HMICS Annual Report 2025-26

State of policing 2025-26

Public service reform: from aspiration to action

The appointment of a Cabinet Secretary for Public Service Reform is a significant and welcome recognition that Scotland now requires an accelerated and sustained programme of reform across the public sector. The challenges facing public services are not new. More than a decade ago, the Christie Commission concluded that rising demand, fiscal constraint and persistent inequalities required a fundamental shift in how services are designed and delivered. Its central message remains as relevant today as it was in 2011: public services must focus relentlessly on prevention, partnership, empowerment and performance if they are to remain sustainable. Christie argued that public bodies must work more closely together, reduce duplication, prioritise prevention and reform structures that drive inefficiency and demand rather than simply managing their consequences.

Scotland's public sector must move beyond discussing reform and into a period of decisive implementation. This is not solely a matter of reducing expenditure; it is about improving outcomes for citizens whilst ensuring that finite public resources are targeted where they can have the greatest impact. The prevention of harm should be the organising principle of public service delivery, whether addressing vulnerability, health inequalities, community safety, poor educational outcomes or social exclusion. Every pound invested in prevention reduces future demand for increasingly costly crisis intervention. This was the central proposition of the Christie Commission and remains perhaps the most important lesson for public service leaders today.

The reform of policing (and fire) in Scotland provides valuable lessons for the wider public sector. The creation of a single police service was one of the most significant public service reforms undertaken in Scotland in recent decades. While reform remains an ongoing journey, the publication of the Best Value in policing - Joint Best Value audit of policing in Scotland has highlighted a number of important benefits that have emerged from a national operating model. These include national leadership, improved governance, greater consistency of service provision, enhanced partnership working, and better access to specialist resources which would be difficult or impossible for individual local organisations to sustain independently. The audit found that policing in Scotland benefits from effective leadership and governance, demonstrates strong financial management and continues to show considerable strength in partnership working.

There are wider opportunities for learning here for Scottish Government, public bodies and local partners. Future reform should actively examine opportunities to reduce organisational duplication, streamline senior management structures, consolidate corporate functions where appropriate and ensure citizens have equitable access to specialist expertise regardless of geography. Public sector structures should be designed around outcomes rather than institutional or geographic boundaries. The challenge is not whether organisations retain their individual identities but whether the citizen receives a seamless service - the notion of no wrong door is prevalent here and needs further exploration, especially around mental health, anti-social behaviour and community concerns.

The strongest evidence from policing reform suggests that shared leadership, common standards, integrated planning and collective accountability can improve resilience and enhance public value when implemented effectively.

At the same time, policing's experience demonstrates the importance of robust strategic workforce planning, medium term financial planning and a clear long term vision for service delivery. The Best Value audit recognised the need for greater alignment between strategic priorities, financial planning and workforce reform - a point that HMICS has been making for a number of years. These are challenges shared across the public sector. Public bodies must develop sustainable operating models that recognise demographic pressures, workforce constraints and changing public expectations. Reform cannot be an annual budgeting exercise; it must be anchored in long-term strategic planning supported by credible investment decisions and measurable outcomes.

Technology will also play a pivotal role in the next phase of reform. Artificial intelligence, automation and emerging robotic technologies offer significant opportunities to improve productivity, enhance decision-making, reduce administrative burdens and strengthen preventative approaches. Police and law enforcement partners must also seek to exploit, with appropriate safeguards in place, advancements in operational technology such as remotely piloted aircraft systems (more commonly known as drones) and facial recognition, that help reduce the threats posed to the public from high risk sex offenders, organised crime groups, violent offenders and others whose activities cause significant harm to communities.

Used responsibly and with clear public messaging regarding safeguards and benefits to be achieved, these technologies can release skilled professionals from repetitive tasks, improve forecasting and risk assessment, and support earlier intervention with vulnerable individuals and communities. The challenge for public sector leaders is not whether to adopt these technologies, but how quickly they can do so safely, ethically and effectively. The public sector should be ambitious in harnessing innovation to improve services whilst preserving public trust and accountability by explaining the use case for these new capabilities.

Policing's experience in managing major events provides a further example of the benefits that can arise from national capability and integrated service delivery. HMICS's recent review of preparations for the 2026 Commonwealth Games highlighted mature leadership structures, effective governance, strong partnership arrangements and the ability to deploy specialist resources across Scotland in support of a major international event. That capability reflects the advantages of a national service able to flex resources where required whilst maintaining local service delivery.

This is not a new capability. Scotland has repeatedly demonstrated its ability to deliver complex international policing operations, including Conference of the Parties (COP26) in Glasgow, multiple visits by Presidents of the United States and other globally significant events. The ability to mobilise specialist assets, intelligence capabilities, public order resources and command structures at pace provides strong evidence of what can be achieved through coordinated national arrangements combined with effective local partnerships. The Commonwealth Games review reinforces those lessons and shows how reform can strengthen resilience whilst improving operational effectiveness.

The challenge now is to apply these lessons across the wider public sector. Scotland has no shortage of ambition, innovation or public service commitment. What is required is a collective determination to reform at greater pace and scale. The Christie Commission provided the blueprint. The current fiscal climate provides the imperative. The emergence of new technologies provides the opportunity. The task for public sector leaders is to seize that opportunity, find the funding and deliver services that are preventative, efficient, integrated and sustainable for future generations.

Modernising witness citations: a practical example of public service reform

During the year, HMICS worked jointly with HM Inspectorate of Prosecution in Scotland to review the effectiveness and efficiency of the process used to cite prosecution witnesses to attend sheriff courts. While ostensibly a focused examination of a specific criminal justice process, the review identified issues that extend well beyond policing and prosecution, and which speak directly to the wider public service reform agenda or indeed failings in this regard. The inspection found a process that remains largely reliant on paper-based systems, second-class post and the personal service of citations by police officers -despite the trauma that this might cause. In a modern digital age, this approach is increasingly difficult to justify from either a service-user or value-for-money perspective. Approximately 398,000 witness citations were issued annually, with Police Scotland serving around 154,000 citations in a single year, creating a substantial and recurrent demand on frontline policing resources.

The inspection highlighted a significant opportunity to modernise service delivery through greater use of digital technology. The ability to cite witnesses electronically has existed in law for many years, yet, with limited exceptions, Scotland continues to rely on processes that have changed little over decades. We concluded that wider use of email and other digital communication methods would improve the experience of witnesses, reduce administrative burden, lower costs and release police officers to focus on core operational duties. In an environment where every public body faces financial constraints and increasing demand, such opportunities should be pursued with urgency. Modernisation of the citations process represents exactly the type of practical reform envisaged by the Christie Commission: reducing duplication, improving efficiency and redesigning services around the needs of the citizen rather than the convenience of institutions.

Importantly, this review also demonstrated the value of whole-system scrutiny. The inefficiencies identified were not the responsibility of any single organisation but arose from long-standing arrangements operating across policing, prosecution and the courts. Public services do not operate in isolation, and neither should reform. One of the recurring lessons from HMICS inspections is that many of the greatest opportunities for improvement exist at organisational boundaries where responsibilities overlap, duplication occurs and accountability becomes fragmented. The citations review provides a compelling example of how independent scrutiny can identify opportunities to improve outcomes across an entire public service system rather than within one organisation alone.

The review also raises a broader point about scrutiny and accountability across the justice sector. While policing and prosecution are subject to established independent inspection arrangements, there remains no equivalent inspectorate providing routine independent scrutiny of the courts and tribunals system in Scotland. Given the interdependent nature of the justice system, there is merit in considering whether stronger arrangements for whole-system oversight could help identify barriers to reform, support more effective strategic planning and accelerate modernisation across organisational boundaries. The challenges identified in relation to witness citation cannot be viewed solely through the lens of policing or prosecution; they require collective ownership with collective solutions designed to put the citizen first in a trauma-informed manner.

More broadly, the inspection reinforces a central theme emerging from HMICS scrutiny during the year. Sustainable public service reform will not be achieved simply through budget reductions or organisational restructuring. It requires public bodies to challenge longstanding practices, embrace digital transformation, redesign services around users and make better use of technology to reduce avoidable demand. The findings from the citations review demonstrate that relatively small changes in process can produce significant gains in efficiency, improve the experience of citizens and release scarce resources to focus on activities that most directly contribute to public safety and the effective administration of justice. In that regard, the review serves as a practical example of how independent scrutiny does contribute to the wider reform of Scotland's public services.

Football violence and community impact

The publication of the Scottish FA’s independent review into the disorder surrounding the Rangers v Celtic Scottish Cup quarter-final at Ibrox on 8 March 2026 should serve as a watershed moment for Scottish football. The report’s conclusion that the events were a “near miss”, arising from significant failures in planning, communication and matchday safety, is deeply concerning. While responsibility for violent and disorderly behaviour rests unequivocally with those individuals who chose to engage in it, the findings also demonstrate that the risks associated with this fixture were not fully recognised, planned for or mitigated by all stakeholders involved. The scenes witnessed, including pitch incursions, assaults, the use of pyrotechnics and threats to public safety, were unacceptable and caused injuries to those involved. A situation that cannot continue to be tolerated.

There is a clear need for a more joined-up and intelligence-led approach to the management of high-risk football fixtures. Policing alone cannot be expected to shoulder the burden of controlling behaviour that originates from a small but persistent minority of supporters. In excess of 550 officers were deployed to police the game in March depriving communities of those police officers and increasing the cost of policing through overtime or other deferred costs. The increasing threat of violence and disorder, especially outside the ground, is likely to increase these numbers in future games, much of those will not be covered in the costs paid by the clubs to Police Scotland.

Clubs, governing bodies, local authorities and supporter groups must share responsibility with policing in creating a safer environment. This should include enhanced risk assessment processes, mandatory multi-agency planning exercises for high-risk matches, stronger stewarding arrangements, improved segregation and egress planning, and the consistent use of evidence-led sanctions against those involved in violence or disorder.

There must also be greater accountability for supporter groups whose actions create significant operational risks and costs. Consideration of a stronger sanctions' regime against individuals and the clubs they support by the game’s governing bodies should be developed and implemented. If these are not pursued, then I would call on government to take action to mandate a regime that puts the safe enjoyment of football (or any other sporting event) at the forefront of the planning and delivery of such events. Elements such as restricting the number of fans allowed to attend matches, banning orders with more rigour, requirements to use modern technologies such as facial recognition to prevent the attendance of banned individuals should all be explored and enacted to ensure that this behaviour is stopped.

Safety certificates for sporting events have been subject to review by His Majesty’s Chief Inspector of Police, Fire and Rescue. I am aware that this review will be published shortly and was delighted to welcome inspectors from that organisation to speak with colleagues across policing and event management in Scotland. We should listen closely to their recommendations to understand how they can be applied in Scotland.

Success should ultimately be measured by reducing the demand placed on policing, allowing officers to focus on wider community priorities rather than repeatedly responding to preventable disorder at football matches. The vast majority of supporters attend games responsibly and peacefully; they deserve a football culture that is safe, welcoming to all and free from the actions of those who continue to tarnish the reputation of Scotland’s national game

Supervision and leadership

Effective supervision and leadership underpin all aspects of policing performance and our inspections bear this out, showing that where supervision is consistent, informed and visible, outcomes improve across the board – for victims and communities, and for officers and staff. Conversely, any weaknesses in supervision and adherence to processes reduce the ability to identify risk and address poor practice early, diminishing the likelihood of ethical decision making. If policing is to improve and not repeat its mistakes, it is essential that all learning from incidents, complaints and near misses is systematically captured and translated into practice. 

Over the past six years, HMICS has consistently highlighted the importance of effective staff supervision, appraisal and performance management to the health of policing in Scotland. Across annual and inspection reports and thematic reviews, we have repeatedly found that weaknesses in first line supervision reduce Police Scotland’s ability to manage risk, assure decision making and support officers operating in high pressure environments. Our inspection evidence shows that where appraisal is inconsistent, infrequent or lacking, this limits meaningful feedback, leaving officers unclear about expectations and undermining individual development and accountability. Conversely, where supervision is active and performance discussions are regular and constructive, we have observed stronger ethical awareness, better compliance with policy and improved service delivery.  

Our reports highlight how effective performance management supports workforce wellbeing – supported and well managed staff are more confident in raising concerns, learning from errors and sustaining professional standards – and how clear performance frameworks help align individual objectives with organisational priorities, reinforcing legitimacy and public confidence. Robust supervision also enables early identification of training needs and underperformance, reducing the likelihood of more serious failures developing. Our many years of inspection evidence demonstrates that effective performance management is not merely an administrative function, but a vital mechanism for supporting individuals, strengthening leadership and ensuring continuous improvement across policing in Scotland. 

Professional standards

This year’s report also reflects on the findings of the Information Commissioner’s Office regarding failings in Police Scotland’s professional standards investigation processes. The issues identified – relating to information handling, timeliness and transparency – have implications beyond compliance with data protection law, since they speak directly to organisational culture, accountability and public confidence. (Police Scotland fined £66k and reprimanded following serious data mishandling).

Professional standards investigations must be fair, lawful and efficient if they are to protect both the rights of individuals and maintain trust in the system’s ability to police itself. Recent reporting to Scottish Police Authority committees has highlighted concerns regarding performance in a number of important areas, including backlogs in complaints handling, crime recording administration, subject access requests and responses to freedom of information requests. These functions provide important indicators of the overall health, capacity and effectiveness of the organisation. Although steps are being taken to address these challenges, there is a risk that existing pressures will continue to grow at a time of significant financial constraint.

Such functions are important in understanding the general health of the policing system and although steps are being taken to address them, the concern is that pressure is growing at a time of budget challenges, with high numbers of officers unable to be deployed and short term contracted staff being let go to balance the budget. A sustainable strategic workforce plan is essential to address the operational aspects and supporting functions that allow for effective responses and performance reporting on issues that matter to the public. 

Our work does not seek simply to identify shortcomings, but to support improvement. Effective policing depends on learning – within Police Scotland and across the wider justice system – and the themes above highlight the interconnected nature of policing reform. The lessons currently emerging from the Police Reform White Paper in England and Wales, as well as the findings from the Baroness Casey Review, are a useful external lens for Scotland to test its own approach to governance, accountability and public engagement. Policing structures may differ, but principles of legitimacy, ethical leadership and victim centred justice are universal and must be positively promoted.

The work we have undertaken in the last year is not intended simply to identify shortcomings, but to support improvement. Effective policing depends on a culture of learning and continuous development, both within Police Scotland and across the wider justice system. Our reports continue to inform both policy and legislative development with recommendations and impartial advice to Scottish Government shaping and informing drafting of legislation including the Police (Ethics, Conduct and Scrutiny) (Scotland) Act 2025 and the Police Service of Scotland (Vetting)  Regulations 2026.

The themes highlighted throughout this report demonstrate the interconnected nature of policing reform and the importance of addressing challenges in a coherent and joined-up manner.

I remain committed to providing independent and evidence-based scrutiny that supports improvement, strengthens accountability and helps ensure that policing in Scotland continues to meet the needs and expectations of the communities it serves while delivering best value.

Craig Naylor

His Majesty’s Chief Inspector of Constabulary

August 2026