Twenty-First Report: Transforming electronic monitoring services
Select Committee
Public Accounts Committee
HC 34
21 October 2022
Government response
Treasury minutes: Government response to the Committee of Public Accounts on the Twenty first report from Session 2022-23 · published 14 Dec 2022
Recommendations & Conclusions
28 results
2
Recommendation
Not Addressed
HMPPS remains reliant on outdated technology which puts the tagging service at risk of failing.
Recommendation
HMPPS remains reliant on outdated technology which puts the tagging service at risk of failing. Due to the prolonged delays in the programme, HMPPS is relying on legacy technology and will have to use its current case management system until …
Read more
Government Response Summary
The government provides a response related to air quality standards, which is completely unrelated to the recommendation about HMPPS's outdated technology and electronic monitoring systems.
HM Treasury
View Details
3
Recommendation
Not Addressed
HMPPS has failed to provide police forces and the Probation Service with timely access to...
Recommendation
HMPPS has failed to provide police forces and the Probation Service with timely access to the tagging information they need to effectively supervise offenders and protect the public. HMPPS expected Gemini and the user portal to enhance probation officers’ supervision …
Read more
Government Response Summary
The government states that local authorities are responsible for developing their own Clean Air Plans. This is not related to the recommendation about HMPPS.
HM Treasury
View Details
4
Recommendation
Rejected
It is unacceptable that HMPPS still does not know if or how tagging reduces reoffending,...
Recommendation
It is unacceptable that HMPPS still does not know if or how tagging reduces reoffending, and it has been too slow to improve data. Despite our previous recommendations, HMPPS still does not know the impact of tagging. The Ministry recognises …
Read more
Government Response Summary
The government states it holds robust information on spend for its two air quality programmes and cannot justify the disproportionate level of resource required to disaggregate the amount of spend driving air quality benefits for each of these policies. This is not related to the recommendation about HMPPS.
HM Treasury
View Details
5
Recommendation
Not Addressed
HMPPS’s innovative use of technology in its expansion projects has yielded some encouraging early results.
Recommendation
HMPPS’s innovative use of technology in its expansion projects has yielded some encouraging early results. HMPPS has achieved some initial positive results from using new technology in its alcohol monitoring scheme and acquisitive crime Transforming electronic monitoring services 7 project. …
Read more
Government Response Summary
The government has consulted on a revised National Air Pollution Control Programme (NAPCP) which includes robust actionable measures for further consideration to deliver compliance with the 2030 targets for all air pollutants. This is not related to the recommendation about HMPPS.
HM Treasury
View Details
6
Recommendation
Not Addressed
HMPPS’s poor track record in its transformation programme does not inspire confidence that it will...
Recommendation
HMPPS’s poor track record in its transformation programme does not inspire confidence that it will be well-equipped to handle risks in its £1.2 billion expansion programme. HMPPS is re-procuring contracts to run the electronic monitoring service. It is attempting to …
Read more
Government Response Summary
The government provides a response related to air pollution control, which is completely unrelated to the recommendation about HMPPS's contract procurement for electronic monitoring and risk management.
HM Treasury
View Details
1
Conclusion
Not Addressed
On the basis of a report by the Comptroller and Auditor General, we took evidence...
Conclusion
On the basis of a report by the Comptroller and Auditor General, we took evidence from the Ministry of Justice (the Ministry) and HM Prison & Probation Service (HMPPS) on HMPPS’s electronic monitoring (‘tagging’) transformation programme.1
Government Response Summary
The government states that information is effectively communicated to the public. They launched an Air Quality Information System (AQIS) Review to ensure members of the public, and vulnerable groups, have what they need to protect themselves and understand their impact on air quality. This is not related to the recommendation about HMPPS.
HM Treasury
View Details
7
Conclusion
Acknowledged
The Ministry and HMPPS told us that they have learnt lessons from pursuing technology which...
Conclusion
The Ministry and HMPPS told us that they have learnt lessons from pursuing technology which have to be developed from scratch. HMPPS took a detailed and prescriptive approach to setting requirements for Gemini. This introduced complexity and inflexibility, and limited …
Read more
Government Response Summary
The government states that it anticipated that the contract will be let by the end of 2022 and will inform the Committee when this has happened, but does not commit to specific changes in response to lessons learned.
HM Treasury
View Details
8
Conclusion
Accepted
Witnesses admitted there should have been stronger governance and more scrutiny of the programme from...
Conclusion
Witnesses admitted there should have been stronger governance and more scrutiny of the programme from the Ministry of Justice. In late 2019, HMPPS prepared an 6 Q 90 7 Q 17 8 Qq 21, 26; C&AG’s report, para 3 9 …
Read more
Government Response Summary
The government stated it had already implemented measures, introducing an improved control framework in November 2021 and strengthening departmental governance structures during 2021-22 with additional sub-committees and early warning indicator controls.
HM Treasury
View Details
9
Recommendation
Accepted
Both the Ministry and HMPPS told us that they had learnt lessons from weaknesses in...
Recommendation
Both the Ministry and HMPPS told us that they had learnt lessons from weaknesses in governance and scrutiny in the programme. The Ministry explained that a lack of scrutiny can be the nature of big departments with a small corporate …
Read more
Government Response Summary
The government states that the Investment Committee has delegated powers to make decisions on portfolio projects. It also states that an improved control framework was introduced in November 2021 and governance structures were strengthened during 2021-22.
HM Treasury
View Details
10
Conclusion
Accepted in Part
HMPPS intended Gemini to replace the current case management system (‘Integrity’) which had been in...
Conclusion
HMPPS intended Gemini to replace the current case management system (‘Integrity’) which had been in use since 2012 and must now be relied on until 2024. The NAO found that many of its applications were no longer supported by manufacturers …
Read more
Government Response Summary
The government is undertaking a technical refresh, including replacing tablet applications and addressing IT health check findings, but the completion date has been moved to March 2023 due to prioritising expansion of the EM service.
HM Treasury
View Details
11
Conclusion
Accepted in Part
The telephone system Capita uses in the live service for its operations—including contacting offenders—has been...
Conclusion
The telephone system Capita uses in the live service for its operations—including contacting offenders—has been in place since 2005. Since May 2021, there have been six 13 Q 24; C&AG’s report, paras 3.6–3.7 14 Q 36 15 Qq 33, 36 …
Read more
Government Response Summary
The government is undertaking a technical refresh, including replacing tablet applications and addressing IT health check findings, but the completion date has been moved to March 2023 due to prioritising expansion of the EM service.
HM Treasury
View Details
12
Conclusion
Accepted
HMPPS’s failure to deliver Gemini also means that police forces and the Probation Service lack...
Conclusion
HMPPS’s failure to deliver Gemini also means that police forces and the Probation Service lack timely access to tagging data to investigate crime, supervise offenders and protect the public.20 HMPPS expected Gemini and the user portal to provide a range …
Read more
Government Response Summary
The government agrees to improve the timeliness of responses to requests from probation practitioners for GPS location monitoring data by March 2023, and to review the process by which police officers make requests for information from the EM supplier by the same date. It states police do not currently consider real-time access to be a priority.
HM Treasury
View Details
13
Conclusion
Accepted
We asked why government was not exploring mobile phone GPS technology or identity scanning software,...
Conclusion
We asked why government was not exploring mobile phone GPS technology or identity scanning software, such as fingerprint scanning used by banks. HMPPS explained that the challenge of using mobile phones in tagging is that they would not be solely …
Read more
Government Response Summary
The government agrees and commits to improving the timeliness of GPS data responses for probation practitioners and completing a review of police information request processes by March 2023, while continuing to keep police requirements under review.
HM Treasury
View Details
14
Recommendation
Accepted
In 2006, our Committee found that there was insufficient evidence available to determine whether tagging...
Recommendation
In 2006, our Committee found that there was insufficient evidence available to determine whether tagging helped to reduce re-offending or promote rehabilitation. We recommended that the Home Office—which previously managed tagging services— should carry out research to establish the role …
Read more
Government Response Summary
The government agrees with the committee’s recommendation and will use EM data to inform reporting. They will also implement a benefits management strategy and realisation plan by April 2023 and develop a formal evaluation strategy for EM.
HM Treasury
View Details
15
Conclusion
Accepted
The Ministry admitted that its evaluation in the transformation programme was not as strong as...
Conclusion
The Ministry admitted that its evaluation in the transformation programme was not as strong as it should have been and recognised that it needed to put more effort into evaluation going forward. It told us that it was extending its …
Read more
Government Response Summary
The government agrees to improve its evaluation of electronic monitoring programs, including rigorous evaluation of long-term impacts on reoffending, and outlines specific actions like improved data collection, a benefits management strategy, and a formal evaluation strategy.
HM Treasury
View Details
16
Conclusion
We asked HMPPS what information it shared with the judiciary to inform their sentencing choices.
Conclusion
We asked HMPPS what information it shared with the judiciary to inform their sentencing choices. It explained that it had an extensive programme of engagement in place to ensure judges and magistrates were aware of available services. However, it told …
Read more
HM Treasury
View Details
17
Recommendation
Accepted
The NAO found persistent issues in the quality and availability of HMPPS’s data on tagging,...
Recommendation
The NAO found persistent issues in the quality and availability of HMPPS’s data on tagging, including inefficient processes, poor-quality data, limited data capture and access, and siloed data and systems. In particular, HMPPS only captured data on offenders’ age and …
Read more
Government Response Summary
The government agreed to the recommendation with a target implementation date of August 2023, outlining that EM data analysts now receive monthly data, a data improvement plan is developed, and data scientists have access to detailed, cleansed data for analytics.
HM Treasury
View Details
18
Conclusion
Accepted
In 2020, HMPPS launched a tagging expansion programme to widen the use of tagging to...
Conclusion
In 2020, HMPPS launched a tagging expansion programme to widen the use of tagging to different groups of offenders. As part of the programme, it aims to: develop a flexible and scalable service; build the evidence base to demonstrate the …
Read more
Government Response Summary
The government agreed to the recommendation with an August 2023 target, stating a benefits management strategy and realization plan would be in place by April 2023 and the Ministry of Justice is developing a formal evaluation strategy for Electronic Monitoring.
HM Treasury
View Details
19
Recommendation
Not Addressed
HMPPS launched alcohol monitoring services in October 2020 for offenders sentenced in the community.
Recommendation
HMPPS launched alcohol monitoring services in October 2020 for offenders sentenced in the community. In November 2021 and June 2022, it extended the scheme to include those leaving prison, in Wales and in England respectively. Alcohol tags measure alcohol concentration …
Read more
Government Response Summary
The government's response regarding a lessons learned strategy did not address the committee's recommendation concerning evaluating the long-term impact of alcohol tagging or commissioning specific alcohol support services.
HM Treasury
View Details
20
Conclusion
Accepted
HMPPS launched an acquisitive crime pilot in April 2021 to impose location monitoring on prison...
Conclusion
HMPPS launched an acquisitive crime pilot in April 2021 to impose location monitoring on prison leavers convicted for theft, burglary or robbery offences. The 19 police forces participating in the pilot send data on alleged acquisitive offenders to HMPPS’s system, …
Read more
Government Response Summary
The government agreed to the recommendation with a target of March 2023, stating the agency is working with EM service providers to improve the timeliness of responses to probation practitioners' requests for GPS location monitoring data.
HM Treasury
View Details
21
Conclusion
Accepted
HMPPS launched its Home Office Immigration Enforcement project, on behalf of the Home Office, in...
Conclusion
HMPPS launched its Home Office Immigration Enforcement project, on behalf of the Home Office, in August 2021. This project extended the use of tagging using GPS tags to Foreign National Offenders who are subject to deportation proceedings. HMPPS rolled out …
Read more
Government Response Summary
The government agreed to the recommendation with a target date of February 2023, committing to produce and embed a robust lessons learned strategy and approach across the EM programme and with stakeholders.
HM Treasury
View Details
22
Conclusion
Accepted
Given its poor experience of developing bespoke technology in its transformation programme, HMPPS told us...
Conclusion
Given its poor experience of developing bespoke technology in its transformation programme, HMPPS told us that it was “very cautious” about commissioning further novel solutions. For example, while tags which monitor multiple drugs at the same time are currently unavailable …
Read more
Government Response Summary
The government agreed to the recommendation with a target date of February 2023, committing to produce and embed a robust lessons learned strategy and approach across the EM programme and with stakeholders.
HM Treasury
View Details
23
Conclusion
Accepted
In parallel with managing its expansion projects, HMPPS is undertaking a re- procurement for its...
Conclusion
In parallel with managing its expansion projects, HMPPS is undertaking a re- procurement for its contracts with companies to run the tagging services. HMPPS has relied on Capita’s ‘bridge’ contract throughout its transformation programme. This was only intended to be …
Read more
Government Response Summary
The government agrees with the recommendation and states that the procurement of new contracts is being run in compliance with The Sourcing Playbook, and risks are managed in accordance with the EM Portfolio Risk Management Strategy. They will update the committee in August 2023, once new contracts have been awarded.
HM Treasury
View Details
24
Conclusion
Not Addressed
HMPPS told us it had learnt lessons from its transformation programme and was applying these...
Conclusion
HMPPS told us it had learnt lessons from its transformation programme and was applying these to its re-procurement of its contracts to deliver tagging services. In addition to pursuing off-the-shelf systems, it told us that it had decided to limit …
Read more
Government Response Summary
The government agrees with the Committee’s recommendation and provides general risk management and procurement processes for the electronic monitoring contracts but does not address the substance of the recommendation.
HM Treasury
View Details
25
Conclusion
Accepted
We questioned HMPPS on what it saw as the biggest risks in the expansion programme.
Conclusion
We questioned HMPPS on what it saw as the biggest risks in the expansion programme. HMPPS told us that it is challenging reprocuring the service as it is changing and as the number of tagged people is increasing. It explained …
Read more
Government Response Summary
The government states that project risks are managed according to the EM Portfolio Risk Management Strategy and that the procurement of new contracts is being run in compliance with the government standard, The Sourcing Playbook.
HM Treasury
View Details
26
Recommendation
Accepted
Earlier in its transformation programme, HMPPS outsourced the role of systems and services integrator to...
Recommendation
Earlier in its transformation programme, HMPPS outsourced the role of systems and services integrator to Capita, which involved pulling together suppliers’ work to deliver an end-to-end tagging service.48 In 2017, we examined earlier progress in the programme. We found that …
Read more
Government Response Summary
The government states that project risks are managed according to the EM Portfolio Risk Management Strategy and that the procurement of new contracts is being run in compliance with the government standard, The Sourcing Playbook.
HM Treasury
View Details
27
Conclusion
Acknowledged
In early 2022, HMPPS decided to outsource this role again in its re-procurement and transition...
Conclusion
In early 2022, HMPPS decided to outsource this role again in its re-procurement and transition to the new service. The NAO outlined areas where HMPPS will need to be prepared to manage risks with this approach, including: • Parties having …
Read more
Government Response Summary
Project risks are managed in accordance with the EM Portfolio Risk Management Strategy, new contracts are being procured in compliance with government standards, and suppliers will be managed by the EM contract management team.
HM Treasury
View Details
28
Conclusion
Not Addressed
We asked HMPPS whether it will be prepared to step in to handle any problems...
Conclusion
We asked HMPPS whether it will be prepared to step in to handle any problems arising from this approach. It told us that it was ready to step in and had strengthened its governance and is holding regular meetings with …
Read more
Government Response Summary
The government describes its general risk management and procurement processes for the electronic monitoring contracts but does not specifically address how it will step in to handle problems arising from the approach as the committee asked.
HM Treasury
View Details