Command and Control Project Final Business Case

Reference code: 
PCD 670
Date signed: 
02 December 2019
Authorisation name: 
Sophie Linden, Deputy Mayor, Policing and Crime

Executive summary

Command and Control (C&C) is a critical service at the heart of the MPS, enabling delivery of operational policing activity. It is vital to responding to the needs of London (and beyond). It reaches into a wide array of MPS systems and processes, and it fundamentally affects the ability of officers to do their job. 

The current MPS C&C IT systems are old, increasingly difficult and expensive to maintain. The lack of integration between technologies not only generates inefficiency but also does not provide a single operating picture or enable leaders to effectively manage demand, risk and resources. The MPS does not currently exploit technological capabilities now established in the UK C&C marketplace that could deliver benefits in relation to both efficiency and effectiveness.

Engagement activity both within and outside the MPS has evidenced the need to transform the C&C operating model and to ensure the MPS can continue to collaborate operationally with its partners to keep London safe. 

The primary objective of this project is to improve operational effectiveness and provide a modern, secure digital platform by replacing the current Command and Control Solution.

The project will procure a Commercial off the Shelf (COTS) Command and Control (C&C) Solution and a System Integrator (SI) to implement, embed and manage the service. This will result in the business having to change how it operates.

The leap in capability from a system the core of which is 35 years old to one that uses and can interact with the latest digital innovations and the public, will be groundbreaking for the MPS and will enable a number of benefits.

Recommendation

The Deputy Mayor for Policing and Crime is recommended to: 
•    Approve contract award to Leidos for a 2 year implementation period with a 10 year managed service (with the option to extend for an additional 5 years). 
•    Approve Capital expenditure of up to £96m (excluding contingency) over the period 2019/20 – 2023/24. 
•    Approve the re-profiling of the Capital Programme in line with capital spend outlined.
•    Note the operating model changes as set out in the Detailed Level Design approved by Design Authority on 25th September, notably an increase of 16 posts for the Pan-London function at a cost of £1.3m per year.  This will transform visibility of operational deployments for senior MPS leaders and reduce operational risk through the creation of a single senior leader (“Silver for London”) responsible for deployments with supporting functional leads 
•    Approve the re-investment of savings as a result of reduced ongoing IT costs from the new provider (Leidos) to cover the costs of the 16 posts. 
•    Note that there is a risk of dual running costs if the project is delayed.  This could cause a revenue pressure on the MPS of up to £11.0m across 2021/22 and 2022/23 (£6.3m in 2021/22 and £4.7m in 2022/23). This is for highlighting but will not be built into the MTFP at this stage as the team are working to manage the risk of delays.  
•    Note this project to proceed to Gate 4 (‘Go Live’ Decision).
•    Note the method and approach of delivery is achievable
•    Note that arrangements for contingency are contained in the restricted section of the report.

Non-confidential facts and advice to the Deputy Mayor for Policing and Crime (DMPC)

1.    Introduction and background

1.1.    The Optimising Contact and Response Programme has been tasked with transforming Command and Control services for the MPS.

1.2.    The Outline Business Case (OBC) was approved in October 2018 (decision PCD 481).

1.3.    This FBC builds on the OBC and makes the case for the provision of a “Commercial Off The Shelf” (COTS) Command and Control Product that is already tried and tested in a similar environment to the MPS and live elsewhere in the UK.

1.4.    The case for change is compelling. The current operating model and systems were designed in the 1980s and now hold back the MPS’s ability to police in the digital and mobile age.  

•    Current C&C systems are old, expensive and suffer from a lack of integration. 
•    The current C&C operating model is disparate and results in a situation where there is often no single view, or accountability, from a command perspective, and time and effort is wasted on many duplicated activities.
•    There is little or no technical integration between key MPS systems (or other relevant external systems). This results in double keying, causing inefficiency, delayed response and cost. 
•    Officers and staff currently need to look at multiple and disparate systems to achieve situational awareness and effectively manage threat, harm and risk. 

1.5.    London is always evolving and so must the MPS. The population is growing – set to be 9.4 million by 2022. Its make up is changing and becoming more diverse (270 nationalities represented).

1.6.    There is a significant rise in mental health demand across all areas of policing. There is an ageing population with a predicted 79% increase in those over 70 by 2041. Over a third of children in London live in poverty, higher than any other region in the UK, with as yet unknown implications for future crime and social stability.

1.7.    How Londoners live is changing too – with the explosion of social media, and the internet, changing how we interact with each other in our everyday lives. On average contact by digital means is 34,000 per month.

1.8.    Demand on the MPS is growing in number and complexity. This coupled with the potential increase in officer numbers has the potential to impact on satisfaction levels.

1.9.    It is therefore paramount that the MPS has an appropriate C&C Solution that can help cope with these demands and has the ability to interface with a modern IT platform that is capable of evolving as demand changes.

1.10.    This project directly supports the MPS Direction strategy and the MPS mission to keep London safe for everyone. Enabling the MPS to respond to the needs of London will directly support its vision to be the most trusted police service in the world through delivery of the operational priorities. It will directly develop its capabilities and deliver mission critical transformation.

1.11.    C&C is at the operational heart of the MPS and is vital to responding to the needs of London (and beyond). It reaches into a wide array of MPS systems and processes, and it fundamentally affects the ability of officers to do their job. C&C enables:

•    Contact              
C&C must enable public access to MPS service and support new contact channels (particularly online). 

•    Command          
The MPS’s operating model and business structures must enable leaders to make effective decisions to manage demand, risk and resources and to collaborate both internally (across structural or geographic boundaries) and with external partners. Its technology must provide leaders with the right information at the right time. The detailed design redefines its C&C command structures where needed and will enable collaboration. The MPS will transform enabling technology and integrate this where required allowing data-driven decision-making.

•    Control               
The MPS must provide leaders with a service and technology which enables decisions to be enacted and which supports frontline officers and staff. The project will replace a number of systems and  associated capabilities providing operational colleagues with technology, which enables operational delivery.

•    Coordination      
The MPS has considerable operational complexity. The C&C operating model and supporting technology must ensure coordination of deployments and taskings (which may involve local, central and specialist resources) to ensure operational effectiveness and manage risk. Its transformed operating model and technology will provide a single operating picture enabling the MPS to deploy assets to meet the needs of London (incidents, events and pre-planned deployments).

•    Communication 
C&C will enable demand to be passed within the MPS and externally to partners, enable control/coordination and enhance officer safety. The project will ensure the operating model supports interoperability and that the technology enables the MPS to work closely with partners. It will replace ICCS to maintain voice critical radio communications & ensure future ESN compatibility.

1.12.    The primary objective of this project is to improve operational effectiveness and provide a modern, secure digital platform by replacing the current Command and Control Solution.

1.13.    The leap in capability from a system the core of which is 35 years old to one that uses and can interact with the latest digital innovations and the public, will be groundbreaking for the MPS and will enable a number of benefits.

1.14.    The main benefit is the replacement of a system that is reaching end of life. This and other benefits are summarised below: 

•    Quantitative cashable benefits – benefits which will result in a reduced revenue spend. The new C&C system will provide a reduction in running costs, as it is a more modern and flexible system.

•    Quantitative non-cashable benefits: efficiency savings, which will result in capacity being released but are not proposed to be cashable at this time. These include time savings from reduced double-keying, auto-population of contact records, etc; and reduction in talk group channels.

•    Qualitative benefits – benefits, which cannot be quantified but will deliver tangible improvements to service delivery. These include reduced organisational risk; increased management of intelligence and risk; and increased staff satisfaction.

1.15.    The Project will be delivered using MSP principles, utilising both PRINCE2 and agile project management principles. The System Integrator, Leidos, will deliver under the oversight of MPS C&C Project team. This will include training, testing and business change.


2.    Issues for consideration

2.1.    Since the OBC, the scope of the C&C Project has increased in two areas:

•    The London Emergency Service Co-ordination Centre (LESCC) (LESCC) was originally part of the Collaborative Contact and Response (CCR) Project that was closed in April 2019. Some of the elements of the CCR Project transferred into other areas of the MPS. Programme 2 Programme Board approved the LESCC being transferred to the C&C Project.

•    The Contact and Resolution Service Project (CRS) Project transferred into Programme 2 following the closure of Programme 1 – Public Access. 


3.    Financial Comments

3.1.    This is an investment case. The technology & business change will increase efficiency and allow for either savings or repurposing of resources once the system is integrated and stable. 

3.2.    The capital cost of the project is £96m, excluding contingency, over the period 2019/20 – 2023/24. 

3.3.    This will be funded through an uplift of £17m from the existing allocation in the capital programme  of £79m. 

3.4.    Revenue costs for the contract are lower than the current contracts. The savings will be reinvested into the increase of 16 posts for the Pan-London function.


4.    Legal Comments

4.1.    The Mayor’s Office for Policing and Crime (MOPAC) is a contracting authority as defined in the Public Contracts Regulations 2015 (the Regulations).  All awards of public contracts for goods and/or services valued at £181,302 or above must be procured in accordance with the Regulations. The advice of MOPAC’s lawyers below demonstrates that this is the case for this procurement. 

4.2.    This report confirms the MOPAC’s Solution Provider Framework Agreement (SPF) was the chosen route to market for a C&C solution. MOPAC’s external lawyers at the time, Michelmores, were asked to advise on the potential use of SPF as the route to market.  They advised that the risk could not be excluded of one or more COTS C&C specialist providers not on the SPF challenging the use of the SPF.  They further advised that in order to mitigate this risk

“MOPAC/MPS should clarify in the procurement documents used for the mini-competition process under the SPF that the SPF suppliers would be free and are encouraged to partner with external COTS C&C system specialist providers to submit a tender. We understand that this has been carried out verbally through the market engagement process, but we recommend it is repeated in the procurement documents themselves.”

4.3.    DLS are instructed that all SPF providers were free to partner with other COTS providers, including those not on the SPF.  DLS is instructed that of the three SPF providers which chose to submit bids all partnered with other COTS providers.

4.4.    MOPAC's external lawyers for the latter stages of the procurement, TLT, were instructed to advise during the mini-competition and evaluation process.  TLT has confirmed that it is not aware of any compliance issues arising during the procurement process or evaluation.  

4.5.    DLS is instructed that TUPE is expected to apply upon the service transfer from the incumbent contractors to the new contractor.  

4.6.    Paragraph 7.23 of the MOPAC Scheme of Delegation and Consent provides that Director of Strategic Procurement has consent to approve the award of all MPS contracts with the exception of those called in through the agreed call in procedure. 

4.7.    Paragraph 4.14 of the Scheme provides the Deputy Mayor for Policing and Crime reserves the right to call in any proposal to award a MPS contract valued at £500,000 or above. 

4.8.    Paragraph 4.8 of the MOPAC Scheme of Delegation and Consent provides that the Deputy Mayor for Policing and Crime (DMPC) has delegated authority to approve business cases for revenue or capital expenditure of £500,000 or above.

4.9.    Paragraph 4.8 of the MOPAC Scheme of Delegation and Consent provides that the Deputy Mayor for Policing and Crime (DMPC) has delegated authority to approve budget virements or movements of £500,000 and above, (whether on a temporary or permanent basis).


5.    Commercial Issues 

5.1.    Procurement was via the Solution Provider Framework (SPF) and after a competitive process Leidos was selected as the Preferred Bidder. They will be accountable for the implementation and ongoing managed service of the new C&C solution. They have partnered with three sub-contractors:
•    Hexagon (system software)
•    Frequentis (communication platform)
•    Chaucer (Business Change/Training)

5.2.    The duration and the cost of contract will be:
•    22 Month Fixed Price Implementation
•    10 Year Business as Usual Time and Material Managed Service
•    Option to Extend Managed Service by 5 Years

5.3.    The full economic and financial information is included with the restricted section of the report.


6.    GDPR and Data Privacy 

6.1.    The MPS is subject to the requirements and conditions placed on it as a 'State' body to comply with the European Convention of Human Rights and the Data Protection Act (DPA) 2018. Both legislative requirements place an obligation on the MPS to process personal data fairly and lawfully in order to safeguard the rights and freedoms of individuals.

6.2.    Under Article 35 of the General Data Protection Regulation (GDPR) and Section 57 of the DPA 2018, Data Protection Impact Assessments (DPIA) become mandatory for organisations with technologies and processes that are likely to result in a high risk to the rights of the data subjects.

6.3.    The Information Assurance and Information Rights units within MPS will be consulted at all stages to ensure the project meets its compliance requirements.

6.4.    A DPIA has been completed for this project and will remain a live document until implementation is complete.  The project will ensure a privacy by design approach, which will allow the MPS to find and fix problems at the early stages of any project, ensuring compliance with GDPR. DPIAs support the accountability principle, as they will ensure the MPS complies with the requirements of GDPR and they demonstrate that appropriate measures have been taken to ensure compliance.


7.    Equality Comments

7.1.    An Equality Impact Assessment has taken place. Due regard has been taken to the Equality Act’s Public Sector Equality Duty. Real consideration has been taken to assess equality impact caused by the proposed business changes. 

7.2.    Staff association and staff support association engagement has commenced and will continue throughout the lifecycle of the project and recommendations from the EIA will be adopted.


8.    Background/supporting papers

8.1.    Report. 


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