Police Pursuit Driver Training

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Definitions 

 

Report

 

Introduction 

 

 

Section One - Training

 

1. Core Competencies 

2. Health and Safety 

3. Attitude 

4. Refresher Training 

5. Night Time Driver Training 

6. Harmonised Driver Training 

 

 

Section Two - Operational

8.   Pursuit Management 

9.   Containment Procedures

10. Use of Sirens and Lights

11. Use of In-Car Video

12. Alcohol

13. Communication

14. Mobile Phones

 

 

Section Three - Technology

16. Vehicle Conspicuity

17. Vision Testing

18. Stopping Devices

Section Four - Administration

19. Management of Police Vehicle Accidents

20. Management of Drivers

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1. The Service should take proper account of Health & Safety in all areas of police driving activity, particularly in respect of the provision of suitable 'control measures' (para 2.4).

 

2. All aspects of Health and Safety issues should be considered equally applicable to driver training and operational activity (para 2.6).

 

3. Pursuits should be subject of vigorous control and only undertaken by trained personnel. Individuals should only engage in pursuits in suitably equipped vehicles and must continually consider the consequences of the pursuit (para 2.7).

 

4. Individuals should only exercise legal driving exemptions, such as exceeding the speed limit, if they have received the appropriate driver training (para 2.10).

 

5. Risk assessments should identify areas of organisational and individual responsibility. Assessments should be sufficiently flexible to include local operating conditions, limitations and policies, having special consideration for localised dangers or specialist operational requirements (para 2.14)

 

6. Attitudinal training should be included in driver training course structures. Representatives of Driving Schools' Conference and National Police Training (NPT) should be tasked with defining detailed competencies and course structure (para 3.10).

 

7. The book 'Human Aspects of Police Driving' by Doctor Gordon Sharp in association with the Scottish Police College should be required reading for police driving students (para 3.11).

 

8. Periodic formal assessment of driving skills should take place between each 3-5 years. A return to driving duties, after 12 months or more absence from a particular standard, should be accompanied by an appropriate assessment and refresher training provided as necessary (para 4.3).

 

9. Driver training should fulfil operational needs and as far as practicable reflect the operational environment. The Working Group therefore recommend driver training during the hours of darkness (para 5.2).

 

10. Driving Instructor training should be taken forward with a National Instructors Course based on competencies appropriate to driving instruction and receive recognition by way of a National Vocational Qualification (paras 6.1 - 6.5).

 

11. Skill areas have been produced (Section 1) and it is recommended, in accordance with the terms of reference, core competencies are developed within each training package. It is further recommended that identification of the core competencies is jointly undertaken by qualified driving instructors, recognised by Driving Schools Conference, and suitably qualified persons in the field of education and training (para 6.7).

 

12. Driver training should be taken forward nationally with three core courses (para 6.8):

Basic Driving - Training to fulfil a patrol function within the constraints of the Highway Code.

 

Standard Driving - Extending basic training to include emergency response driving, night response driving and most importantly, attitudinal training. A pragmatic introduction to pursuit incidents and pursuit management in line with standard level car control skills.

 

Advanced Driving - Achieving a high level of all round driver skills, enabling pursuits and high speed response driving, as well as a full understanding of the effects of attitude and associated stress.

13. Courses should be competency based and each competency should have an identified minimum skill. It is appropriate that the determination of course content and the identification of minimum skill levels is undertaken by those responsible for the development of core competencies (para 6.9).

 

14. Where it is anticipated that tactical surveillance driving skills will be required during surveillance operations, it is recommended that drivers will have successfully completed the NPT accredited surveillance training course (para 6.11).

 

15. To achieve a commonality of approach driving instructor training and more generally driver training will need to be subject of co-ordinated national quality assurance procedures. It is recommended that all police driver training establishments be accredited by NPT or similar institution to ensure course standards are validated and verified (para 6.12).

 

16. Police Controllers and Air Support Staff should receive pursuit management training, regular refresher training and ensure the training takes a pragmatic hands on approach. Where Forces utilise dog handlers to assist with resolution of pursuits they should be similarly trained (para 7.4).

 

17. All pursuits must be conducted in accordance with the nationally agreed ACPO Pursuit Codes of Practice (paras 8.1 - 8.2).

 

18. It is recommended in order to keep pace with developments and training, technology and understanding, the ACPO Pursuit Codes of Practice are reviewed regularly to ensure the highest standards of safety and effectiveness (para 8.6).

 

19. All police vehicles that engage in pursuits and emergency response should be equipped with both sirens and emergency lights. Such equipment will be used in all appropriate circumstances (paras 10.1 - 10.2).

 

20. Communication systems on vehicles being driven in pursuit and emergency response circumstances should be capable of operation in 'hands free' mode (para 13.1).

 

21. Simulator technology is currently being evaluated to determine if it is sufficiently realistic to provide improved training for police drivers. This report recommends that ACPO consider the use of sponsorship and the formulation of partnerships with industry or universities, in conjunction with PSDB, to develop simulator technology appropriate for police application (para 15.11).

 

22. All marked police vehicles (irrespective of whether the Force has an Air Support unit) should have roof markings as recommended by the ACPO Air Support Sub-Committee and the PSDB report "Standard Roof Markings for Police Vehicles" (para 16.1).

 

23. The Service should pay particular attention to developments in available warning systems and emergency lighting and as research identifies improvements Forces should make best use of the technology (paras 16.3 - 16.5).

 

24. Current eye sight requirements for entry into the service have been published in the Home Office circular 7/98 and Forces may wish to consider these as a standard pre-requisite for driver training (para 17.3).

 

25. The correlation between types of visual impairment to driver ability are not yet established. This report recommends that the following tests of higher level perceptual function are further evaluated (para 17.5):

UFOV (Useful Field of View) visual attention analyser.

DRTS (Drivers Reaction Time Simulator).

 

26. This report recommends the wide availability and early deployment of vehicle stopping devices by trained officers. National standards should apply to the training and application of such devices (paras 18.9 - 18.10).

 

27. Police and support staff control room operators should also receive training as the use of this equipment requires their involvement and understanding (para 18.11).

 

28. To assist future research and analysis the service through ACPO should define universal categories of police vehicle accidents such as those occurring during pursuits, emergency response and general patrol (para 19.2).

 

29. Police vehicle accidents resulting in death or life threatening injury or where the circumstances may be a matter of public interest have normally been voluntarily referred to the PCA under Section 87 PACE Act 1984. Such openness is to be applauded and is recommended as good practice (para 19.3).

 

30. Forces should be vigorous in the supervision and audit of police vehicle accidents. Reports should be examined to determine driver training needs, the suitability of vehicles used, the proper application of policies and procedures to control risks and the effectiveness of associated equipment such as sirens (para 19.5).

 

31. Notice should be taken of the document 'A Review of Serious Accidents Involving Police Pursuits and Emergency Response 1993 - 1995', ACPO Traffic Committee in consultation with the Police Complaints Authority. Forces should ensure that its recommendations have been considered for implementation (para 19.6).

 

32. Line managers should take a far greater responsibility for both the supervision and development of driving skills which should be reviewed through the annual appraisal system in the same way as any other policing skills (para 20.4).

 

33. Forces should retain details of police drivers' accident history within a system which enables high risk drivers to be identified for review (para 20.6).

 

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DEFINITIONS

Pursuit

 

ACPO '8:      'A police pursuit occurs when police attempt to stop the driver of a motor vehicle and the driver refuses to obey the officer, following which the police give chase for the purpose of stopping the fleeing driver.'

 

Horner '95:  'A "pursuit" is where appropriately trained officers, in suitable vehicles, pursue a fleeing vehicle with the intention of safely causing it to stop.'

 

TPAC:         'A "pursuit" is where appropriately trained officers, in suitable vehicles, pursue a "target"' vehicle with the intention of safely causing it to stop."

1.1 One of the key elements of this report was to identify all the pertinent aspects of police driver training which will provide officers with the ability to fulfil pursuit driving duties to a nationally recognised standard. One model for police driving competencies has been designed by the Metropolitan Police and the Working Group examined the detail of their work which is a very extensive programme of competencies.

 

1.2 The Working Group restricted itself to identify key areas of skill where competency is required. The detailed development of those competencies to ascertain levels of skill against required driving standards has to be jointly undertaken by qualified driving instructors and suitably qualified persons in the field of education and training. It is therefore envisaged that core competencies can be drawn from the skill areas identified below which will be developed into suitable training packages by Driving Schools Conference and National Police Training.

 

 

Table of Identified Skill Areas

 

1. Attitude

 

(a) Theory

A knowledge and understanding of 'Human Aspects of Police Driving' in addition to and expanding upon chapter 1 of 'Roadcraft The Police Drivers' Handbook'.

 

(b) Practical

Through training and driver record history able to display a professional attitude toward safety, incorporating speed, risk assessment and accidents.

 

(c) Decision Making

Have the ability to make decisions in a methodical way without hesitation, based on what can be seen, what cannot be seen and what can reasonably be expected to happen.

 

2. Fitness

(a) Mental

The ability of the individual to make a personal and honest ongoing assessment in respect of:-

• alertness;

• fatigue;

• stress;

• emotional condition.

 

(b) Physical

To meet agreed levels of physical fitness appropriate to the role.

To meet the recommended level of eyesight.

 

 

3. Observation

 

(a) Visual

Observing the environment;

Assessment of visual information;

Hazard awareness and planning;

Adjusting driving plans accordingly.

 

(b) Audio

To meet the recommended level of hearing.

 

 

4. Co-ordination

 

The ability to co-ordinate mental and physical processes under stress.

 

 

5. Roadcraft Skills

 

(a) An in-depth knowledge of the 'Roadcraft' manual and the 'Highway Code'.

(b) Fully conversant with the system of car control and its application over the five phases.

(c) Vehicle handling skills as recommended by 'Roadcraft' in respect of:

• acceleration, using gears, braking and steering;

• skidding;

• drivers signals;

• positioning;

• cornering;

• overtaking;

• motorway driving;

• speed and safety.

• (d) A working knowledge of the effects on vehicle stability.

  (e) The ability to execute all recommended skills to the agreed standard during day or night time driving.

   

   

   

  6. Operational Skills

   

  (a) Use of sirens.

  (b) Use of emergency lights.

  (c) Use of communications equipment including:-

• commentary;

• radio management of a pursuit situation.

(d) Use of in car video.

 

 

7. Pursuit Tactics

 

(a) Use of air support and other support functions.

(b) TPAC containment procedures.

(c) Use of Hostyd (Hollow Spike Tyre Deflation System) type devices.

(d) Other tactical techniques as determined by ACPO.

 

 

8. Vehicle Maintenance Skills

 

(a) Knowledge of vehicle capabilities.

(b) Basic maintenance.

 

 

9. Legislation

 

(a) A full working knowledge of road traffic legislation and in particular legal driving exemptions in respect of pursuits and emergency response.

 

(b) A full working knowledge of ACPO pursuit policy and codes of practice.

 

(c) A full working knowledge of local Force policy in relation to pursuits and emergency response.

 

(d) A working knowledge of Health and Safety legislation.

 

(e) An understanding of risk assessment.

 

(f) A full understanding of personal and Force liability.

 

(g) Issues of evidence and prosecution.

 

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2. Health and Safety

 

2.1 The Police Health & Safety Act 1997 received royal assent on 21st March 1997 and, when implemented, will have the effect of applying all provisions of the Health & Safety at Work Act 1974 to police officers, police cadets and special constables.

 

2.2 There are a number of managerial responsibilities emerging from this legislative change which include:

• ensuring Health & Safety arrangements are implemented in their area of activity;

• making suitable and sufficient risk assessments where personnel are likely to be exposed to risk of injury to their health and safety;

• carrying out inspections of work area and equipment;

• ensuring accidents are investigated;

• ensuring individual personnel are aware of their responsibilities for Health & Safety;

• ensuring personnel under their control are adequately trained, informed, instructed and supervised;

• ensuring those hazards they do not have the authority to correct are reported to the appropriate level of management.

 

2.3 Whilst recognising the specific responsibilities of individual Chief Constables and senior managers, it must be remembered that all personnel have a responsibility for Health & Safety at work, and as such have an important role to fulfil in the implementation and application of the legislation. At its simplest, police pursuits are a work activity. When a pursuit is undertaken there is a danger of an accident occurring (the hazard). The potential for an accident occurring during a pursuit is high (the risk). The new legislation requires Forces to adopt measures (the control) to minimise the risk of a hazard occurring whilst undertaking the work activity, i.e., to realise the risk of an accident occurring whilst undertaking a pursuit.

 

2.4 Health & Safety, as it relates to the Police Service, has not yet been enacted and there is limited previous case law to draw conclusions from. If, however, Health & Safety legislation is looked at more generally there are examples which indicate the seriousness with which the Courts view such matters. Legal opinion would suggest that failure of the Service to take proper account of Health & Safety legislation, particularly in respect of the provision of suitable 'control measures' would undoubtedly leave Forces, and perhaps individuals, open to litigation.

 

2.5 Joint Home Office/ACPO Guidance (Volume III) A Guide on Risk Assessment, incorporates a generic risk assessment on mobile patrol which includes reference to vehicle pursuit activity. This element of a risk assessment has been considered by the Working Group and developed in line with the experiences of members.

 

2.6 All aspects of Health & Safety issues apply equally to all driver training and operational activity.

 

2.7 Vehicle pursuits have been proven to be a high risk activity, attracting intense public and media interest, particularly when injuries are caused. However, it is the view of the Working Group that pursuit activity is an inevitable aspect of policing which will continue to occur. Pursuits should be subject to vigorous control and only undertaken by trained personnel. Individuals should only engage in pursuits in suitably equipped vehicles and must continually consider the consequences of the pursuit.

 

2.8 What is or is not a suitable vehicle is a matter for individual Chief Constables. The types of considerations will include whether the vehicle is operating in urban or rural areas, the number of vehicles available and the prevailing conditions. The underlying proviso is that the activity should not exceed the capability of the driver or the vehicle or a combination of both.

 

2.9 The Working Group consider that the Police Service has a fundamental duty to equip its staff with skills, through training, to successfully and safely undertake those operational driving tasks which the individual might reasonably expect to face.

2.10 Whilst a vehicle being used for police purposes entitles the driver to certain legal driving exemptions, such as exceeding the speed limit, the individual should only exercise those exemptions if they have received the appropriate level of driver training.

 

2.11 The successful conclusion of appropriate training would enable an officer to be proficient in all required skills and would include the ability to make a ‘continual risk assessment’ as a pursuit progressed and to make appropriate decisions to reflect a changing environment.

 

2.12 A structured Health & Safety approach is complementary to existing ACPO policy on pursuits (Section Two - Operational: Pursuit Management). It incorporates all aspects of pursuit training and provides a considered structure for the operational framework.

 

2.13 A revised and enhanced risk assessment is included (Appendix). This is not considered to be a definitive risk assessment as it cannot take account of particular unique local features or all operations where a pursuit may be a likely outcome. Operational managers are advised to consider the Home Office ACPO assessment together with the revised risk assessment (Appendix) when preparing their own assessments.

 

2.14 Localised dangers, such as an area demanding special operational consideration, need to be incorporated, reinforcing the need for risk assessments to be responsive and flexible. Risk assessments must be completed by a competent person who would be expected to know and have experience of the following:

 -- the area

 -- department or activity to be assessed (i.e. a detailed understanding of the procedures)

 -- shift patterns

 -- local limitations (it would be unacceptable to refer to Air Support or HOSTYDS if none

     were ever likely to be available)

 

2.15 The revised risk assessment (Appendix) is focused on the pursuit element and is not intended to minimise the importance of other vehicle related risk assessments such as pre-patrol vehicle checks, use of tyre deflation devices or TPAC tactics which should be dealt with separately.

 

2.16 The Safety Representatives and Safety Committee Regulations 1977, plus the Health & Safety (Consultation with Employees) Regulations 1996, provide a framework for consultation. The regulations empower Trade Unions to appoint safety representatives to represent them and require an employer to establish a safety committee, if requested to do so by at least two safety representatives. For the purposes of this legislation, when enacted, (anticipated 1st June, 1998) Staff Associations will fulfil the role of a Trade Union under the regulations. In order to meet the demands of these regulations any proposed risk assessment should be subject to consultation.

 

2.17 The application of a structured approach to the completion of risk assessments in this highly sensitive area of police activity, presents the service with an opportunity for critical appraisal of pursuit activity and for positive action to maximise safety.

 

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Recommendations

 

1. The Service should take proper account of Health & Safety in all areas of police driving activity, particularly in respect of the provision of suitable 'control measures' (para 2.4)

 

2. All aspects of Health and Safety issues should be considered equally applicable to driver training and operational activity (para 2.6)

 

3. Pursuits should be subject of vigorous control and only undertaken by trained personnel. Individuals should only engage in pursuits in suitably equipped vehicles and must continually consider the consequences of the pursuit (para 2.7)

 

4. Individuals should only exercise legal driving exemptions, such as exceeding the speed limit, if they have received the appropriate driver training (para 2.10)

 

5. Risk assessments should identify areas of organisational and individual responsibility. Assessments should be sufficiently flexible to include local operating conditions, limitations and policies, having special consideration for localised dangers or specialist operational requirements (para 2.14)

 

 

3.1 Professional driving relies on maintaining a positive attitude which provides tolerance and consideration for other road users. Drivers should be capable of a realistic appraisal of their own abilities taking account of the prevailing driving environment with an overriding responsibility for safety.

 

3.2 Stressful driving situations such as pursuits or emergency response can induce negative attitudes and emotions which impair driving performance by reducing information processing within the brain. This results in increased reaction time and reduced observational skills with an obvious risk to road safety.

 

3.3 It is recognised that the level of competence required to suppress dangerous attitudes is not necessarily within the capability of all police officers. Psychometric and psychological testing of police driving students is an area currently being considered by Forces and may become a component part of future selection procedures.

 

3.4 These could be assessed using a set of computer based tests, or incorporated within pre-planned scenarios on a driving simulator. A low cost personal computer (PC) based simulator could be designed specifically for this assessment, or various scenarios could be programmed into a more realistic simulator, possibly comprising vehicle cabin, sound and motion. The advantages of using a simulator are that the selection tests would be directly recognisable as being related to an officer's ability to perform tasks relevant to the job. Potential examples include hazard perception, speed of reaction to dynamic events in peripheral vision (more on this under Vision Testing), ability to concentrate on the driving task despite an assortment of distractions, and the potential for suffering from dangerous attitudes when under pressure.

 

3.5 The 'Police Driving Report 1989' recognised research by the Police Research Support Unit (PRSU) into driver attitudes and recommended further investigations into this area which was found to have an affect on driver behaviour. By including the work of Dr. Robert West, the 1994 publication of the revised 'Roadcraft the Police Drivers Handbook' introduced information on the affects inappropriate attitudes can have on the police driver.

 

3.6 In recognising the importance of attitudinal training as a key area of development in driver safety the Traffic Training Division of the Scottish Police College engaged the expertise of Doctor Gordon Sharp who, as a former head of the RAF Aviation Medicine Training Centre at Farnborough, had amassed vast experience in identifying and dealing with attitudinal problems affecting the information processing and decision making ability of aircrew.

 

3.7 Driver error has been identified as the single most blameworthy cause of injury accidents. Since the 1930s when advanced driving courses were introduced, the incidents of police driver accidents has reduced from one accident in every 8,000 miles travelled to one accident in every 250,000 miles travelled (source 'Human Aspects of Police Driving'). Despite this dramatic reduction the most significant cause of accidents remains driver error which research closely links to driver attitude.

 

3.8 Dr. Sharp conducted research including 'on-board' studies of police drivers operating under the pressures commonly found within both operational and training environments and subsequently developed in-depth training focusing on the problems and needs of the police driver.

 

3.9 This work resulted in the attitudinal training package 'Mind your Attitude' and subsequent publication of the book 'Human Aspects of Police Driving'. The book deals comprehensively with the causes and effects of negative attitudes and is written specifically for the police officer. It provides information on the requirement and ability of officers to cope with the variable and often extreme pressure present within the complex environment of the police vehicle.

 

3.10 Many police driving schools have already included Dr. Sharp's attitude training package into their course structure. This Working Group considers this an area of best practice. It would seem appropriate, if representatives of Driving Schools' Conference and National Police Training (NPT) are tasked with defining detailed competencies and course structure, they should include attitudinal training.

 

3.11 The Working Group acknowledge the benefits of enabling officers to recognise and cope with the symptoms of stress induced behaviour which will prepare them for the most demanding driving situations. In consequence the Working Group recommend that 'Human Aspects of Police Driving' should be required reading for students to complement and expand on the content of 'Roadcraft the Police Drivers' Handbook'.

 

 

 

Recommendations

 

6. Attitudinal training should be included in driver training course structures. Representatives of Driving Schools' Conference and National Police Training (NPT) should be tasked with defining detailed competencies and course structure (para 3.10).

 

7. The book 'Human Aspects of Police Driving' by Dr. Gordon Sharp in association with the Scottish Police College should be required reading for police driving students (para 3.11).

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4.1 Health & Safety Legislation demands that skills are reassessed regularly and where appropriate suitable refresher training should be given.

 

4.2 Line managers are capable of taking a greater role in relation to the supervision and development of driving skills. It is recognised that the bulk of police supervisors may not have any particular aptitude or skill as driver trainers, however, as police officers they are expected to be capable of identifying poor driving. Sergeants and Inspectors should take a positive role in identifying and dealing with driving weaknesses in their subordinates. In essence they are able to identify incidents of poor driving, recklessness or cavalier attitude. This may highlight the need for reassessment and where appropriate the provision of refresher training.

 

4.3 Driving skills as with any other skills may deteriorate over time or with lack of use. This is particularly evident with more advanced skills. It is evident therefore that where enhanced skills are required as part of daily or periodic use those skills will require regular assessment and refresher training. It is recommended that such periodic assessments should take place between each 3 - 5 years. A return to driving duties, after 12 months or more absence from a particular standard should be accompanied by an appropriate assessment and refresher training provided as necessary.

 

 

Recommendation

 

8. Periodic formal assessment of driving skills should take place between each 3 - 5 years. A return to driving duties, after 12 months or more absence from a particular standard should be accompanied by an appropriate assessment and refresher training provided as necessary (para 4.3).

 

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5.1 It is accepted that historically the Service has not undertaken comprehensive training during the hours of darkness. Many Forces now incorporate an element of night time training in their courses. The 'PRG study' clearly shows the number of accidents that occur during darkness, but it is not clear if there is a correlation between accidents and levels of driver training.

 

5.2 A recent Police Scientific Development Branch (PSDB) survey of driver training methods (Report on Police Driver Training, Swift Research Ltd 1997) concluded that officers expressed mixed opinion regarding the importance of night time driver training. The Working Group, however, are of the view that driver training should fulfil operational needs and as far as possible, reflect the operational environment. The Working Group therefore recommend driver training during the hours of darkness.

 

 

Recommendation

 

9. Driver training should fulfil operational needs and as far as practicable reflect the operational environment. The Working Group therefore recommend driver training during the hours of darkness (para 5.2).

 

 

6.1 The Working Group acknowledge the comments made by the 'PRG study' and has come to similar conclusions.

 

6.2 The Working Group is strongly of the opinion that to ensure consistency and credibility of a national training package driving instructors need to be accredited. It is recommended instructor training be taken forward with a National Instructors Course. There is a need to ensure that training is delivered to consistent national standards. In essence to ensure a consistent standard of police driving there needs to be a similarly consistent standard of instruction and examination.

 

6.3 To achieve this it is suggested that driving instructors acquire a vocational qualification. The acquisition of that qualification should follow a structure of driver training similar to that adopted by the Trainer Development Programme of NPT. Competencies specific to Instructors should be identified and form the basis of their training

This would allow present Instructors to collate evidence from their workplace and through accreditation of prior learning have their qualifications recognised to the agreed vocational qualification.

 

6.4 The Working Group in recognition of this and developments within the police service and NPT (e.g., Trainer Development Programme) recommend that the above measures can best be achieved by setting instructor competencies against appropriate selected units such as level 3 training and development which is currently available as a National Vocational Qualification within the police environment.

 

6.5 It is recommended, competencies appropriate to driving instruction are considered and form the basis for instructor qualifications and therefore maintain instructional standards for current and future police driver training. If the proposed strategy for unifying instructional standards is accepted then it is envisaged that NPT and the Driving Schools' Conference would be able to construct a suitable qualification and training course.

 

6.6 The Working Group undertook a survey of all Forces to determine the content of driving courses and competencies. It was clear there are a number of different training strategies throughout the country. For instance, there was a great disparity between course content, length, instructor/student ratio, teaching and assessment methods. The conclusions of the Working Group are also reflected in the findings of the survey undertaken by PSDB and published by Swift Research Ltd. Replies to the Working Group survey were varied in depth but a number of individual Force documents were received and taken into consideration.

 

6.7 Drawing upon this evidence the Working Group considered the skill areas (Section 1) applicable to the development of core competencies, in accordance with the terms of reference. The Working Group determined that the identification of the core competencies should be jointly undertaken by qualified driving instructors, recognised by Driving Schools Conference and suitably qualified persons in the field of education and training.

6.8 It is recommended that driver training be taken forward nationally with three core courses. These courses represent three unique standards of driving.

Basic - Training to fulfil a patrol function within the constraints of the Highway Code.

 

Standard - Extending basic training to include emergency response driving, night response driving and most importantly, attitudinal training. A pragmatic introduction to pursuit incidents and pursuit management in line with standard level car control skills.

 

Advanced -  Achieving a high level of all round driver skills, enabling pursuits and high speed response driving, as well as a full understanding of the effects of attitude and associated stress.

 

6.9 Each course will comprise a number of competencies and each competency should have an identified minimum skill level appropriate to the particular course. It is appropriate that the determination of course content and the identification of minimum skill levels is undertaken by those responsible for the development of core competencies.

 

6.10 Once the three core courses and their individual competencies are established, Forces requiring supplementary driving skills can incorporate additional training to complement, such as defensive VIP or TPAC training.

 

6.11 Health and Safety legislation makes it clear that training should be provided which adequately reflects the task demanded of an officer. Where it is anticipated, therefore, that tactical surveillance driving skills will be required, during surveillance operations, it is recommended that drivers will have successfully completed the NPT accredited surveillance driving course.

 

6.12 To achieve a commonality of approach, as stated, driving instructor training will need to be addressed. More generally, driver training will need to be subject to co-ordinated national quality assurance procedures. To help to achieve this, it is recommended that all police driver training establishments be accredited by NPT or other similar institution to ensure course standards are validated and verified.

 

 

Recommendations

 

10. Driving Instructor training should be taken forward with a National Instructors Course based on competencies appropriate to driving instruction and receive recognition by way of a National Vocational Qualification (paras 6.1 - 6.5).

 

11. Skill areas have been produced (Section 1) and it is recommended, in accordance with the terms of reference, core competencies are developed within each training package. It is further recommended that identification of the core competencies is jointly undertaken by qualified driving instructors, recognised by Driving Schools Conference, and suitably qualified persons in the field of education and training (para 6.7).

 

12. Driver training should be taken forward nationally with three core courses (para 6.8):

Basic  - Training to fulfil a patrol function within the constraints of the Highway Code.

 

Standard - Extending basic training to include emergency response driving, night response driving and most importantly, attitudinal training. A pragmatic introduction to pursuit incidents and pursuit management in line with standard level car control skills.

 

Advanced  - Achieving a high level of all round driver skills, enabling pursuits and high speed response driving, as well as a full understanding of the effects of attitude and associated stress.

 

13. Courses should be competency based and each competency should have an identified minimum skill. It is appropriate that the determination of course content and the identification of minimum skill levels is undertaken by those responsible for the development of core competencies (para 6.9).

 

14. Where is it anticipated that tactical surveillance driving skills will be required, during surveillance deployment involving vehicles, it is recommended that drivers will have successfully completed the NPT accredited surveillance driving course (para 6.11).

 

15. To achieve a commonality of approach driving instructor training and more generally driver training will need to be subject of co-ordinated national quality assurance procedures. It is recommended that all police driver training establishments be accredited by NPT or similar institution to ensure course standards are validated and verified (para 6.12).

 

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7.1 The Horner Report 1995 and Police Driving Report 1989 identified the need for control room operators to receive training in pursuit management. As with driver training the amount and depth of this training varies considerably.

 

7.2 Refresher training, in particular, must be carried out more frequently. Pursuit practices evolve over time and through such training expertise and confidence can be developed.

 

7.3 The Working Group believes that a pragmatic approach to this training should be introduced and in particular training scenarios should involve drivers, supervisors and controllers. In this way training should seek to meet the needs of all the parties involved in the management of a successful pursuit.

 

7.4 Forces should ensure that control room operators, air crew and supervisors receive pursuit management training, regular refresher training and ensure that the training takes a pragmatic 'hands on' approach. Where Forces utilise dog handlers to assist with resolution of pursuits they should be similarly trained.

 

 

Recommendation

 

16. Police Controllers and Air Support Staff should receive pursuit management training, regular refresher training and ensure the training takes a pragmatic 'hands on' approach. Where Forces utilise dog handlers to assist with resolution of pursuits they should be similarly trained (para 7.4).

 

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8.1 This report supports the findings of the 'PRG study' into deaths and serious injuries and in particular, supports the principle that the overall number of pursuits should be kept to a minimum. It is essential officers who consider pursuit of a vehicle first apply the ACPO policy. Such consideration will help ensure only appropriate pursuits are undertaken with potential to reduce the overall number.

 

8.2 Where a vehicle pursuit becomes necessary it will be conducted in accordance with the nationally agreed ACPO Pursuit Codes of Practice summarised below.

 

(a) The risk is becoming too great;

(b) The suspect becomes known to them;

(c) The suspect is a juvenile;

(d) The offence is not serious;

(e) The matter can be dealt with subsequently;

(f) Road or traffic conditions dictate.

 

Pursuits require competent and professional management. Where a decision has been undertaken to engage in a pursuit the report recommends that the following activities must be considered to bring pursuit to an early and safe resolution:-

(a) Hostyd (Stinger type devices);

(b) TPAC containment systems;

(c) Air Support.

 

Ramming is a very dangerous practice and is prohibited except in extreme cases.

 

8.3 Ramming presents a high risk to both police drivers and offenders. In extreme cases it may be necessary to ram a fleeing vehicle to bring a pursuit to a conclusion. Ramming should only be permitted in circumstances where allowing an offender to continue driving presents a serious and immediate threat to the safety of other members of the public. Other vehicle containment systems such as TPAC procedures or vehicle stopping devices should always be considered before ramming.

 

8.4 There is an explicit responsibility placed upon the drivers of police vehicles undertaking pursuits to constantly review the need for continuance of a pursuit against the risk to members of the public.

 

8.5 Whilst radio controllers and supervisors have similar responsibilities in the final analysis it is the driver who has the ultimate responsibility. The report acknowledges that this places a heavy burden on police drivers and, therefore, supervisors must never criticise any driver who calls off a pursuit. Such decisions must always be supported.

 

8.6 The ACPO Pursuit Codes of Practice were written following publication of the Horner Report 1995. It is recommended in order to keep pace with developments and training, technology and understanding, the ACPO Codes of Practice are reviewed regularly to ensure the highest standards of safety and effectiveness.

 

 

Recommendations

 

17. All pursuits must be conducted in accordance with the nationally agreed ACPO Pursuit Codes of Practice (paras 8.1 - 8.2).

 

It is recommended in order to keep pace with developments and training, technology and understanding, the ACPO Pursuit Codes of Practice are reviewed regularly to ensure the highest standards of safety and effectiveness (para 8.6).

 

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9.1 Following the publication of the Horner Report on Pursuits in 1995 the ACPO Personnel and Training Committee approached Surrey Police with the requirement to produce a training package which would support the concept of TPAC and could effectively be delivered to the Police Service.

 

9.2 The TPAC training package approaches the resolution of pursuits from a range of perspectives from the use of HostydS to boxing or ramming. The training develops the theme of a team approach and provides for the acquisition of skill by the various participants, in particular, and in a very practical way, it seeks to inform supervisors, radio controllers, air support staff and police drivers of their responsibilities. All staff are required to train and practice communication techniques, the organisation and management of pursuits and the various tactical strategies.

 

9.3 The various strategies have been shown to be effective and accommodate a range of resources likely to be available to Forces.

 

 

10 Use of Sirens and Lights

 

10.1 Studies strongly advise that all police vehicles that engage in pursuits and emergency response should be equipped with both sirens and emergency lights. These should be in use at all times whilst the vehicle is engaged in an emergency response in order to provide maximum warning to the public of the presence of the police vehicle.

 

10.2 The 'PRG study' states "unless tactical judgement dictates otherwise, police drivers involved in pursuits and emergency responses should be required to use their sirens and lights in all but exceptional circumstances such as silent approaches to a burglary". This report supports and reinforces that view.

 

 

Recommendation

 

19. All police vehicles that engage in pursuits and emergency response should be equipped with both sirens and emergency lights. Such equipment will be used in all appropriate circumstances (paras 10.1 - 10.2).

 

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12.1 It is ACPO policy that breath tests are carried out on the drivers of vehicles involved in all accidents. This must include all police drivers.

 

13.1 The successful undertaking and conclusion of a pursuit requires good communication between the police driver and control room operator. This communication is almost exclusively carried out using radio systems. Radio systems fitted to patrol vehicles should be capable of operation in a hands-free mode. When such equipment is used in the hands-free mode, this, in conjunction with extensive driver training allows for the proper control of the police vehicle at all times. Advanced police drivers are specifically trained to give commentary of events whilst retaining full control of the vehicle and it is this skill which enables a driver in a pursuit situation to communicate with the controller.

 

 

Recommendation

 

20 Communication systems on vehicles being driven in pursuit and emergency response circumstances should be capable of operation in 'hands free' mode (para 13.1).

 

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15.1 Simulator technology is fast advancing and is currently being evaluated by PSDB. Simulators range from personal computer (PC) based desktop systems capable of offering a wide variety of scenarios at modest cost to increasingly expensive mid-range and high fidelity systems incorporating excellent visual displays with wide fields of view, rear view projections and motion bases providing a realistic driving environment.

 

15.2 Mid-range and high fidelity simulators are capable of recreating realistic 'virtual' environments and could be used to project a range of scenarios which might be difficult to achieve within the time constraints of current training. For example, it is possible to simulate a variety of lighting and weather conditions on different road classifications within a set time, whereas weather conditions in real life do not change from bright sunshine to rain, to fog, snow and ice during both day and night within consecutive weeks of a typical training course. Numerous factors determine whether a simulator provides a realistic driving experience and some of these features such as steering wheel force feedback and traffic noise can be included with varying degrees of realism.

 

15.3 Flight simulators have been used in the aviation industry for many years, and a great deal of time and effort has been spent on their development. A straightforward comparison between the price of an aircraft and a comparable simulator indicates that purchasing an aircraft simulator for training purposes is a cost effective exercise. An identical comparison for a car and a driving simulator does not provide the same conclusion, as there is a great deal of variation in the capabilities of driving simulators and they can typically cost upwards of £50,000 for a mid-range system to around £1,000,000 for a high fidelity system.

 

15.4 There are, however, far wider implications which should be considered, especially in relation to the health and safety of officers and the public. Every Force is responsible for ensuring that their officers are adequately trained for the functions they are requested to perform and pursuit driving is no exception to this. It is perceived that simulators will fulfil a variety of roles as supplementary training aids to better prepare drivers to face unpredictable live situations.

 

15.5 Aircraft travel at high speeds and it is often assumed that since it is possible to simulate flight, then any other form of simulation would be relatively simple. Why then have driving simulators not yet become an established part of driver training? Despite the high speeds involved in flight, the attention of the pilot is generally focused on instrumentation within the cockpit, rather than on the horizon and objects passing by outside.

 

15.6 Aircraft simulators are often housed in a real cockpit with screens or monitors replacing the windows, and provide a realistic environment in which pilots are trained to fly a specific model of aircraft. Driver training is completely different in this respect. The major emphasis is not about learning the location of the controls or how to react to instrumentation warning signals, and the mechanical handling of different makes and models of motor vehicles is not significantly different to warrant simulators for each one.

 

15.7 Driver training is more directly focused on what is happening outside the vehicle cab, and the reality of this external environment is crucial to the realism of the simulator. Creating a realistic 'virtual' environment requires a tremendous amount of computing power, and increases significantly if pedestrians and other vehicles in the scene are required to move and react unpredictably as in real life. Advances in computer technology in terms of increasing processing speed and reducing prices are making driving simulators ever closer to becoming a viable supplementary method of police driver training.

 

15.8 PSDB are focusing on determining the police operational requirements for a simulator, to provide a safe training environment to supplement current methods. Simulators of varying price and capability are being examined by PSDB to identify those with potential for development for police driver training. Several systems have been developed in Europe or America but would need to be adapted for driving on the left hand side of the road and displaying appropriate road signs for use in the UK. Initially a simulator might be applied to individual elements of training such as response or pursuit driving.

 

15.9 It is believed that a high fidelity system will provide great benefit to police driver training, and that partnership with industry or universities in conjunction with PSDB should be sought to develop 'high fidelity' simulators. Consideration needs to be given as to whether a full motion high fidelity system should be housed as a national facility or built with the capability to be transported around the country, for local use.

 

15.10 Current proposals from discussions between ACPO Traffic and PSDB are to tailor a low cost PC based system for police driver training which could be afforded by all Forces and might include some form of psychometric testing. It is perceived that simulators will fulfil a variety of roles as supplementary training aids, but controlled experience on public roads will remain absolutely necessary to mirror the operational demand facing police drivers.

 

15.11 At the current time, simulator technology is being evaluated to determine if it is significantly realistic to provide improved training for police drivers and the Working Group recognise its potential. This report recommends that ACPO consider the use of sponsorship and the formation of partnership with industry or universities in conjunction with PSDB, to develop simulator technology appropriate for police application.

 

 

 

Recommendation

 

21. Simulator technology is currently being evaluated to determine if it is sufficiently realistic to provide improved training for police drivers. This report recommends that ACPO consider the use of sponsorship and the formulation of partnerships with industry or universities, in conjunction with PSDB, to develop simulator technology appropriate for police application (para 15.11).

 

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16.1 In order to assist in the management of pursuits it is recommended that all marked police vehicles (irrespective of whether the Force has Air Support) have roof markings as recommended by the ACPO Air Support Sub-Committee and the PSDB report 'Standard Roof Markings for Police Vehicles'. This report is currently being updated in respect of improvements in signing materials.

 

16.2 ACPO have considered high conspicuity police vehicle markings known as the 'Battenburg' design. In September 1997, ACPO Traffic Committee endorsed the findings of the vehicle conspicuity Working Group, New livery design has been recommended and the Department of the Environment, Transport and the Regions are reviewing the 1989 Lighting Regulations to continue to allow police vehicles to utilise the recommended livery.

 

16.3 Current research is looking at the effectiveness of audible warning systems and emergency lighting. Research has been carried out on white noise siren systems designed to improve sound information quality. Tests do indicate that the utilisation of this type of sound device assists other road users especially pedestrians and cyclists to more easily identify the direction from which an emergency vehicle is travelling.

 

16.4 There is a growing opinion that whatever sound system is utilised by emergency vehicles, at speeds of over 45 mph sound becomes ineffective and cannot be heard by occupants in vehicles in advance of the emergency vehicle.

 

16.5 It is becoming evident that combinations of emergency lights and flashing headlights are the primary sources of advanced warning of the presence of emergency vehicles travelling at high speed. Current research is considering the use of alternate flashing headlamps and pulse flashing lights. As research identifies improvements in equipment the Service should make best use of available new technology.

 

 

Recommendations

22. All marked police vehicles (irrespective of whether the Force has an Air Support unit) should have roof markings as recommended by the ACPO Air Support Sub-Committee and the PSDB report 'Standard Roof Markings for Police Vehicles' (para 16.1).

 

The Service should pay particular attention to developments in available warning systems and emergency lighting and as research identifies improvements Forces should make best use of the technology (paras 16.3 - 16.5).

 

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17.1 The Working Group wished to include in the review an appraisal of police driver visual assessment to more accurately establish the relevance of vision or types of vision to driver co-ordination and reaction.

 

17.2 The Group looked at a number of research papers that examined vision and driver ability although none related directly to pursuit driving or the police environment. Generally and fairly obviously the views expressed suggest that drivers with poor eye health, visual sensory impairment, cognitive impairment and/or visual attentional defects are at greater risk of being involved in road accidents.

 

17.3 The question arises, does the Service test these areas sufficiently well before training its drivers? Currently most forces use the Keystone Screener. This tests visual functions such as visual acuity, colour vision, stereoscopic depth perception, eye muscle balance and the horizontal extent of the visual field. Current eyesight requirements for entry into the Service have been published in the Home Office circular 7/98 and Forces may wish to consider these as a standard pre-requisite for driver training.

 

17.4 An adequate field of vision is necessary for driving. Basic visual functions such as visual acuity are tested as part of the driving test, in accordance with legislation requiring drivers to be able to read a registration plate of standard dimensions at a distance of 20.5m (67 feet) in good daylight. However, some researchers are of the opinion that a driver's ability to react to moving objects in the periphery of an image (the useful field of view) and resolve details of a moving target (dynamic visual acuity) are a greater influence on driving performance, and may be linked with accident involvement. Drivers focusing on the road ahead need to maintain an awareness of potential hazards, such as pedestrians about to cross a road, and it is believed that suitable methods of assessing these would be an appropriate addition to the current static visual tests.

 

17.5 Computer based tests to assess higher level perceptual functions such as 'useful field of view' and 'drivers reaction time' are under development. The Working Group recognises that these could be used as stand alone tests or incorporated into a driving simulator and recommends that the following tests are further evaluated:

- UFOV (Useful Field Of View) visual attention analyser;

- DRTS (Drivers Reaction Time Simulator).

 

17.6 The UFOV analyser, developed in the USA, tests a driver's ability to respond to the sudden appearance of an object in the periphery while concentrating on a central object. This is designed to reproduce driving demands which require us to divide our attention between guiding the vehicle along the road while also being aware of potential hazards that might arise from other areas of the road surroundings.

 

17.7 The DRTS, currently being developed in the UK, was designed to add a dynamic element to the UFOV test. While the UFOV test presents the driver with brief stationary stimuli, the DRTS presents the driver with a moving driving scene. Like the UFOV test, the DRTS puts a demand on the driver to concentrate on a central object (a car which may suddenly brake) while having to be aware of other objects in the periphery (pedestrians who may suddenly cross the road).

 

 

Recommendations

24. Current eye sight requirements for entry into the Service have been published in the Home Office circular 7/98 and Forces may wish to consider these as a standard pre-requisite for driver training (para 17.3).

 

25. The correlation between types of visual impairment to driver ability are not yet established. This report recommends that the following tests of higher level perceptual function are further evaluated (para 17.5).

UFOV (Useful Field of View) visual attention analyser.

DRTS (Drivers Reaction Time Simulator).

 

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18.1 The Working Group is aware that the PSDB have been undertaking work on behalf of ACPO (Traffic) and the Joint Standing Committee on the Police use of Firearms in respect of mechanical stopping devices for stopping vehicles.

 

18.2 The vehicle stopping devices fall into three broad categories, portable tyre deflation systems, nets and permanent/semi- permanent tyre deflation systems.

 

18.3 There are several manufacturers of these products all of which have been recently evaluated by PSDB.

 

18.4 The tyre deflation systems are either tyre cutting devices which lead to rapid deflation of tyres or hollow spike which result in a controlled deflation of the tyre.

 

18.5 It is recognised that a number of Police Forces have particular problems in certain estates and town centres involving vehicle crime and incidents of 'police baiting' and 'displays'.

 

18.6 A number of best practices do exist where Forces have worked in partnership with the local authorities to effect a road environment aimed at deterring and preventing such criminal behaviour. The use of permanent or semi-permanent tyre deflation devices may be appropriate in these circumstances and it is for individual Forces to evaluate such systems as necessary.

 

18.7 Net systems are a derivative of devices designed to prevent aircraft over-shooting runways and such systems have been evaluated by PSDB. Conclusions suggest there is limited application and they are unlikely to be useful in a police capacity.

 

18.8 The portable devices (Hostyds) like 'Stinger' or 'Stop-Stick' are devices that are deployed in front of a moving vehicle and cause a controlled deflation of the tyres predominantly resulting in a reduction of the speed the fleeing vehicle can travel at. In the majority of cases this has proven to bring the pursuit to a safer resolution.

 

18.9 The Group recommends the wide availability and early deployment of tyre deflation systems by trained officers to optimise the potential to bring pursuits to a safe and early conclusion.

 

18.10 The Working Group recognise that various HOSTYD type devices will be made available to Police Forces and considers it is essential that national standards are applied to the training and application of such devices. This would ensure consistent use and deployment particularly relevant to cross-border incidents.

 

18.11 Police and civilian control room operators should also receive training as the use of this equipment requires their involvement and understanding.

 

 

Recommendations

 

26. This report recommends the wide availability and early deployment of tyre deflation systems by trained officers. National standards should apply to the training and application of such devices (para 18.9 - 18.10).

 

27. Police and support staff control room operators should also receive training as the use of this equipment requires their involvement and understanding (para 18.11).

 

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19.1 The PRG study proved problematic as research was hampered by a lack of comparable information between all Forces. The PRG stated that under the current position it was almost impossible for any meaningful national statistics to be collated on a regular basis without resorting to specific research studies.

 

19.2 The Service through ACPO and HMIC have articulated a common understanding and definition of what may be considered a police vehicle accident. To facilitate future research, it would seem prudent that the Service through ACPO define universal categories of police vehicle accidents such as those occurring during pursuits, emergency response and normal patrol.

 

19.3 The investigation of a police vehicle accident and supervision of that investigation is a matter for individual Chief Constables. It is the experience of the Working Group, where death or life threatening injury occurs or where the circumstances may be a matter of public interest, the investigation of the accident will be voluntarily referred to the PCA under Section 87 PACE Act 1984. By adopting such an approach the Service demonstrates its openness and accountability and is considered good practice.

 

19.4 There are, however, many accidents involving injuries (to both police and members of the public) which may not be independently assessed. As a matter of course, a number of accidents will be referred to the CPS for consideration of prosecution. It is crucial for the public to perceive that the Service is both open and accountable, and that robust and thorough enquiries take place following police vehicle accidents.

 

19.5 Forces should be vigorous in the supervision and audit of investigations and reports of police vehicle accidents. Reports should also be examined to determine driver training needs, the suitability of vehicles used, the proper application of policies and procedures to control risks and the effectiveness of associated equipment such as sirens.

 

19.6 Research dealing with the investigation of serious accidents involving police pursuits was published in June 1997 by ACPO Traffic Committee in consultation with the Police Complaints Authority in the document 'A Review of Serious Accidents Involving Police Pursuits and Emergency Response 1993 - 1995'. Although the research was based on a limited number of incidents the recommendations of the report are well considered and highly relevant. Forces should ensure these recommendations have been considered for implementation.

 

 

Recommendations

 

28. To assist future research and analysis the service through ACPO should define universal categories of police vehicle accidents such as those occurring during pursuits, emergency response and general patrol (para 19.2).

 

29. Police vehicle accidents resulting in death or life threatening injury or where the circumstances may be a matter of public interest have normally been voluntarily referred to the PCA under Section 87 PACE Act 1984. Such openness is to be applauded and is recommended as good practice (para 19.3).

 

30. Forces should be vigorous in the supervision and audit of police vehicle accidents. Reports should be examined to determine driver training needs, the suitability of vehicles used, the proper application of policies and procedures to control risks and the effectiveness of associated equipment such as sirens (para 19.5).

 

31. Notice should be taken of the document 'A Review of Serious Accidents Involving Police Pursuits and Emergency Response 1993 - 1995', ACPO Traffic Committee in consultation with the Police Complaints Authority. Forces should ensure that its recommendations have been considered for implementation (para 19.6).

 

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20.1 The Working Group felt that the management of police drivers places too much emphasis on post incident concerns rather than positive overall management.

 

20.2 Whilst it is accepted that lessons will continue to be learned through post incident investigation, the Working Group is of the view that continued development through appraisal and re-training has greater potential for improving drivers' skills.

 

20.3 It is recognised that driver training is expensive. It is therefore important that the development of an officers' driving skills is properly managed throughout his/her career. A considered approach will minimise costs and maximise the effective use of acquired skills.

 

20.4 Police driving should be viewed as a core policing skill. Line managers should take a far greater responsibility for both the supervision and development of driving skills, which should be reviewed through the annual appraisal system in the same way as any other policing skill.

 

20.5 The PRG study raised the issue of the number of police vehicle accidents per driver and recommends that this area should be subject of particular attention by Forces. Research suggests that a significant number of drivers who have police vehicle accidents have also had one or more previous accidents.

 

20.6 It is recommended that Forces retain details of police drivers’ accident history within a system which enables high risk drivers to be identified for review.

 

 

Recommendations

 

32. Line managers should take a far greater responsibility for both the supervision and development of driving skills which should be reviewed through the annual appraisal system in the same way as any other policing skills (para 20.4).

 

33. Forces should retain details of police drivers' accident history within a system which enables high risk drivers to be identified for review (para 20.6).

 

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