United Nations Public Service Awards Case Studies

1. Rationale
The Royal Thai Police (RTP) has the mandate to maintain law and order while protecting life and property of Thai citizens. Nationwide, there are 210,000 police officers and 1,459 police stations, serving a population of 63.4 million in 77 provinces, with an officer / population ratio of 1:303. Bangkok Metropolis has the highest population density, with 10 million population and the highest crime rates. It comes under the responsibility of the Metropolitan Police Bureau and its 88 police stations. Thai society is facing a host of socio-economic problems, ranging from social inequality and injustice, to drug trafficking and addiction to more virulent crimes in terms of both volume and complexity.
Against this social backdrop, the situation is worsened by the behavior of a large number of police officers. Instead of adhering to the principles of Human and Civil Rights under the Constitution, these officers neglect to carry out their duties as required by the law. Not only do they fail to protect the public, they habitually follow a Crime Control Model that focuses on the efficiency of crime suppression. Their predilection for authoritarian and violent modus operandi is a cause for concern at the highest level. Successive governments have therefore set out to reform the entire police system. Eventually, a Police System Development Committee was set up towards the end of 2006, whose mandate is to develop and increase the efficiency of police stations in four aspects: improving service quality by standardizing the service system; engaging the public in police duties in protecting life and property and traffic control; reviewing police performance in administering justice; and standardizing the investigation system.
As part of a nationwide reform of police stations, the RTP designated Bukkhalo Police Station under the Metropolitan Police Bureau, as one of the pilot police stations. It currently provides services to 400,000 Bangkokians, covering an area of 5 square kilometers where approximately
1,677 crimes take place in a year. It is staffed with 193 police officers, resulting in a police officer per/population ratio of 1:2,072.

Bukkhalo Police Station was found to have all of the four service-related problems which had been identified earlier:
1. On administering justice. The victims and general public had no confidence in police work;
2. On crime control. The public had no confidence in police crime control and solution and failed to cooperate with the police despite an increase in crime rates and drug trafficking.
3. On traffic control. Not only was traffic managed inefficiently, the public also failed to abide by traffic laws.
4. On service delivery. The public were dissatisfied with the slow and inconvenient services, rude police officers in a disorderly environment, lacking adequate seating and parking.
With successful reform, the Bukkhalo police station was expected to deliver efficient and high quality services. The results will then be replicated in all police stations across the country so that they can transform their administration to provide more efficient and effective services to their customers as required by the reform principles.

What is the initiative about? (the solution)
2. Key Benefits of the Solution The Bukkhalo Police Station reform initiative launched in 2007 focuses on achieving service excellence. Citizens formed allied networks and participate actively in project activities with the police. Problems of police public service delivery were resolved in the following ways: 1. A strategy map showing the development process from beginning to end was designed to solve misunderstanding between policy-makers and practitioners. 2. Outcomes mapping was deployed to maintain continuity in quality improvement of services and to assess customer satisfaction. 3. A paradigm shift in service culture was expected and should change police’s authoritarian values vis-à-vis citizens whom they are supposed to serve. 4. Applying outreach program to enhance public participation unity, the police worked with their partners in communities, temples, schools, and private-sector and government agencies. 5. Applying Knowledge/Skill/Attitude (KSA) helped to enforced change in the work concept and eliminate negative image of police. When these solutions were applied, the result was dramatic improvements in every area of service. Today, Bukkhalo police station efficiently offers services which responded to public needs as measured by performance indicators for 2010: 1. On administering justice, victims’ confidence in investigators for their case work and case follow-up rose from 74 percent in 2006 to 94 percent in 2010. The investigator’s ability to offer justice also rose from 56% to 100%. 2. On life and property protection, public satisfaction at problem solving and crime control rose from 58% to 90%. Performance indicators showed confidence in the patrol officers’ ability to protect life and property rose from 64% to 100%. 3. On traffic control, public satisfaction grew from 75% to 96%. Confidence in traffic safety rose from 77% to 94% while the success in traffic control rose from 76% to 95%, and loss of life from traffic accidents decreased from 9 deaths to 4 deaths per year. 4. In general for services provided at the station and outside, public satisfaction over Front Office services rose from 74% to 96% while waiting time has reduced by 50%. Time spent requesting bail reduced by 75%. As a result of increased satisfaction, public cooperation with the police has improved. Statistics of crime solving and successful arrests at the Bukkhalo police station is now higher than the national average, and higher than the US and Singapore average as can be seen from the following: Arrests in criminal cases at Bukkhalo police station is 76.4% compared with the national average of 54.17% and US at 45.1% and Singapore at 52.5%. For theft cases Bukkhalo police station has 57.2% arrests against national average of 43.27% and in the US 18.7% and in Singapore 27%. Bukkhalo police station today has an overall crime rate of 176 cases per 100,000 persons whereas the national average is at 183. Comparatively, the US has 3,465.5 and Singapore 661 cases. (Sources: www.police.go.th, www.singstat.gov.sg, www.fbi.gov)

Who proposed the solution, who implemented it and who were the stakeholders?
3. Project Personnel and Stakeholders. Prior to 2006, there were ongoing reform efforts to improve service delivery by police stations with no tangible successes. Towards the end of that year, the Commissioner-General of the Royal Thai Police appointed the Police Operating System Development Committee. Its mandate was to tackle the service delivery system of police stations by addressing such key problems as administration of justice, protection of life and property, traffic control and delivery of general services. A development framework was given, based on three dimensions: engaging the public, reviewing work process, and standardizing the investigation system. This gave rise to the project: Police Station Reform for the Civil Society. In 2007, the RTP selected a relatively well equipped police station with outstanding performance in terms of service awards as a pilot of the new reform project. Bukkhalo Police Station, led by Police Colonel Visal Phanmani, the station chief, would be the site of experiments to identify novel and effective forms of service delivery under the specified framework. During project implementation of 2007-2010, the station continuously increased public satisfaction, and achieved the targets of all Key Performance Indicators under the four identified problems. It now serves as a development model for all of the 1,459 police stations throughout Thailand. Stakeholders in service delivery of the station may be classified in accordance with the four problem areas: 1) Justice administration: victims, suspects, relatives, witnesses, prosecutors, the courts of justice and police. The officer responsible for this issue is the Deputy Superintendent for Investigation. He heads the investigation team in identifying techniques and strategies for service delivery, such as one-stop service, effective and efficient service, and service-minded delivery. 2) Protection of life and property: the general public and the police. The officer in charge is the Deputy Superintendent for Crime Prevention and Suppression. His team maintains the safety of public life and property and searches for optimum service delivery models and security systems. A collaborative network is created among communities, households, temples, schools and government agencies to solve crimes in communities. A CCTV system is used to monitor and review patrolmen’s performance and prevent crimes at dangerous or risky spots. A Geographic Information System is deployed to follow up on each community operations as required by KPIs. 3) Traffic control: road users, drivers and pedestrians, the general public and the traffic police. The officer in charge is the Deputy Superintendent for Traffic. His team identifies techniques and methods to deliver better services and reduce road accidents. Traffic volunteers are recruited from the local community to assist traffic police with the help of CCTV to ease traffic congestions during rush hours. 4) General services delivery: victims, suspects, the general public and the police. It is the responsibility of the Inspector for General Staff and his team to identify ways to deliver more convenient and efficient services to the public by reducing time in half. Public involvement through feedbacks provides information necessary for improvement.

Describe how and when the initiative was implemented by answering these questions
a. What were the strategies used to implement the initiative? In no more than 500 words, provide a summary of the main objectives and strategies of the initiative, how they were established and by whom.
(a) Objectives and Strategies of the Initiative. The Objective: The objective is to develop a police station which is public service oriented, develops a relationship with the community they serve, using police station activities, technology and involving the community in all key services until public satisfaction is obtained. The successful model will be replicated nationwide. The Strategies: A Strategy Map identifies desirable strategies and outcomes for station development. Guidelines on how to develop police force, police stations, technologies and premises are introduced. • Implementation: Every police officer has to change his /her mindset, attitudes and values towards service, and operational methods, starting with the station chief, his team, down to every station personnel. The following activities are meant to create staff confidence:  Building mental health through training and activities that instills in personnel integrity, ethical behavior, esprit de corps, and dedication.  Building physical health through sports, community services, recreations and other unity-enhancing activities.  Establishing commitment to project objectives through directions and targets setting. An Engagement Model is adopted to mobilize participation, and to enhance joint problem-solving with the community. The result is a synergy of cultural and social forces that works more effectively towards a common goal.  Implementation :  Bukkhalo Police Station serves as the hub of development activities to be joined by an alliance of networks (communities, households, temples, schools and government agencies).  The main strategy is to create mutual sacrifice for the common good, inherent in Thai cultural and social values.  The public are engaged in social and police development work and help solve service-related problems of the station. A Service Excellence Avenue (SEA) Model is adopted to create positive impression on public by achieving excellence in service delivery on the basis of selfless dedication within the station. • Implementation: The station chief and his strategic team, with input from station personnel, draw up a service manual and blueprint, based on internal services: justice administration and general services; and external services: protection of life and property and traffic control. Outcomes Mapping is used to monitor and evaluate project development activities. This result-based approach aims to create public satisfaction in the four services. Continuous improvement is carried out, based on feedbacks from the public, • Implementation:  The strategic team and station personnel determine key indicators to assess public satisfaction with the four aspects of station services. There are indicators for outcome, output and process to be monitored on a daily, monthly, quarterly, bi-annual and annual basis.  Feedbacks and surveys on satisfaction and dissatisfaction of public and internal evaluation are used to improve quality of services continuously.  The team uses service innovations to overcome red tape. While lessons learned are used to improve internal operations, benchmarking with other agencies of excellence, contribute towards a project achievement.

b. What were the key development and implementation steps and the chronology? No more than 500 words
(b) Key Development and Implementation Steps When Bukkhalo Police station was given the mandate of undertaking police station reform, activities began in 2007. It took them three years to prove that their method works and can be replicated. In 2007: The Bukkhalo Police Station drafted and refined the new system, trained officers, improved the station to meet new demands, and worked to ensure cooperation of their local community through various joint activities. First the Station Chief, strategic team, and all station police held a workshop to set up the police station development format. The following steps helped them prepare themselves for reform: They began with developing readiness in officers in the following areas: • Mindset: Cultivating values of fairness, morality, dedication, sacrifice, for the benefit of the public who are recipients of their services. There were joint events/activities with partners in the community such as attending religious functions, performing social benefit and volunteer activities together. • Building physical strength: Improving physical health and practicing police tactics, and performing recreational activities to build unity and teamwork once a week. • Developing skills and capabilities: Surveying public needs led to a detailed operations manual for satisfaction oriented service. • Creating and modifying service culture: The police must view the public as members of their own family to whom they offer service and protection. The station was spruced up to create “customer friendly” atmosphere while officers practiced the SEA model to achieve service excellence. Next the Bukkhalo station worked on the “Engagement Model” where the police, communities, temples, schools, households and government departments work together as partners in volunteer activities in a friendly manner. With the relationship set it became easier to involve communities as partners in police station reform, to participate in every aspect of the reform through feed-backs and evaluation. Outcome mapping was designed and implemented to ensure every process gets evaluated on a continuous basis with changes made where necessary. In 2008: Strategies were refined and developed further. A work manual was developed for well-defined approaches. A work plan for communication throughout the station was launched. Quality improvement of service delivery is based on lessons learned. Monitoring and evaluation are carried out in an integrated and cross-functional manner. Better project results were recorded at year-end. In 2009: Focus was on strengthening partnership alliances. Unity was achieved through Thai cultural and social capital according to principles of the Engagement Model. Project performance registered higher public satisfaction. Thailand now has a police station reform method that has been proven to achieve all it has set out to do. In 2010: The Commissioner-General issued a policy whereby all 1,459 police stations throughout the kingdom are expected to replicate the Bukkhalo Police Station’s achievement and experimentation model.

c. What were the main obstacles encountered? How were they overcome? No more than 500 words
(c) Overcoming the Obstacles Major obstacles were overcome in the following ways: 1. People problems involve police capacity, capability and culture. Capacity • Shortage of investigating officers and patrolmen was alleviated by assigning junior officers to assist investigating officers. Crime prevention efforts were reinforced by community policing where networks of volunteers and community members help in traffic control, home visits and patrolling. • Lack of incentives for policemen to keep required standards. Police were encouraged by recognition and welfare benefits. They were trained in Customer Relationship Management (CRM) which takes into account customers’ needs and expectations. Capability • Shortage of educated and qualified staff is overcome by training in service delivery skills and deployment of KPIs in assessing their performance. • Negative attitude towards service to the public, including vulnerable groups like minority or youth and women, is changed by paradigm shift training. The public must be protected like police’s own family. • Uneven quality of services has been rectified by introduction of service quality standards, constantly improved and updated. • Lack of quality management was overcome by introduction of quality planning, control and improvement. Culture • Lack of teamwork was corrected through unity-enhancing activities in station operations. • Police patronizing attitude toward citizens were changed by training the police to understand people-centered paradigm in station development following the motto “Police must serve and protect public like their own family.” • Lack of initiative among police officers who follow orders slavishly. They are encouraged to propose creative solutions and innovations for public service. Achievements are assessed and recognized by awards. 2. Process • Lack of comprehensive assessment of services has been overcome by the creation of Key Performance Indicators. • Lack of proactive development of crime prevention and suppression was addressed by shifting focus from arrest to customers’ and community participation. Members of the public undergo training in volunteerism and social responsibility in crime suppression. Projects are launched to create better relationship among police, communities, households, temples, schools and government agencies. Better services are provided by queuing system, more staff, adopting online communication, better managing and making use of customer complaints, continuous improvement of operation procedures, and learning from best practices. 3. Money and Material Shortage of budget and equipment for station operations was overcome by support from local administrative organizations, communities, allied networks and other agencies that recognized the dedication of police force. 4. Public • Lack of social and traffic discipline in members of the public was addressed by training and awareness-raising campaigns on law and order, benefits of discipline and reduction in road accidents. • Public indifference to police work was overcome by encouraging active participation through campaigns and public relations. People now consider themselves police partners in crime prevention. Police are public members while the public are the first police officers.

d. What resources were used for the initiative and what were its key benefits? In no more than 500 words, specify what were the financial, technical and human resources’ costs associated with this initiative. Describe how resources were mobilized
(d) Mobilization of Resources 1. Human Resources Both the police and public sector have been mobilized in project implementation. Every police officer in the project had to be readied for implementation of new approach by being trained in justice administration, protection of life and property, traffic control and general services. This included consideration of the vulnerable groups like children, young women, minorities and youth who gets special legal counsel. Volunteers from the public sector are also trained for active community policing, traffic assistance and offering comments on police station service improvements. 2. Financial Resources Regular budget has been used in the project to begin with. Later funds are contributed by the private sector to support the improvement all four aspects of service. For examples, the general services that require physical improvement of the station environment, both inside and outside was funded by local community administration and fund raising activities. The contributions were used for the one-stop service area and other facilities, including communication equipments and training for station personnel. Funds are also required for justice administration in forensics training, and assistance for the underprivileged, women and juveniles who need legal counsel. In times of natural disasters, Bukkhalo Police Station has been a center for emergency relieve activities with assistance from public foundations and associations. 3. Technical Resources Modern technologies such as communication network, GIS, and CCTV are required for crime prevention and suppression and traffic control. In addition to hardware, the station has applied management tools/techniques for various stages of development and implementation. These include 5S to improve workplace and operational efficiency. Strategy Map, Outcomes Mapping, and Balanced Scorecard were used to assure the achievement of strategic objectives and to balance the stakeholders’ requirements. Police Officers are trained in public relationship management (CRM). Teams of police officers, will visit communities once a week to learn of their concerns and needs. The station also conducts benchmarking to determine best practices for accelerated improvement. 4. Values Resources 1) Cultural capital that includes time-honored traditions, and values as manifested in service delivery excellence; for example, serving customers as if they were family members or relatives, resulting in love and affection that needs no financial capital. This includes working with compassion for the juveniles, elderly, disabled and distressed young women. 2) Social capital that includes mutual trust, networks of faith that create efficiently functioning society where cooperation is assured in various public undertakings. People rely on one another for assistance, a source of synergy of all pro bono sacrifices. 3) Organizational capital within the police station where capable and well-intentioned personnel join hands in development work. The initiative has been able to integrate these four resources successfully through four levels of improvement process: • Improving the process holistically by a paradigm shift in mindset, modus operandi and attitude; • Adopting Thai cultural and social values for service delivery improvement ; • Distinguishing the new service from the old through a shift in focus; and • Delivering a better service through a well-tuned work process.

Is the initiative sustainable and transferable?
5. Sustainability and Transferability The pilot project of Bukkhalo Police Station has a conceptual framework that can be implemented, and a built-in evaluation process that makes it a successful prototype for other police stations nationwide. The following principles ensure its sustainability: 1) Project guideline, procedure, and manual were issued at the outset and followed by every officer at the station. 2) Station officers underwent a training to understand the practice of good services, positive work attitude and ethics. A service-oriented culture was created and has since been maintained. 3) An internal audit was instituted for the four aspects of services. It is monitored and evaluated systematically through various indicators, on a daily, monthly, quarterly, biannual and annual basis. A monitoring committee was set up with community participation to follow up on police work, thus ensuring people’s input in solving service-related problems of the station. 4) Risk assessment and analysis was carried out to prevent errors in the four aspects of services, including -- • Strategic risks: to prevent errors in proactive conceptualization which may not be consistent with certain strategies/vision or errors that may arise from strategies that lack public participation in their conceptualization. • Operational risks: to prevent mistakes in service delivery, for lack of manpower, fund, technology or innovation, which may adversely affect operational efficiency and effectiveness. • Emergency risks: to prevent and prepare for natural disasters and other emergencies. • Financial / reporting risks: to prevent mistakes in delivering financial services, or in inefficient reporting. • Legal/regulatory risks: to prevent errors in compliance with laws and regulations, caused by their being ambiguous, outdated or incomplete. 5) Public participation has been developed from the roots of Thai culture where families and communities become actively involved in police work. They form networks and alliances and provide input in several projects and activities from their conception, implementation, to evaluation and utilization, including such projects as Community Policing, Do not drink while intoxicated, Thinking Before Losing Your Way, and Strengthening Community. These networks and alliances ensure sustainability of the initiative. People feel the sense of ownership of the station development and the resulting common good compels them to participate in police work with dedication and selfless sacrifice. The reform at Bukkhalo Police Station has been chosen as the model to be replicated in all 1,459 police stations throughout the kingdom. The Commissioner-General issued a policy in 2010 to the effect that the adoption of the Bukkhalo model be completed within three years. To translate the policy into practice, the annual action plan of the RTP has incorporated strategies and roadmap for implementation with emphasis on individual adaptation in each locality. Project activities include: on-site training on paradigm shift and service-related culture, internal and external evaluation through indicators, the use of Information Technology, study visits of successful models, service delivery clinics in Bangkok and the provinces. Ultimately, it is expected that every officer will come to accept the benefit and viability of the reform with the common good being the ultimate goal.

What are the impact of your initiative and the lessons learned?
6. Lessons Learned 1. Committed leadership is an essential factor contributing to the success of such a development project. In order to ensure cooperation from every police officer, the station chief has to be a role model, result-oriented, and driven by determination and dedication. 2. The police force must be ready and committed to change attitude and improve physical strength and skills to provide higher service performances. This can be accomplished with commitment of the leaders to the well-being of police force and personnel. 3. Focus should be given through one-stop service with efficient process and service-mindedness to ensure public satisfaction. In order to achieve excellence, a result-based management is needed to measure process, output and outcome. 4. The Information Technology will improve efficiency and effectiveness. Hence, the police force can be reduced while increasing public satisfaction. 5. The cultural dimension of the conceptual framework provides a solid basis for sustainable development and is conducive to the introduction of further change. Public participation is crucial to the success of the pilot project. 6. Performance indicators must be continuously monitored and improved if needed to ensure the achievement of initiatives. 7. Benchmarking with a successful organization or persons or learning from best practices enables our agency to leapfrog to success. A string of awards has earned a well-deserved fame for Bukkhalo Police Station and is one of the reasons why it was chosen as the pilot station for reform in the first place. The station was recognized for its outstanding community relations by the RTP, in 1991, 1995, 2004 and 2006. During project years, the station earned nine more awards, two of which were given by Office of the Public Sector Development Commission: • Best Police Station Award, under the Project on Developing Police Stations for the People for the years 2007, 2008, 2009, 2010 from the Metropolitan Police Bureau in conjunction with the Royal Thai Police. • Outstanding Metropolitan Police Station Award for 2007-2008, from Dusit Rotary Club in conjunction with the Metropolitan Police Bureau; • Excellent Quality Service Delivery to the People Award, for the years 2008, 2009 from Office of the Public Sector Development Commission; • Excellent Police Officers Award for 2008 under the Project on Developing Service Delivery to the People, from the Association of Crime Reporters and Photographers of Thailand; • Outstanding Police Station in Administration and General Services, for 2008-2009, from Dusit Rotary Club in conjunction with the Metropolitan Police Bureau: - In protection of life and property; - In traffic control.


Institution Name:		Office of the Public Sector Development Commission
Institution Type:		Government Agency
Contact Person:		Dr. Thosaporn Sirisumphand
Title:		Secretary-General
Telephone/ Fax:		+ (66) 2 356 999
Institution's / Project's Website:		+ (66) 2 281 8169
E-mail:		colwisarn@hotmail.com
Address:		59 Pitsanuloke Rd, Dusit District
Postal Code:		10300
City:		Bangkok
State/Province:		Bangkok
Country:		Thailand

The Problem

Solution and Key Benefits

Actors and Stakeholders

(a) Strategies

(b) Implementation

(c) Overcoming Obstacles

(d) Use of Resources

Sustainability and Transferability

Lessons Learned

Contact Information