carried out two inspections of the Bermuda Police Service at the request of then-Governor Lord Waddington and wrote two formal reports. His first report led to the appointment of Police Commissioner Colin Coxall and his second report was completed following an inspection last January after Mr. Coxall had been in office for just less than two years.

There was a plan by the most senior members of Bermuda's Government, including the Minister of Home Affairs, Quinton Edness, to release the second Grundy Report to the public as justification for reappointing Colin Coxall as Commissioner.

Last May Mr. Edness asked Mr. Coxall to stay on in Bermuda. In June, Operation Cleansweep took place and the John Irving Pearman Affair resulted from Police observations. In July the new Governor confirmed to Mr. Coxall that his contract would be extended and the Grundy Report released to support that decision. Later in July, Mr. Edness returned from an extended holiday abroad and spoke publicly of his great support for Mr. Coxall, apparently in preparation for the announcement of the reappointment.

In a period of only a few weeks Mr. Edness did a complete about face. Instead of releasing the report and reappointing Mr. Coxall, he went to Government House and asked for Mr. Coxall to be removed as Commissioner of Police before his first term expired. The Governor, who had agreed to extend Mr. Coxall's contract, must have agreed.

Today this newspaper is printing the text of the second Grundy Report in the public interest. People can see for themselves what Mr. Grundy thought of changes in the Police Service and they can read his opinion of Mr. Coxall's contribution.

RECOMMENDATIONS 1. That a review of the necessary police establishment is carried out as soon as practicable (2.3) 2. That consideration is given to engaging independent consultants to conduct a review of the force establishment (2.4) 3. The early formation of a structure of consultative groups to reflect local and national opinion (7.6) 4 That the role of the Police Complaints Review Board is reviewed and the need for an Independent Complaints Authority is considered (11 5) 5. That the establishment of the Marine Section is reviewed with the objective of ensuring sufficient operational staff for its tasks (12.6) 6. That consideration is given to providing adequate and more spacious accommodation and facilities for the Marine Section base (12.7) 1. Introduction 1.1. In response to a request from His Excellency, the Governor of Bermuda, Lord Waddington, I carried out an inspection of the Bermuda Police Service, in my capacity as Inspector General, Dependent Territories Police Forces, between 12th and 18th January 1997 1.2.

In addition to the Inspectorate function, I was asked specifically to address the following Terms of Reference: 1. Assess progress of the implementation of the Police Service Strategy. 2. Assess operational capability of the Police Service to meets its objectives in dealing with crime and maintaining law and order. 3. Assess the improvements in community policy. 4. Assess the response of the community to the implementation of the Police Service Strategy. 5.

Advise on the process of consultation with the community. 6. Advise on the processes relating to complaints against the Police. 7. Assess the new procedures relating to personnel and in particular the leadership potential for senior Command levels. 1.3 During the course of my inspection, I had discussions with the Governor; the Deputy Governor, Mr. Peter Willis; the Premier, the Honourable Dr. David Saul; the acting Minister of Labour, Home Affairs and Public Safety, Mr. Leonard Gibbons; and the Honourable Leader of the Opposition, Ms Jennifer Smith and her colleagues, Mr. Eugene Cox and Mr.

Alex Scott. 1.4 I also met Mr. John Drinkwater, Permanent Secretary, Ministry of Labour, Home Affairs and Public Safety; and separately, representatives of commerce, tourism, and the community. During the course of the week, I had discussions with the Commissioner of Police, all of his available senior officers and with a good cross-section of the other members of the Police Service, including the Bermuda Reserve Police. 1.5. I am most grateful to all those I met for the openness of our discussions, and the frank, sometimes forthright, views which were expressed. It was clear to me that each person, regardless of their point of view, has the best interests of Bermuda at heart.

A detailed itinerary of my visit is at Appendix A. 1.6 I last visited Bermuda in May, 1994 to conduct a thorough review of the force, its operational capability and, amongst other things, to see whether or not the management procedures in place reflected the needs of the Police and the community. That review was carried out against a background of concern within the community and the police, at the rising general levels of crime, coupled with doubt about the effectiveness of the Police to cope with the various problems. 1.7 That review resulted in my making recommendations to the Governor which concerned the management of the force, the investigation of crime, the nature of traffic policing, training, civilianisation, improvement of buildings, Police complaints, and the reserve force. The great proportion of these recommendations have now been addressed and the remainder are included within the strategic plan for the force. 2. Establishment and Strength 2.1 The present establishment of the Bermuda Police Service (BPS) is 489 Police officers. The present strength of the force is 405, of whom 82 (16.7 percent) are female. 2.2 The situation with regard to the authorised establishment is unsatisfactory. Some years ago, due to economic difficulties, the Government reduced the budget for the Police force and other public service departments in several successive budgets. The Commissioner at that time was only able to manage within the reduced budgets by not filling vacant constables' posts. The cumulative effect of this was to reduce the actual strength of the force by 57 constables' posts. The resulting figure of 432 Police officers has come to be regarded as the unofficial establishment of the force. 2.3 One consistent issue raised during my visit has been the lack of available Police officers for uniform patrol duties. It is not clear how the official establishment of 489 was determined, although it probably rose over the years in response to various demands and initiatives. Policing is an expensive business and, in my view, it is essential to make an informed assessment of the optimum number of Police officers required to be able to police effectively. Such assessment should take account of gains to be made through civilisation, the use of traffic wardens and through improved equipment and vehicles, as well as the benefits of automation and computerisation. I recommend that a review of the necessary Police establishment is carried out as soon as practicable. 2.4 Such establishment reviews are complex matters, calling for particular expertise.

Consideration might be given to engaging independent consultants for the purpose. If this is not available within Bermuda, I would be prepared to advise on available expertise if necessary. I recommend that consideration is given to engaging independent consultants to conduct a review of force establishment. 3. Organisation and Structure 3.1 The present Commissioner of Police, Mr. Coxall, took command of the BPS in March, 1995, upon the retirement of Commissioner Edwards. He has a great deal of policing experience in Metropolitan and Provincial forces in the United Kingdom and was involved in management and structural change in both areas of policing. He relinquished his position as Deputy Commissioner of the City of London Police to serve in Bermuda. 3.2 Amongst the things Mr. Coxall was required to review was the organisation and structure of the Bermuda Force. Supported by his then Deputy Commissioner, Mr. Mylod, who was also from a UK policing background, he was concerned at the top-heavy nature of the senior police management, and proposed a slimmer senior command structure of one Commissioner (CoP); one Deputy Commissioner (DCoP); and by reduction of the three Assistant Commissioner (ACoP) posts to just one. This has resulted in two lines of command (Appendix B) with specific responsibilities and clearer levels of accountability for the DCoP and ACoP, each reporting to the CoP. 3.3 The various departments of the force have also been reviewed, with some realignment of roles; for example, Special Branch has been reduced in numbers, whilst the Narcotics Branch has been increased, thus reflecting the altering priorities in policing needs. The motorcycle branch, previously a separate group, has been repositioned as part of the general traffic patrol department, with the objective of more focused management of traffic. 3.4 The BPS had, at the time of inspection, 27 vacancies for constables. A recruiting programme has already commenced, and it is intended that the force will quickly be brought to its present working strength. 4. Civilisation 4.1 During my last visit, I was informed that the question of greater civilisation was to be addressed with the assistance of the Government's Management Services Department. It is wasteful of resources to employ trained police officers in non-police functions, and I was pleased to note that a civilisation programme was in place and that 20 civilians have been appointed in the last financial year to various positions in the force, releasing the same number of officers to operational duties. During the next three financial years, it is intended to civilianise a further 39 posts on the same basis. Whilst the recruitment of extra civilians in this way does cost money, it is, nevertheless, a more cost-effective way of increasing police presence operationally. 5. Police Service Strategy 5.1 The nature of policing in Bermuda must reflect the needs of its community, both commercial and domestic. The force now has a Mission Statement (Appendix C), which unequivocally sets out the style of policing to which its members are committed. It is intended to be more than just a statement, but a benchmark against which all persons coming into contact with a police officer should judge his or her standard of professionalism. 5.2 To fulfil the aims of the Mission Statement, the Commissioner has issued a Service Strategy. Consultation took place within the force before the Strategy was approved by His Excellency, the Governor and by Government. It sets priorities in the prevention of crime and the detection of criminals; the reduction of death and injury by traffic accidents; improved traffic management; the provision of high visibility community policing; and the development of the human resources within the police. The Service Strategy is, therefore, the blueprint by which the priorities will be addressed and the development of the force taken forward over the next few years. 5.3 1 am satisfied that the strategy deals with the issues which needed to be addressed. The members of the force appear to be fully aware of its approach and, more importantly, agree with its content and the necessity for a structured approach to the necessary force development. The Strategy is challenging, in that it contains 103 specific intentions. Many of these have already been addressed but much remains to be done. I congratulate the Service for the positive manner in which its members have responded to this challenge.

5.4 Outside the Police Service, I found that representatives of the community of all shades of opinion were aware of the proposed development of the BPS, and supported most of the initiatives. Whilst people, naturally, are still concerned at some aspects of policing, in particular violent crime, illicit drugs and traffic problems, there was general agreement with the need for a structured programme of development, and that the force was approaching the problems, both operational and managerial, in a positive manner. 6. Management of Crime 6.1 I have mentioned three areas of continuing public concern with crime, but there are improvements. In the three years since 1994, the general levels of crime have fallen from 5213 to 2905 (44 percent) Over the same period, reports of violent crime have reduced from 401 to 373 (7 percent); burglaries and breaking/entering offences have reduced from 1861 to 987, an overall percentage drop of 47 percent; and thefts have reduced from 394 to 335, or overall by 15 percent. 6.2 This is an excellent downturn in the figures of reported crime, which is undoubtedly due to the greater effectiveness of the Police Service in preventing crime by a higher policing profile and targeting of some offences and improved operational procedures combined with greater alertness on the part of the community. It reflects the identified Police priority for the prevention of crime. 6.3 Other factors contributing to the improved level of crime, and the detection of offenders, are the transfer of supervisory responsibility for detectives and crime investigation to divisional officers. This greater local awareness and the involvement of uniformed officers in the investigation of minor crime has been effective. The formation of a dedicated Crime Prevention Department in January 1996 from the former Crime Prevention Unit and the Government Security Unit will continue to focus the attention of Police and community on crime, and should help to introduce pro-active policing initiatives. The increasingly successful Crime Stoppers campaign is an example of joint community/Police action. 7. Community Policing 7.1 In modern policing management, the community is recognised as being at the heart of the Police Service's raison d'etre.

Increasingly, therefore, it is for the community to impact upon the style of policing which it believes to be appropriate for the locality. That this is now at the centre of police thinking is evidenced by increased support to the traditional Bermuda role of the Parish Constables. The numbers of parish constables have been enhanced, due to the civilianisation of posts elsewhere.

They now have the responsibility for dealing with some categories of crime and have received training for that purpose. Parish constables are no longer just seen as an available pool of officers but remain in their primary role where possible. The Parish Constable scheme has been extended to include other areas on the Island. 7.2 I commented previously on the potential of the Bermuda Reserve Police, as volunteer members of the community, to contribute much more to the policing of the Island. Now, with a more appropriate title and uniform, they are assisting greatly in their support to the regular force. From my discussions with the Reserve police, it is clear that they now believe that they are valued, and able to perform a public spirited and useful duty, supported by improved training and better working conditions.

5 PHOTO REPORT -- Lionel Grundy Graphic file name: GRRUNDER