Court Reform Programme: progress review

Public Accounts Committee Closed Inquiry
Opened: 15 Feb 2023 Closed: 24 Sep 2023 Parliament page
In 2016, HM Courts & Tribunals Service (HMCTS) set up a set of change programmes to introduce new technology and working practices to modernise and upgrade the justice system. The reform programme, which covers crime, civil, family and tribunals, was driven by the need to address complex and inefficient case … Read more
10 Recommendations
17 Conclusions
1 Report
1 Oral session
1 Letter
1 Event
Activity timeline 5 events
24 Sep
2023
Report published
30 Jun
2023
Report published
30 Mar
2023
Oral evidence
30 Mar
2023
Formal meeting (oral evidence session) · The Grimond Room, Portcullis House
28 Mar
2023
Correspondence
Oral evidence sessions 1 session
30 Mar 2023
View on parliament.uk
Court Reform
Andrew Baigent · HM Courts and Tribunals Service Antonia Romeo · Ministry of Justice Gemma Hewison · Ministry of Justice Nick Goodwin · HMCTS
Title HC No. Published Items Response
Sixty-First Report - Progress on the courts and tribunals reform… HC 1002 30 Jun 2023 27 Responded
Recommendations & Conclusions
27 results
2 Recommendation Accepted
Sixty-First Report - Progress on t…
Set out improved approach for staff and stakeholder engagement and transparency
HMCTS’s failure to engage sufficiently with staff and stakeholders throughout the common platform rollout has increased the burden on courts and staff already under significant pressure. When we last reported on the programme, HMCTS assured us that it intended to … Read more
Government Response
The government agrees and states it has already implemented the recommendation by overhauling its staff feedback process, introducing specific digital forms, dedicated sponsors, transparent data, regular updates, and increasing staff and stakeholder involvement in prioritising and resolving issues. It also detailed support frameworks for new functionality.
HM Treasury
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3 Conclusion Accepted
Sixty-First Report - Progress on t…
Outline how to obtain regular feedback on service impact and publish assessment dates
We are concerned that HMCTS does not yet fully understand how reforms are impacting court users, victims, or the public’s access to justice. In 2018 and 2019, 6 Progress on the courts and tribunals reform programme we raised concerns around … Read more
Government Response
The government agrees and states it already uses various methods like surveys, contact centres, and analytics to obtain user feedback, which informs service development. It commits to publishing four Access to Justice assessments in Autumn 2023, with further publications in 2024 and 2025, and is conducting an overarching evaluation of the Reform programme.
HM Treasury
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4 Conclusion Acknowledged
Sixty-First Report - Progress on t…
Write to Committee outlining assessment plan for full reform programme costs
HMCTS and the Ministry cannot fully assess whether the reforms have provided value for money as they have not captured the full costs of the programme. Despite our earlier concerns, the National Audit Office found that the programme costs still … Read more
Government Response
The government agrees to assess the full cost of the programme, including proposed inclusions, acknowledging that estimates will be necessary due to unavailable full information. However, it does not explicitly outline how it will do this or commit to writing back within six months as requested.
HM Treasury
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5 Recommendation Accepted
Sixty-First Report - Progress on t…
Set out impact of recent plan changes on expected savings and monitor service efficiency.
HMCTS has not specified how its recent changes to the programme will impact the savings promised, nor can it demonstrate whether reformed services are on track to deliver the required efficiencies. In 2019, HMCTS expected the programme to save £244 … Read more
Government Response
The government agrees and details that while savings will be delivered later, the full £227 million annual net savings are still expected by 2026-27, with a £50 million reduction by 2025-26. It further explains its methodology for monitoring efficiency through quarterly updated unit costs across 15 services, with oversight from finance committees and the board.
HM Treasury
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6 Conclusion Accepted
Sixty-First Report - Progress on t…
Ensure lessons learned from digitalising processes are integrated into current and future departmental projects.
The Ministry and HMCTS have not demonstrated that lessons learned from this reform programme and their other major projects have been put into practice effectively. The Ministry and HMCTS recognise that there are several lessons to be learned from the … Read more
Government Response
The government agrees and states it already learns lessons through various evaluations. It is piloting a new lessons learned platform, which will be evaluated in autumn, with an aim to launch it department-wide by spring 2024 to ensure lessons are fed into remaining programmes and other major projects.
HM Treasury
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1 Conclusion Accepted
Sixty-First Report - Progress on t…
Committee took evidence on progress of courts and tribunals reform programme.
On the basis of a report by the Comptroller and Auditor General, we took evidence from the Ministry of Justice (the Ministry) and HM Courts & Tribunals Service (HMCTS) on progress in delivering reforms to courts and tribunals since we … Read more
Government Response
The government 'agrees' with this introductory statement and provides a general update on the reform programme, including its history of timeline extensions, challenges overcome, and commitment to learning lessons, effectively outlining ongoing work related to the programme itself.
HM Treasury
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7 Conclusion Accepted
Sixty-First Report - Progress on t…
Scope of courts and tribunals reform programme significantly altered, including pausing several projects.
The scope of the programme has also changed significantly since it began in 2016. HMCTS altered and reduced the scope of what it planned to deliver several times. For example, HMCTS and the Crown Prosecution Service (CPS) were originally jointly … Read more
Government Response
The government acknowledges the programme's timeline and scope changes, including extensions for civil, family, tribunal, and criminal courts, attributing them partly to underestimating complexity and enabling progress without exceeding funding. It confirms ongoing reviews and oversight by programme boards.
HM Treasury
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8 Conclusion Accepted
Sixty-First Report - Progress on t…
HMCTS previously acknowledged need to improve stakeholder engagement, but concerns persist.
When we examined the programme in 2019, we were concerned that many stakeholders did not feel listened to, undermining trust in the reforms. We highlighted 7 Qq 28, 86, 105; C&AG’s Report, paras 1.9, Figure 3 8 Q 24; Letter … Read more
Government Response
The government states it has improved the Common Platform by overhauling its staff feedback process, introducing new digital forms, senior management sponsors, webinars, and increased staff involvement, alongside ongoing engagement with user groups and partners.
HM Treasury
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9 Conclusion Accepted
Sixty-First Report - Progress on t…
Users and stakeholders report insufficient HMCTS engagement and inefficient common platform design and rollout.
However, users including court staff and stakeholders, still feel that HMCTS’s engagement with them has not been sufficient, especially during the rollout of common platform. We received written evidence from the Bar Council, which told us that as far as … Read more
Government Response
The government states it has improved the Common Platform by overhauling its staff feedback process, introducing new digital forms, senior management sponsors, webinars, and increased staff involvement, alongside ongoing engagement with user groups and partners.
HM Treasury
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10 Recommendation Accepted
Sixty-First Report - Progress on t…
HMCTS acknowledged common platform issues for barristers but lacked direct user research engagement.
We asked HMCTS how much it had engaged with the Bar Council on common platform. I t told us it has spoken with them “a good deal” and that it received feedback from barristers regularly. We also asked whether HMCTS … Read more
Government Response
The government agrees the recommendation is implemented, detailing how the Crime Programme overhauled staff feedback processes and increased engagement with user focus groups and partners, including specific drop-in sessions for defence practitioners.
HM Treasury
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11 Conclusion Accepted
Sixty-First Report - Progress on t…
Undeveloped common platform burdened courts, causing rollout pauses and affecting justice outcomes.
Problems have also been caused by court staff having had to use a version of common platform that was not sufficiently developed, which has affected justice outcomes and burdened courts. For example, between August 2021 and March 2022, HMCTS had … Read more
Government Response
The government states it has improved the Common Platform by overhauling its staff feedback process, introducing new digital forms, senior management sponsors, webinars, and increased staff involvement, alongside ongoing engagement with user groups and partners.
HM Treasury
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12 Recommendation Accepted
Sixty-First Report - Progress on t…
Staff satisfaction with common platform remains low despite HMCTS reported improvements.
Staff satisfaction scores for common platform remain low. HMCTS told us that 58% of users reported that they were satisfied with the system, up from 22% in November.21 We asked HMCTS whether there should have been better engagement with those … Read more
Government Response
The government agrees the recommendation for better engagement is implemented, detailing how the Crime Programme overhauled staff feedback processes and increased engagement with user focus groups and partners, including specific drop-in sessions for defence practitioners.
HM Treasury
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13 Conclusion Accepted
Sixty-First Report - Progress on t…
HMCTS user feedback mechanisms exist, but significant user concerns remain unaddressed.
It explained that it had several ways it can gather user feedback. For example, it told us that every director in HMCTS was sponsoring an area of the programme which allowed them to listen to user feedback first-hand. HMCTS also … Read more
Government Response
The government states it has improved the Common Platform by overhauling its staff feedback process, introducing new digital forms, senior management sponsors, webinars, and increased staff involvement, alongside ongoing engagement with user groups and partners.
HM Treasury
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14 Recommendation Accepted
Sixty-First Report - Progress on t…
HMCTS acknowledges Common Platform issues caused staff stress, needing improved user engagement.
HMCTS accepted that issues with common platform had caused significant stress for court staff, such as legal advisors, already under pressure to reduce COVID-19 backlogs.26 Despite this, it assured us that it was committed to engaging with users, but it … Read more
Government Response
The government agrees the recommendation for improving user engagement and satisfaction is implemented, outlining how the Crime Programme overhauled feedback processes and increased engagement with users and partners, including specific drop-in sessions for defence practitioners.
HM Treasury
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15 Recommendation Accepted
Sixty-First Report - Progress on t…
HMCTS reforms' impact on vulnerable users' access to justice remains inadequately understood.
HMCTS’s reforms are wide-ranging and have the potential to impact access to justice for a range of users, including vulnerable people. In both 2018 and 2019, we raised concerns that HMCTS had not sufficiently demonstrated that it understood how reforms … Read more
Government Response
The government states HMCTS already uses feedback and commits to publishing four Access to Justice assessments in autumn 2023, with further publications in 2024-2025, and is conducting an overarching evaluation focused on vulnerable users.
HM Treasury
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16 Conclusion Accepted
Sixty-First Report - Progress on t…
Reformed online services frequently exhibit functionality issues, causing significant delays and user problems.
Despite these assurances, stakeholders such as the Law Society reported that some reformed services failed to meet their needs. For example, it explained that there were functionality issues with online portals for family services, such as family public law. These … Read more
Government Response
The government agrees with the committee's findings and commits to publishing four Access to Justice assessments in autumn 2023, with further publications in 2024 and 2025. It will investigate identified impacts and implement service fixes, while continuing to gather user feedback and conduct an overarching evaluation of the Reform programme.
HM Treasury
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17 Conclusion Accepted
Sixty-First Report - Progress on t…
Little progress made addressing identified access to justice disparities for different user groups.
Through its reforms, HMCTS aims to improve access to justice for service users. But the National Audit Office found that it has made little progress in responding to findings from its access to justice assessments which have identified disparities in … Read more
Government Response
The government states it will publish completed access to justice assessments in autumn 2023 and subsequent years. Where impacts are identified, it commits to further investigative work to understand causes and implement appropriate service fixes, which will then be monitored.
HM Treasury
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18 Conclusion Accepted
Sixty-First Report - Progress on t…
Reforms prioritised "access to process" over genuine "access to justice" for all users.
We asked witnesses about concerns highlighted by the Law Society that the reforms provided access to process, rather than access to justice. HMCTS told us that it considered the user to be “the single most important judge of whether access … Read more
Government Response
The government agrees with the committee's findings and commits to publishing four Access to Justice assessments in autumn 2023, with further publications in 2024 and 2025. It will investigate identified impacts and implement service fixes, while continuing to gather user feedback and conduct an overarching evaluation of the Reform programme.
HM Treasury
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19 Conclusion Deferred
Sixty-First Report - Progress on t…
HMCTS confident remaining £120 million budget is sufficient to complete reform programme.
At December 2022, HMCTS had spent £1.1 billion on the programme. Of its £1.3 billion budget, HMCTS has £120 million of funding left to deliver remaining reforms. HMCTS explained that some of the total £1.3 billion budget was lost due … Read more
Government Response
The government commits to assessing the full cost of the programme, considering proposed inclusions, and will respond to the Committee by a six-month deadline (December 2023) setting out this assessment.
HM Treasury
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20 Recommendation Accepted
Sixty-First Report - Progress on t…
Financial implications and "cost-shunting" across the wider justice system remain unclear.
In our examination of the programme in 2018, we concluded that the Ministry of Justice did not understand the financial implications of the planned changes on the wider justice system. We warned that some of the changes, such as the … Read more
Government Response
The government agrees with the recommendation and commits to responding by December 2023, outlining how it will assess the full cost of the programme, though some elements may rely on estimates.
HM Treasury
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21 Recommendation Accepted
Sixty-First Report - Progress on t…
Reported programme costs may not capture full expenditure across the wider justice system.
Despite our earlier concerns, the National Audit Office found that the programme costs still may not capture the full costs of reforming the courts and tribunals. This is partly because when reporting the costs of the programme, HMCTS does not … Read more
Government Response
The government agrees with the recommendation and commits to responding by December 2023, outlining how it will assess the full cost of the programme, though some elements may rely on estimates.
HM Treasury
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22 Recommendation Accepted
Sixty-First Report - Progress on t…
Paused projects and post-completion service fixes require funding beyond the core reform budget.
The funding allocated to the programme will also no longer cover several projects that HMCTS has paused as part of its programme reset: these relate to its civil possession service, family adoption and all special tribunals with the exception of … Read more
Government Response
The government agrees with the Committee's recommendation regarding assessing full programme costs and commits to responding by December 2023 with its plan, acknowledging that some costs may require estimates.
HM Treasury
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23 Conclusion Accepted
Sixty-First Report - Progress on t…
HMCTS repeatedly reduces expected savings from courts and tribunals reform programme.
HMCTS has reduced the savings it expected to achieve from the programme several times. When we last reported on the programme in 2019, HMCTS expected to save £244 million a year from 2024–25 through its reforms and claimed that it … Read more
Government Response
The government acknowledges that changes mean savings will be delivered later, with £50 million fewer recurring annual net savings by 2025-26. However, it expects full recurring annual net savings of £227 million by the end of 2026-27, which will include additional benefits to restore those lost from descoped projects.
HM Treasury
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24 Recommendation Accepted
Sixty-First Report - Progress on t…
HMCTS approach to measuring reform benefits requires further refinement.
In 2019, we concluded that HMCTS could not demonstrate whether claimed savings were attributable to the reforms and so taxpayers could not be confident they were getting what was promised. We recommended that HMCTS should set out how it intended … Read more
Government Response
The government accepts the recommendation and states that HMCTS has developed unit costs for 15 major services, which are updated quarterly and routinely monitored by its Finance and Performance Committee and board. They anticipate achieving £227 million in recurring annual net savings by the end of 2026-27.
HM Treasury
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25 Conclusion Accepted
Sixty-First Report - Progress on t…
Reformed HMCTS services exhibit significantly higher unit costs than anticipated.
HMCTS’s analysis covering April to June 2022 found that unit costs of its fully or partly reformed services were 19% to 146% higher than expected. HMCTS undertook some analysis of these services to try and understand this variation. Its analysis … Read more
Government Response
The government agrees with the committee's findings, stating that HMCTS is already using a quarterly updated unit cost approach across 15 services to monitor efficiency and track against expected reductions. They acknowledge that savings will be delivered later than expected but anticipate achieving £227 million in recurring annual net savings by the end of 2026-27.
HM Treasury
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26 Conclusion Accepted
Sixty-First Report - Progress on t…
HMCTS and Ministry of Justice consistently fail to apply lessons from past programmes.
We asked the Ministry and HMCTS whether they have identified lessons from the programme they can take forward into other major projects. They acknowledged that there were several lessons that they have identified from the programme so far that they … Read more
Government Response
The government agrees with the committee's findings and states it has already learned lessons, with further activities planned as projects close. It is piloting a lesson learned platform which, following evaluation in autumn, is intended to launch department-wide in spring 2024 to ensure new projects factor in lessons.
HM Treasury
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27 Conclusion Accepted
Sixty-First Report - Progress on t…
HMCTS acknowledges key lessons for programme delivery, including flexibility and leadership capacity.
HMCTS told us it has identified lessons from the programme. For example, it identified the importance of understanding the impact of delivering large scale changes while also maintaining performance and having a whole programme level view of progress. The Ministry … Read more
Government Response
The government states it has already learned lessons through various processes and is planning further lessons learned activities for programme closures. It is also piloting a new lesson learned platform, with an aim to launch it department-wide by spring 2024 to ensure lessons are factored into new projects.
HM Treasury
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Government Response AI assessment · 27 of 10 classified
Accepted 25
Acknowledged 1
Deferred 1
Total 10 recs + 17 conclusions
Correspondence 1 letter
28 Mar 2023 Correspondence from Nick Goodwin, Chief Executive, HM Courts & Tribunals Service, re NAO report, Common Platform and delivering the final phase of reform, 17 March 2023
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