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Upgrading Emergency Service Communications – Recall

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Upgrading Emergency Service Communications – Recall House of Commons Public Accounts Committee Upgrading emergency service communications – recall Fifty-second Report of Session 2016–17 Report, together with formal minutes relating to the report Ordered by the House of Commons to be printed 29 March 2017 HC 997 Published on 21 April 2017 by authority of the House of Commons The Committee of Public Accounts The Committee of Public Accounts is appointed by the House of Commons to examine “the accounts showing the appropriation of the sums granted by Parliament to meet the public expenditure, and of such other accounts laid before Parliament as the committee may think fit” (Standing Order No. 148). Current membership Meg Hillier MP (Labour (Co-op), Hackney South and Shoreditch) (Chair) Mr Richard Bacon MP (Conservative, South Norfolk) Philip Boswell MP (Scottish National Party, Coatbridge, Chryston and Bellshill) Charlie Elphicke MP (Conservative, Dover) Chris Evans MP (Labour (Co-op), Islwyn) Caroline Flint MP (Labour, Don Valley) Kevin Foster MP (Conservative, Torbay) Simon Kirby MP (Conservative, Brighton, Kemptown) Kwasi Kwarteng MP (Conservative, Spelthorne) Nigel Mills MP (Conservative, Amber Valley) Anne Marie Morris MP (Conservative, Newton Abbot) Bridget Phillipson MP (Labour, Houghton and Sunderland South) John Pugh MP (Liberal Democrat, Southport) Karin Smyth MP (Labour, Bristol South) Mrs Anne-Marie Trevelyan MP (Conservative, Berwick-upon-Tweed) Powers Powers of the Committee of Public Accounts are set out in House of Commons Standing Orders, principally in SO No. 148. These are available on the Internet via www.parliament.uk. Publication Committee reports are published on the Committee’s website and in print by Order of the House. Evidence relating to this report is published on the inquiry publications page of the Committee’s website. Committee staff The current staff of the Committee are Dr Stephen McGinness (Clerk), Dr Mark Ewbank (Second Clerk), Darren Hackett (Senior Committee Assistant), Sue Alexander and Ruby Radley (Committee Assistants), and Tim Bowden (Media Officer). Contacts All correspondence should be addressed to the Clerk of the Committee of Public Accounts, House of Commons, London SW1A 0AA. The telephone number for general enquiries is 020 7219 4099; the Committee’s email address is [email protected]. Upgrading emergency service communications – recall 1 Contents Summary 3 Introduction 4 Conclusions and recommendations 5 1 Ensuring continuity in emergency service communications 8 2 Risk identification and management 12 Formal Minutes 14 Witnesses 15 Published written evidence 15 List of Reports from the Committee during the current Parliament 16 Upgrading emergency service communications – recall 3 Summary In the event of an emergency, including a terrorist attack, the need for the emergency services to communicate is an essential part of keeping the public safe. We are greatly concerned that the start date for the new system for communication (the Emergency Services Network) is not only delayed but is not likely to be deliverable. The Home Office was running the planned programme to ambitiously tight deadlines which have now slipped. The Department’s contingency measure to manage the transition to the new system was to extend Airwave month by month until the new system was in place. The news that part of the existing Airwave system will be taken out of service early strikes a major, potentially catastrophic, blow to the ability of our emergency services to carry out their job and keep citizens safe. In addition, it now seems inevitable that taxpayers will also be paying substantial additional sums, with no certainty of delivery. The change of leadership with a new Permanent Secretary at the Home Office adds to our concerns. 4 Upgrading emergency service communications – recall Introduction The government is planning to replace the Airwave system currently used by police, fire and ambulance services in Great Britain (the emergency services) with a new Emergency Services Network (ESN). ESN is a high-risk programme that aims to roll out new technology, untried anywhere else in the world, to an ambitious timetable across all emergency services. We published a report in January 2017 that concluded it was unlikely that the December 2019 target date for delivering ESN would be met and that the Department needed to reassess its timescales. It also concluded that the Department had not budgeted for delays, nor put in place detailed contingency plans to manage them. Following our evidence session in November 2016 the Department told us that ESN will be delayed by nine months until September 2020. It has also now come to light that extending the Airwave contracts, the Department’s sole mitigation against delay in putting the new system in place, might not be possible. In January, Motorola informed us that Vodafone, a key supplier to Airwave, will from March 2020 stop providing an important piece of infrastructure that Airwave requires to function, essentially turning it off. This raised the possibility that emergency services may not be able to communicate with each other after March 2020 until transition to ESN is complete in September 2020. We therefore recalled the Department to give further evidence in February 2017. Upgrading emergency service communications – recall 5 Conclusions and recommendations 1. The “little slippage” in delivering the ESN programme that the Department told us about in November has now become a delay of nine months. At our November 2016 evidence session the Home Office (the Department) told us that there would be “a little slippage” in delivering the Emergency Services Network (ESN). The Department told us subsequently that it was pushing back the date on which emergency services would start transitioning to ESN from September 2017 to July 2018. This would allow more time for testing of the new system to assure emergency services that it can be relied on before Airwave is switched off. At our February evidence session the Department reiterated its commitment to us that emergency services would not be forced onto ESN and that it would not be compressing the 27-month transition period any further. Consequently, the transition period for ESN now runs to September 2020, nine months later than originally planned. Airwave contracts will therefore need to be extended to provide emergency services with the ability to communicate without an interruption in service. To facilitate this extension Motorola need to know, by the end of 2018, which regions will require the Airwave service after the end of 2019 to ensure the necessary logistics are in place. This means that the Department will have to identify any regions needing dual-running just six months into the 27-month transition period. The Department acknowledged that it was still firming up its transition plans but said that it expects these to be complete long before the end of 2018. Recommendation: The Department should ensure it is in a position to know which regions require an extension of Airwave by the end of 2018. Motorola must confirm that receiving notice at the end of 2018 will give it enough notice to carry out the work required to extend Airwave from December 2019. 2. With ESN delayed until September 2020, it is not clear how emergency services communications will be provided from March 2020, given that it might not be possible to extend Airwave beyond that date. Motorola told us previously that it had the ability to extend Airwave beyond December 2019, on both a monthly and regional basis, as long as it received notification by December 2018. In late January 2017, however, Motorola informed us that extension beyond March 2020 may not now be possible. This is because Vodafone, a key supplier to Airwave, plans to withdraw a core network Time Division Multiplexing (TDM) service, without which Airwave cannot run. The Internet Protocol (IP) based service that Vodafone will replace it with after March 2020 will not be compatible with Airwave. Extra investment is therefore needed to upgrade the infrastructure either to make Airwave work with the new system or work without it. This cost is in addition to the £475 million annual cost of extending Airwave nationally as previously estimated by the National Audit Office (NAO). The Department agreed a fixed price for extending Airwave with Motorola in February 2016, as a condition for approving its purchase of Airwave. Motorola therefore has a contractual obligation to provide the Airwave service post March 2020, but the Department told us that enforcing that obligation could damage supplier relationships. Instead, it would prefer to negotiate first with Vodafone and Motorola to find a solution. The Department is due to meet with the suppliers to discuss options and conceded that while it is very confident that this issue can be overcome, extra work will be needed. 6 Upgrading emergency service communications – recall Recommendation: The Department must urgently engage in conversations with Motorola and Vodafone to explore the full range of options for resolving this issue and provide us with regular updates on progress and estimates of any additional costs. 3. It is extremely disappointing that the Department’s risk management and assurance arrangements did not pick up earlier the risk that emergency services communications could be unsupported from April to September 2020. The NAO concluded last year that the Department appeared to be under-rating the seriousness of the risks to delivering ESN, a judgement that the Department disagreed with at the time. In our November evidence session, however, the Department acknowledged that ESN was a high-risk programme and the Permanent Secretary assured us he had scrutinised this programme more than any other in his time at the Home Office. The Department has had since 2000 to plan for Airwave’s replacement and Motorola conducted due diligence ahead of its purchase of Airwave in February 2016. A general risk of Airwave not being able to function beyond 2020 was on the Department’s risk register but it told us it had no knowledge before January 2017 of the specific issue that emerged concerning supporting Airwave after March 2020.
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