Recommendations & Conclusions
22 items
7
Recommendation
Twenty-Ninth Report - The National Law …
Accepted
The Department told us about its new engagement model, with more iterative delivery intended to enable quicker release cycles, so that capability gets into the hands of police forces more quickly.9 Where previously the Department had been looking at release cycles of around 12 months, it said it was aiming …
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The Department told us about its new engagement model, with more iterative delivery intended to enable quicker release cycles, so that capability gets into the hands of police forces more quickly.9 Where previously the Department had been looking at release cycles of around 12 months, it said it was aiming to reduce them to around three months or less for products, so that the certainty of delivery would be higher.10 When asked about its confidence in delivering the programme by 2025–26, the Department said that its recent work on the reset and the new engagement model had given it “increased confidence of deliverability of this programme going forwards”. It added that it had a 12-month rolling plan and had identified the initial six products that would be delivered.11 When asked about longer-term milestones, the Department said it had a rolling one-year timescale of milestones, on which it could give the Committee further detail and update us in future.12 It said it was looking ahead not over the next five years, but a year ahead from every quarter, which was why it was confident about the progress for six products over the next 12 months, but would then “update that as we go.”13 After our evidence session the Department provided us with its ‘roadmap’ covering progress of its first six product areas up to the end of quarter 3 (September) 2022.14 We have re-produced some key parts of that ‘roadmap’ in Figure 1. We expect to return to this subject to see whether the Department has progressed with these products as planned, and look forward to regular updates being provided to us.15 6 C&AG’s Report, paras 16, 3.18 7 C&AG’s Report, para 2.17 8 Q 52; C&AG’s Report, paras 2.17, 3.18 9 Qq 39. 47 10 Q 38 11 Q 47 12 Qq 48, 51, 52 13 Q 90 14 Letter from Home Office Permanent Secretary to PAC Chair 7 October 2021 15 Q 52 10 The National Law Enforcement Data Programme Figure 1: Extracts of the Home Office’s October 2021 ‘roadmap’ looking ahead 12 months for the first six produ
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Government response AI summary
The government accepts the recommendation and is setting up a Product Centricity Steering Committee, devising a Product Maturity Assessment, and creating a Product Owner Playbook to monitor and evaluate the new engagement model. Further details will be provided in an April update.
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HM Treasury
8
Conclusion
Twenty-Ninth Report - The National Law …
Accepted
The Department told us that it has also retained what it called a ‘no-go option’ for the programme, whereby it could still decide to transfer the PNC on to a different platform, but without getting the same benefits of transformation, such as being cloud-based. It The National Law Enforcement Data …
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The Department told us that it has also retained what it called a ‘no-go option’ for the programme, whereby it could still decide to transfer the PNC on to a different platform, but without getting the same benefits of transformation, such as being cloud-based. It The National Law Enforcement Data Programme 11 said it was confident in the benefits of its new approach which allowed more flexible and gradual adoption, force by force. But the programme remained complex and technically challenging, with obstacles that could get in the way, and so it was retaining this option as the “ultimate fallback”.16
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Government response AI summary
The government agrees with the observation that it retains a 'no-go option' for re-platforming the PNC. The response details the implications of this option, including that initiating it would require pausing the NLEDP programme for 2-3 years due to funding limitations, as the current settlement …
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HM Treasury
9
Conclusion
Twenty-Ninth Report - The National Law …
Accepted
One of the critical success factors for the programme is having the right people in place to deliver it. The programme depends on access to the PNC team but that team lacks capacity to support other programmes as well as manage the PNC, and this issue has caused delays.17 Key …
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One of the critical success factors for the programme is having the right people in place to deliver it. The programme depends on access to the PNC team but that team lacks capacity to support other programmes as well as manage the PNC, and this issue has caused delays.17 Key staff on the PNC team are approaching retirement, while the specialist skills and knowledge required to maintain the PNC make it difficult for the Department to recruit and train replacements.18 The Department emphasised the difficulties of finding people with the niche skills required, such as working with coding language from the 1970s. It pointed to having carried out various recruitment activities, recent and ongoing, and to having restructured the programme team over recent months.19 We registered our concern that it had taken the Department so long to be getting to grips with an issue about the skills needed to deal with an old legacy programme, when the need to do so should have been clear from the start.20 Poor decision-making about the programme
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Government response AI summary
The government agrees with the committee's conclusion regarding staffing and skills challenges, and will strengthen its approach by commissioning strategic workforce plans for major programmes and by strengthening project entry criteria by June 2022.
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HM Treasury
10
Conclusion
Twenty-Ninth Report - The National Law …
Accepted
There were numerous reasons for the Department’s failure to deliver the NLEDS programme to the originally expected timetable. These included: • The Department and the police did not have a consistent shared understanding of the programme, with the focus of the programme changing several times; • The Department did not …
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There were numerous reasons for the Department’s failure to deliver the NLEDS programme to the originally expected timetable. These included: • The Department and the police did not have a consistent shared understanding of the programme, with the focus of the programme changing several times; • The Department did not prioritise the programme’s funding relative to other law enforcement ICT programmes, resulting in short-term funding shortfalls every year from 2016 to 2019; • The Department changed several fundamental aspects of the NLEDS technology as the programme progressed, resulting in additional work and expenditure; and • The Department’s management approach, with multiple contractual relationships, produced a bureaucratic culture and inefficient development process.21
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Government response AI summary
The government agrees with the observation and states that the NLEDP programme board has been strengthened with senior Home Office officials. The board now meets monthly to evaluate progress, and periodic engagements with the Permanent Secretary and IPA appraisals are in place to improve oversight …
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HM Treasury
11
Conclusion
Twenty-Ninth Report - The National Law …
Accepted
By early 2018, the Department had recognised that the programme would not deliver as originally planned. It had underestimated the amount of work required and the effort remaining was unaffordable within the allocated budget. In June 2018, the Infrastructure and Projects Authority (IPA) reviewed NLEDS and concluded that delivery of …
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By early 2018, the Department had recognised that the programme would not deliver as originally planned. It had underestimated the amount of work required and the effort remaining was unaffordable within the allocated budget. In June 2018, the Infrastructure and Projects Authority (IPA) reviewed NLEDS and concluded that delivery of the programme appeared to be unachievable. The Department began its first ‘reset’ of NLEDS in early 2019. By autumn 2020 the police had lost confidence in the programme and, in response, the Department began a second reset, which is still being implemented.22 16 Qq 48–51 17 Q 94; C&AG’s Report, Figure 9 18 C&AG’s Report, para 3.7 19 Qq 94, 95 20 Q 96 21 C&AG’s Report, paras 9–12 22 C&AG’s report, paras 13–14, 1.13 12 The National Law Enforcement Data Programme
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Government response AI summary
The government agrees with the committee's conclusion regarding past programme failures and states that the NLEDP programme board has been strengthened with senior Home Office officials and enhanced scrutiny, with implementation already underway.
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HM Treasury
12
Conclusion
Twenty-Ninth Report - The National Law …
Accepted
The former SRO for the NLEDS programme acknowledged that the Department should have come earlier to the stage where it stepped back, stopped work and considered more fundamental choices about how to proceed. He described how the Department had under-estimated the complexity it expected to find within the old PNC …
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The former SRO for the NLEDS programme acknowledged that the Department should have come earlier to the stage where it stepped back, stopped work and considered more fundamental choices about how to proceed. He described how the Department had under-estimated the complexity it expected to find within the old PNC system. For example, it anticipated that asking the system to show a person’s driving licence would be relatively simple, perhaps involving up to five business rules, but it turned out to involve
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Government response AI summary
The government agrees with the implied recommendation and states it has implemented it by strengthening the NLEDP programme board with senior officials and establishing bi-monthly engagements with the Permanent Secretary for oversight and scrutiny.
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HM Treasury
40
Conclusion
Twenty-Ninth Report - The National Law …
Accepted
The lack of documentation for the PNC meant that the Department repeatedly came across such surprises.23 The Department’s former CDDTO added that “our real error was that we underestimated the complexity.”24 Working with the police forces
Government response AI summary
The government agrees with the implicit recommendation and is implementing specific actions to embed a new partnership approach with policing, including a revised Engagement Model, a Product Centricity Steering Committee, a Product Maturity Assessment, and a Product Owner Playbook to improve collaboration and avoid future …
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HM Treasury
13
Conclusion
Twenty-Ninth Report - The National Law …
Accepted
The operational independence of UK police forces is a key challenge for the Department’s implementation of national law enforcement programmes such as NLEDS. The 45 UK police forces are independent of central government, which means that the Department does not generally direct the police to accept a particular ICT system …
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The operational independence of UK police forces is a key challenge for the Department’s implementation of national law enforcement programmes such as NLEDS. The 45 UK police forces are independent of central government, which means that the Department does not generally direct the police to accept a particular ICT system or way of working. However, and as stated above, one of the causes of the Department’s failure to deliver the NLEDS programme to the originally expected timetable was that the Department and the police did not have a consistent shared understanding of the intended outcomes. The Department and the police only documented the ‘vision’ for the programme in September 2018, almost two years into its development.25
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Government response AI summary
The government agrees with the implicit recommendation to address the challenge of police independence and the lack of a shared understanding, implementing specific actions to embed a new partnership approach, a revised Engagement Model, a Product Centricity Steering Committee, a Product Maturity Assessment, and a …
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HM Treasury
14
Conclusion
Twenty-Ninth Report - The National Law …
Accepted
Despite the Department’s attempt to reset the programme in 2019, the police continued to have concerns about progress. In September 2020, the programme’s Chief Constables’ Reference Group stated that a failure to deliver against a proposed second reset would result in a formal withdrawal of consent for NLEDS from the …
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Despite the Department’s attempt to reset the programme in 2019, the police continued to have concerns about progress. In September 2020, the programme’s Chief Constables’ Reference Group stated that a failure to deliver against a proposed second reset would result in a formal withdrawal of consent for NLEDS from the police. This message was reinforced in October 2020 when the National Police Chiefs’ Council (NPCC) wrote to the Department’s Permanent Secretary stating that the police had lost confidence in the Home Office’s ability to deliver a range of law enforcement technology programmes, including NLEDS.26
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Government response AI summary
The government agrees with the observation and details new specific actions to embed a partnership approach with policing, including setting up a Product Centricity Steering Committee, rolling out a Product Maturity Assessment, and creating a Product Owner Playbook to improve collaboration.
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HM Treasury
15
Conclusion
Twenty-Ninth Report - The National Law …
Accepted
The former SRO acknowledged that the Department had not achieved the sense of partnership with the police that it would have liked and that, following the first reset and finding things were even worse than previously realised, it was understandable that the police had lost confidence.27 He acknowledged that the …
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The former SRO acknowledged that the Department had not achieved the sense of partnership with the police that it would have liked and that, following the first reset and finding things were even worse than previously realised, it was understandable that the police had lost confidence.27 He acknowledged that the Department had not got its relationship with the police into the right place. For example, there had never been a position where the Department and the police could together make decisions about trade-offs between programmes, and instead that “we sort of had to make those decisions ourselves in the Home Office, which is not what we would like to do”.28
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Government response AI summary
The government agrees with the observation, outlining specific actions to improve its partnership with policing. This includes embedding a new Engagement Model, establishing a Product Centricity Steering Committee, developing a Product Maturity Assessment, and creating a Product Owner Playbook for enhanced collaboration.
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HM Treasury
16
Conclusion
Twenty-Ninth Report - The National Law …
Accepted
The Department told us that the approach it is now taking is “to have the police on the inside”, with policing involved in all the decision-making at every single level.29 The Department said that previously in the programme, police had been part of the wider governance regime, but not part …
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The Department told us that the approach it is now taking is “to have the police on the inside”, with policing involved in all the decision-making at every single level.29 The Department said that previously in the programme, police had been part of the wider governance regime, but not part of the leadership team. It commented that previously 23 Q 13 24 Q 18 25 C&AG’s Report, paras 17, 2.1–2.2 26 C&AG’s Report, para 1.14 27 Q 13 28 Q 14 29 Q 17 The National Law Enforcement Data Programme 13 the relationship between the Department and the policing felt like a ‘customer-supplier’ relationship, but the new engagement model was much more of a partnership approach, with police representatives clearly there to co-deliver.30 The Department told us that its new engagement model is co-authored, agreed jointly with the police, and that the NLEDS programme was a pathfinder programme for this new way of working together.31
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Government response AI summary
The government agrees with the committee's observation on the new partnership approach and is actively embedding it by setting up a Product Centricity Steering Committee, devising a Product Maturity Assessment, and creating a Product Owner Playbook by June 2022.
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HM Treasury
17
Conclusion
Twenty-Ninth Report - The National Law …
Accepted
We asked about the inherent difficulty of reconciling the need to maintain the autonomy of individual police forces with the need to implement co-ordinated and consistent IT transformation across all of the forces. The Department said it accepted that the task was complicated and difficult, but not impossible. It said …
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We asked about the inherent difficulty of reconciling the need to maintain the autonomy of individual police forces with the need to implement co-ordinated and consistent IT transformation across all of the forces. The Department said it accepted that the task was complicated and difficult, but not impossible. It said that its new engagement model and spirit of partnership were “designed to make that complicated task as easy as it can practicably be.”32 The Department also told us that the National Police Chiefs’ Council had raised a number of qualifications about the new engagement model, which it was taking very seriously and working through diligently to make sure that the new model worked effectively.33
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Government response AI summary
The government agrees with the observation and details specific actions to address the challenge of balancing police autonomy with IT transformation. This includes embedding a new Engagement Model, establishing a Product Centricity Steering Committee, rolling out a Product Maturity Assessment, and creating a Product Owner …
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HM Treasury
18
Conclusion
Twenty-Ninth Report - The National Law …
Accepted
On funding, the Department confirmed that it might give forces funds to ‘come on board’ and test things early, and that it had put aside a £30 million contingency, specifically to work with individual forces on their adoption of the new law enforcement data system.34 On ensuring that police have …
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On funding, the Department confirmed that it might give forces funds to ‘come on board’ and test things early, and that it had put aside a £30 million contingency, specifically to work with individual forces on their adoption of the new law enforcement data system.34 On ensuring that police have the funding in future for NLEDS, the Department said it would keep working with forces to ensure they could make the choices each of them needed to make, and that this was part of the spending review.35 30 Qq 31–33 31 Q 17 32 Q 56 33 Q 57 34 Qq 23–24, 41 35 Q 88 14 The National Law Enforcement Data Programme 2 Future resilience Continued reliance on the Police National Computer
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Government response AI summary
The government agrees with the implicit recommendation and is implementing specific actions to embed a new partnership approach with policing, including a revised Engagement Model, a Product Centricity Steering Committee, a Product Maturity Assessment, and a Product Owner Playbook to improve collaboration on NLEDP.
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HM Treasury
19
Conclusion
Twenty-Ninth Report - The National Law …
Accepted
The Department’s failure to deliver NLEDS to date means that the increasingly fragile PNC system has not been replaced, bringing greater risks for police operations and requiring the police to bear more cost. In this report we have already mentioned that key staff on the PNC team are approaching retirement, …
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The Department’s failure to deliver NLEDS to date means that the increasingly fragile PNC system has not been replaced, bringing greater risks for police operations and requiring the police to bear more cost. In this report we have already mentioned that key staff on the PNC team are approaching retirement, and the specialists skills and knowledge required to maintain the PNC make it difficult for the Department to recruit and train replacements.36
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Government response AI summary
The government agrees with the committee's conclusion regarding the risks to the PNC system due to NLEDS delays and is implementing mitigation activities, including upskilling internal teams and engaging partners, to ensure PNC availability until at least December 2025.
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HM Treasury
24
Conclusion
Twenty-Ninth Report - The National Law …
Accepted
The PND enables police forces to share intelligence that they have gathered locally. It was created in 2011 following the 2004 Bichard Inquiry prompted by the murder of two girls in Soham, Cambridgeshire, which criticised police information-sharing. The PND holds information about people, objects, locations and events, and enables analyses …
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The PND enables police forces to share intelligence that they have gathered locally. It was created in 2011 following the 2004 Bichard Inquiry prompted by the murder of two girls in Soham, Cambridgeshire, which criticised police information-sharing. The PND holds information about people, objects, locations and events, and enables analyses of these data. It contains over 4 billion pieces of information including records of organised crime, safeguarding issues and domestic abuse. In 2014 the Department recognised that the PND, while newer than the PNC, was also reaching the end of its useful life and needed updating.48
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Government response AI summary
The government agrees with the observation and details an approved plan for the Police National Database (PND) business case, aiming to evolve the current system rather than replacing it. This includes specific stakeholder endorsements and an allocation of £6.5 million for PND transformation and sustainment …
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HM Treasury
25
Conclusion
Twenty-Ninth Report - The National Law …
Accepted
The Department intended that the NLEDS programme would combine the PNC with the PND, which was over-optimistic given the time originally available, but has now decided that the NLEDS programme will focus on replacing the PNC alone. In December 2020, the Department removed the PND from the scope of the …
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The Department intended that the NLEDS programme would combine the PNC with the PND, which was over-optimistic given the time originally available, but has now decided that the NLEDS programme will focus on replacing the PNC alone. In December 2020, the Department removed the PND from the scope of the NLEDS programme and it will now be maintained as a standalone system until 2031.49 There had been various changes in plans for what priority to give the PND in the programme, or indeed whether to make it an optional element, before the decision to remove the PND from the scope of NLEDS entirely.50
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Government response AI summary
The government agrees, detailing the ongoing review and approval process for the PND business case, with final approval anticipated in March 2022. It plans for PND to evolve as a standalone capability and has allocated £6.5 million for its transformation in 2022-23.
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HM Treasury
26
Conclusion
Twenty-Ninth Report - The National Law …
Accepted
Police and other users will therefore be unable to access PNC and PND data from a single system, which was one of the Department’s original objectives for NLEDS, for the foreseeable future. The previous intention to integrate the PND and the PNC led to the Department repeatedly deferring upgrades to …
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Police and other users will therefore be unable to access PNC and PND data from a single system, which was one of the Department’s original objectives for NLEDS, for the foreseeable future. The previous intention to integrate the PND and the PNC led to the Department repeatedly deferring upgrades to and investment in the PND, affecting both service quality and stability. The Department estimates that a refresh of the most critical elements of the PND will cost at least £13 million between 2021 and 2025.51
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Government response AI summary
The government agrees with the observation and details an approved plan to evolve the Police National Database (PND) to its target transformational state, rather than replacement, to address deferred upgrades. This plan includes specific stakeholder endorsements and an allocation of £6.5 million for PND transformation …
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HM Treasury
27
Conclusion
Twenty-Ninth Report - The National Law …
Accepted
The Department’s former CDDTO commented that the Department had added complexity to the NLEDS programme by trying to bring together the PNC and the PND into a single service. It had not understood the complexity of bringing that data together. In 2018, prior to the first reset and when she …
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The Department’s former CDDTO commented that the Department had added complexity to the NLEDS programme by trying to bring together the PNC and the PND into a single service. It had not understood the complexity of bringing that data together. In 2018, prior to the first reset and when she had still been in the Department, she and the former SRO had looked at the option of just focusing on the PNC, but at the time had 46 C&AG’s Report, para 16 47 Qq 27, 28 48 C&AG’s Report, paras 1.5, 1.6 49 C&AG’s Report, para 7 50 C&AG’s Report, para 2.21, Figure 5 51 C&AG’s Report, paras 2.24, 3.10, 3.11 16 The National Law Enforcement Data Programme not managed to get police forces on board with that approach.52 She commented that separating the PND and the PNC had significantly reduced the complexity of what the Department had to do and given it a much clearer development path.53
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Government response AI summary
The government agrees, noting that the PND business case is being reviewed and refined, with a final approval expected in March 2022. It allocates £6.5 million for PND's transformation in 2022-23 and will provide an update to the Committee in April.
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HM Treasury
28
Conclusion
Twenty-Ninth Report - The National Law …
Accepted
The Department told us that there would be a separate five-year programme for the PND, starting from April 2022.54 The Department said it had been working with the NPCC lead for the PND over the last nine months on a “discovery phase”, developing a strategy of which the key element …
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The Department told us that there would be a separate five-year programme for the PND, starting from April 2022.54 The Department said it had been working with the NPCC lead for the PND over the last nine months on a “discovery phase”, developing a strategy of which the key element was currently the refresh of software and hardware. Then there would be the “near-term capability uplifts”. Then they would turn to “realising the original vision of actually having that federated search capability across the PNC, PND and then wider datasets across law enforcement into the future as well.” The Department said it would be doing things very differently to what was envisaged before, to join up PND and PNC systems. Rather than putting the two systems within the same ‘monolithic structure’, it would achieve the same goals in a “different, much easier and less complex way”, which is that “federated search capability”.55 The Department’s delivery of major programmes
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Government response AI summary
The government agrees with the observation and confirms its plans for a PND programme, detailing the progression of its business case through various approval stages to March 2022. It envisages evolving the current PND capability for a transformational state and has allocated £6.5 million for …
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HM Treasury
29
Recommendation
Twenty-Ninth Report - The National Law …
Accepted
The Department is delivering several other national ICT programmes for police use, in addition to NLEDS, and needs to work closely with the police on all of them. The portfolio of programmes includes the Emergency Services Network, Home Office Biometrics and the National Automatic Number Plate Recognition Service. In 2020–21, …
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The Department is delivering several other national ICT programmes for police use, in addition to NLEDS, and needs to work closely with the police on all of them. The portfolio of programmes includes the Emergency Services Network, Home Office Biometrics and the National Automatic Number Plate Recognition Service. In 2020–21, these programmes cost £656 million.56 Departments across Whitehall face huge challenges to update or replace legacy systems, and must try to get the balance right between investment in continuing to upgrade legacy systems and knowing when to replace old systems with something that is more modern and fit for the future.57
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Government response AI summary
The government accepts the recommendation and is progressing with embedding a new partnership approach and engagement model with policing for the NLEDP. It is establishing a Steering Committee, a Product Maturity Assessment, and a Product Owner Playbook to monitor this, promising further details in April.
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HM Treasury
30
Conclusion
Twenty-Ninth Report - The National Law …
Accepted
The NLEDS programme team is also changing the way it delivers technology to be more iterative. The November 2020 external programme review recommended an ‘agile’ approach in which technology is released gradually and changed in response to feedback. The Department’s view is that such an approach should help the programme …
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The NLEDS programme team is also changing the way it delivers technology to be more iterative. The November 2020 external programme review recommended an ‘agile’ approach in which technology is released gradually and changed in response to feedback. The Department’s view is that such an approach should help the programme develop technology to meet the needs of police forces.58 The Department stressed to us how much it wanted to be attuned to the police’s needs so that forces can do the best possible job on behalf of the public. It does not know the way that technology will change in five or ten years’ time, but needs to ensure that every solution and system can adapt for the future.59 The Department said it wanted to ensure that “whatever programmes we embark on, and whatever solutions we end up buying or building, we bake in the agility and flexibility to respond to future events, whether they are changes in the technological environment, changes in the relationship with policing, or any other requirements that come along.”60 52 Qq 14, 15 53 Q 18 54 Qq 69–70 55 Q 71 56 C&AG’s Report, para 1.11 57 Qq 9, 11 58 C&AG’s Report, para 3.19 59 Q 17 60 Q 79 The National Law Enforcement Data Programme 17 The former SRO for the NLEDS programme acknowledged that while there had been an appetite for ambitious new ways of doing things, such as agile working, the NLEDS team really did not have any experience in those things.61
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Government response AI summary
The government agrees with the approach, stating it has made progress in embedding the new partnership model. It is setting up a Product Centricity Steering Committee, devising a Product Maturity Assessment, and creating a Product Owner Playbook to monitor and evaluate the engagement model, with …
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HM Treasury
31
Conclusion
Twenty-Ninth Report - The National Law …
Accepted
The Department told us that its new way of working with the police for the NLEDS programme would be a pathfinder programme for this new way of working. It would learn lessons and then roll this approach out to the other national programmes in its portfolio.62 The Department said it …
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The Department told us that its new way of working with the police for the NLEDS programme would be a pathfinder programme for this new way of working. It would learn lessons and then roll this approach out to the other national programmes in its portfolio.62 The Department said it was already learning from the Emergency Services Network Programme about ways of working and applying it to NLEDS. It added that it had recently done a review of all the major police IT programmes that the Department is delivering, in order to get at underlying issues that affect not just one particular programme.63
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Government response AI summary
The government agrees with the committee's observation that the NLEDS programme is a pathfinder for a new way of working, and is actively embedding and monitoring this partnership approach with policing through specific initiatives by June 2022.
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HM Treasury