Emphasis was placed on using
evidence to move beyond the raw statistics and tell a story about the research areas and how
they impact on police practice, without allowing politics to determine the outcome of the
research. Three research questions have been set by the Commissioner:
o Who we stop and speak to and how we engage with them
o Use-of-force decision making
o Charging decisions
• Iwi and Community Engagement – the panel noted several contentious issues around iwi and
community engagement, wanting to ensure that the right people were engaged so as not to
detract from the kaupapa, and also noting a need for Police to decide what is in scope and
explain any limitations to the research. The Panel determined that as a first priority, the UPD
programme would engage with Police as a community of its own. Māori researchers will engage
with Māori communities with a kaupapa Māori approach.
• A subgroup was formed for the purpose of developing recommendations about the nature of
the research going forward. This group met with the Commissioner to discuss a) what exactly
do Police want to know b) what sort of research is required, and c) what will make a difference.
The Research Steering Group and Panel have agreed the importance of considering: the
difference between procedural and distributive justice, what policing means for different
communities, how bias advantages some communities, how the Police deployment model
contributes to bias, how to manage the tendency to ‘age’ research within organisations, how to
convey results to effectively engage Police.
• The Panel heard from related Police projects to reflect and engage with Police in an informed
way:
o ReFrame – through improvements to resolution services, practices, policies, and tools
Police aim to deliver better outcomes for those who have been harmed, those who cause
harm, and our communities.
o Resolutions Policy Framework – police are faced with fast-moving decision-making
processes and are currently taught to use a model to apply discretion around charging
decisions.
o Policing of Drug Possession Offences – there is an increased focus on using a range of
options to police drug possession offences, such as health referrals, supported resolution,
and prosecution. Regular monitoring and reporting on these outcomes is undertaken by
Police following the Misuse of Drugs Amendment Act 2019.
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Independent Panel Hui Summary

• The Panel supported the establishment of an Operational Advisory Group (OAG) for the purpose
of ensuring the programme is informed by frontline insight, observations and advice from
Police’s operating environment, including management policies and practices, training, and
deployment. The OAG was established in early 2022.
• A session was held with the Police District Commanders – where the Chair of the Panel spoke
about the history of the programme and the research, to positive feedback.
• Police asked the Panel to provide advice and guidance on how Police can define what we mean
by systemic bias and racism, and practical ways to change people’s experience and/or
perception of Police in this area. Police need to know how to understand and deal with systemic
bias and racism in a practical way, based on what the literature has told us. A joint hui between
the Independent Panel and the Operational Advisory Group was held for the purpose of forming
a common understanding of the research scope, including to explore and form a consensus view
on critical terms, definitions, supporting language and communications activities. This
consensus view was then able to form part of the programme glossary, as well as provide advice
and recommendations to the Police Executive.

What are we going to do next?

• Having taken the time to reset the approach to appointing a research team and develop
application guidelines, the Panel is ready to seek applications from interested researchers.
Criteria now includes:
o An application process that is welcoming of smaller groups and individuals
o Consideration of team composition and Māori leadership, asking for applicants to offer
their skills, mana and integrity across their roles
o Submission to an Ethics Committee
o Clear responsibilities for monitoring research methodology and outputs
o Consultation and peer review
o Reference to tikanga Māori and te Tiriti o Waitangi
o Consideration of intellectual property and data ownership
• Lead the procurement process and induction of the research team once appointed.
• Guide further development of the Communications Plan, highlighting the need to balance
expectations and understanding of systemic bias, fairness and equity for both community
groups and internal Police staff and positioning the language appropriately for each audience.
A roadshow around the country will be considered, to enable kanohi ki te kanohi (face to face)
conversations in a format that is better suited to this topic. Consideration will also be given to
potential approaches of Panel members, and their use of social media outlets.