BTP ESN (ESMCP) Report v3

Transcription

1 28 th September 2016 BTP ESN (ESMCP) Report v3 Author : Simon Turpin Date : 28 th September 2016 Revision : Draft version 3.0 British Transport Police Information Technology 1

2 Background This paper has been written in response to the Actions agreed at the joint meeting between the Chair of the Authority and Chief Constable on 16 th August The Action was to provide a report for 28 th September 2016 Authority Meeting with respect to the Emergency Services Mobile Communications Programme (ESMCP). Along with this paper, there is a summary presentation to provide context to the questions and answers contained in this paper and more generally with the overall understanding of the current Airwave platform to the new proposed ESN platform. Lastly there is an ESN Project Whole life Costs workbook. This is, of course, an ongoing work in progress but reflects an upfront Personal Issue scenario equivalent to the Airwave Personal Issue that BTP has today. Current Airwave vs Future ESN Airwave is the name for the current secure Emergency Services Network for critical voice communications that BTP use. This has been in place as a service since This is primarily a critical Voice only service and as such Police forces are spending around 60m with other mobile network operators to provide mobile data capability. (NB See slide 5 in presentation) ESMCP is the acronym for Emergency Services Mobile Communications Programme which is fundamentally the Home Office replacement programme for Airwave. The system will deliver both critical voice services and broadband data services. The Service will based on EE s (mobile operator) commercial current 4G mobile network with technical integration and enhancements, delivered by Motorola, to meet the requirements for the Emergency Services Network (ESN). For clarity the term LTE/4G is often used. LTE stands for Long Term Evolution and refers to the 4G network and its future evolutions 5G and 6G. Slides 4 and 7 provide a simple pictorial image of the two platforms. Actions agreed 1. There is an action to submit a report on the ESMCP to the 28 September Authority Meeting. Response: This paper, a presentation for context and an ESN Whole Life Costs work in progress excel workbook. 2. The purpose of the report is to explain to the Authority the operational and financial risks of the programme relevant to the Authority and Force. 3. To meet the requirement the report should describe: Action A) The timeline of the programme and show on that timeline where there is a risk of slippage and estimate the impact of that slippage in terms of time. Time Line Home Office British Transport Police Information Technology 2

3 The high level timeline for this programme has been set by the Home Office (HO). As a kick off point the initial ESN contract award was made at the end of November The key dates after this are a scheduled Mobilisation, Design, Build and Test phase taking through to the end of 2017, and the the core Transition to Live ESN Service from late December 2017 and the a regional group transition until fourth quarter Time Line Diagram BTP (Still in production to follow) BTP s timeline will be slightly different to what the HO have suggested for the Non- Home Office Forces (NHOF). At the highest level, current plans reflect a testing phase beginning in June/July 2017, this will include BTP procuring 40/60 ESN/LTE units to test alongside the national rollout and ensure that upgrades such as the BTP ICCS system are working effectively. Two key external deliverables have to be completed at the same time (by December 2017), namely the Crossrail and London Underground Airwave coverage updates. Once these elements have been completed, BTP, MPS, CPS, Fire and Ambulance have to all agree that this work is complete and there is no degradation of service coverage on site. The expectation is that, with this work completed and the other financial, ESN product and national coverage issues resolved, the CC will then give the go ahead for BTP to start the main Transition to Live service. As it stands, if BTP s planned start date for Transition was to align with the HO suggested plan BTP s Transition start date would be early However there are a number of HO elements not yet in place that make this start time unlikely. The BTP programme team believe, based on current information, that the start date for BTP transition is at best 6 months later (June 2018), more likely to be 9-12 months later (Sept-Dec 2018), and this British Transport Police Information Technology 3

4 cannot yet take into account any delays from other Forces which will cause some variance in BTP plans. These are discussed in more detail below. What the BTP plan does then show is transition activity continuing in parallel with the regional migrations with a target to complete in quarter 4 of The last two main areas to Transition are Scotland and the South West, BTP is planning to complete the migration during the Scottish transition and at the early stage of the South West s transition. This ambition may be moved if the start dates slip and rollout becomes too condensed. BTP s draft plans have been reviewed by the KBR HO team and at this stage the feedback is that BTP understanding of potential delays are correct and the current draft plan reflects this. Time Line Potential Slippages As with all programmes of this size there will be some slippage due to the Home Office delivery elements, unforeseen public events (terrorist attack or major incident) and BTP operational issues. These are captured in the Programme RAID log and the mitigation detail is being worked on. Home Office Potential Slippage (BTP opinion) There are a number of key areas that could cause slippage to the national programme and therefore BTP s Transition start in our opinion. The first is the question that Does the ESMCP represent value for money from the current platform? The approach to this point is dealt with later on in this paper. In summary though, the ESMCP programme should not be seen as a like for like replacement for the current Airwave platform. However as it currently stands, the charging rates, as published by the HO, though slightly revised, are extremely high, and as such will directly influence BTP s approach to the national programme. This core issue has been formally registered with the HO programme team and is part of an on-going discussion to look at what can be done to address the issue and reduce the financial pressure on BTP. In summary a simple financial comparison between Airwave and ESMCP will not give an unbiased answer. The VFM argument relies on understanding what the ESMCP technology package will provide BTP in terms of flexibility and as a mobile way of working. Other system improvements such as transition from standalone Origin and E-Fin to a Multi-Force Shared Service solution will also contribute to the value for money argument. The second key area is the confirmation of the R12 security design standard from the Home Office. Until this is published the potential suppliers of hardware for the new platform cannot deliver their product and typically this is around a 9 month manufacturing and testing cycle. In order to avoid slippage as planned the units need to be available by June BTP programme team then have to take our own procurement cycle into British Transport Police Information Technology 4

5 account. The HO team have confirmed that detailed discussions are in-flight with chip manufacturers to help address the timeline issue but confirmed dates for delivery of devices are still not available. (Potential slippage estimate 9 months). The third key area is the completion of the coverage plan by EE (commercial mobile operator) on a national basis. The resolution of the Tunnels coverage is critical, in addition to the normal overland service. The Technical Assurance Director for the HO is providing regular updates on the status of declared coveraged by the provider. Again unless this is up to scratch this is likely to cause a delay amongst all Forces agreeing to Transition as planned. (Potential slippage estimate 9-12 months minimum). These are the main areas but there are other elements such as billing (which is in a more advanced state of development) that will need a clear resolution prior to all Forces (Fire, Ambulance and Police) accepting the change over. In our opinion the overall programme minimal potential slippage is 9-12 months based on the above and other smaller elements. Other smaller agency elements include organisations such as RNLI and Mountain rescue. BTP Potential Slippage The first key area is the completion of the Crossrail and London Underground upgrade programmes, currently targeted for completion in December As previously stated once these elements have been completed, BTP, MPS, CPS, Fire and Ambulance have to all agree that this work is complete and there is no degredation of service coverage on site. The expectation is that, with this work completed and the other financial, ESN product and national coverage issues resolved, the CC will then give the go ahead for BTP to start the main Transition to Live service. Slippage here will clearly impact the start of BTP Transition. (Potential slippage estimate 3 months). The second key area is the Business Case financials, critically this is being worked on and supported by the Executive of the BTPA and BTP for resolution. Agreement with the Home Office around the charging framework and therefore matching funding for BTP is clearly a concrete requirement for the BTP programme to move ahead. The third key area for BTP is alignment of all the technical platforms within the Push To Talk framework, effectively the replacement for the Airwave Radio. Without the technology in place, cost effective and meeting BTP s requirements, the core BTP programme will just not start. The fourth key area is all the core interdependent infrastructure programmes for BTP. Top of this list is the National Network Service (LAN/WAN) Replacement programme closely aligned with the Vodafone Contract replacement programme. The first gives BTP core connectivity (LAN/WAN/WiFI/WEB) and the latter provides secondary connectivity and a flexible (WiFi/4G plus/lan/wan) platform. British Transport Police Information Technology 5

6 The Vodafone replacement programme is a core building block for the new ESN service and Proof of Concept (PoC) testing followed by start of rollout in late 2016, will provide the platform for the whole force to start its cultural migration to fundamentally operate in a more flexible and independent manner than today. From a straight cost perspective, this will allow BTP to help mitigate the operational need and functional requirement to have a Personal Issue model for ESN deployment and be closer to a Pool Issue model without degrading Force capability too badly. This is of course a Force decision yet to be made based on whole life cost and not a technical one. Last but not least this should, with the correct training and consolidation of applications, enhance force effectiveness both in the front line and in the back office in terms of KPIs and reporting. Action B : The financial profile by year to reflect the timeline above. The profile should show the gross cost of the programme, the current cost of all (core & specialist coverage) airwave provision paid for by BTP and the cost borne by the Home Office on behalf of the Authority. It should make clear the net cost of the programme to the Authority taking the current cost of airwave provision to BTP and the Home Office subsidy into account. BTP Current BTP Financial Model The current revised financial model is attached but this remains work in progress. The BTP programme team have agreed with the business (Head of Finance) a given set of 5 core scenarios to model. Two have been developed to date, with the others being work in progress. This will then allow the detail programme delivery plan to reasonably reflect the financial model that BTP eventually run with. The annual Airwave cost borne by the Home Office at this time is understood to be in the region of 3million ( 3.14m in 2015/16), but the HO has made it clear, at time of writing, that this will not continue for the ESMCP solution. To address this and a number of other formally raised concerns there are a series of meetings being held with the HO both at a programme detail level and through the offices of the Chief Constable. The two models that have currently been developed are being revised to show the impact of the HO spend of 3m accrued for on a monthly profile. The programme team is using a series of targeted finance meetings with the HO team to address those outstanding financial elements (refinement of initial published figures) and thus the required detail for submission with the overall business case for ESMCP. The programme team do not have the absolute answer to this question yet, but the work in progress ESN Whole Life costs workbook (attached) and its subsequent variants will provide BTP, as a business, a clear set of routes, to make a decision against. Action C : The coverage of ESMCP compared with the current coverage of airwave thereby explaining the coverage gap and thus indicate the operational risk At present the coverage map that has been presented by the Home Office is not available electronically due to current contractual restrictions from EE. We have been British Transport Police Information Technology 6

7 informed that there is a mechanism for the team to engage with the Home Office national programme team to get a hard copy A0 set of maps. The BTP team are looking at setting up a War Room to display sensitive information and to allow work to be carried out to address planning and briefings for BTP. This is the next key priority alongside the updated Business case is the RAID log, Financial modelling and Programme plan that are currently being developed to the next stage. Action D : The cost model used by the ESMCP to determine BTP charges as far as can be determined from the information provided to date by the programme. There are two cost models that have been developed in the initial stages of the BTP programme work. The first is worst case which has been shared with the wider audience of BTPA, CC and DCC. These initial figures were developed around the letter from the Home Office programme and covered the initial enrolement figure of 2,600 etc. Subsequently to that position, the team have developed a number of potential profiles, based on discussions with the Force. These include a full front loaded procurement and enrolment equal to Personal Issue of the required estate and the same Personal Issue approach with the enrolment charge spread over 10 years. The second model that has been drawn up at this stage is a Pool Issue approach with almost minimal number of devices, and again with a front loaded procurement and enrolment view and an alternative 10 year enrolment charge spread. The two main models that have currently been developed are being revised to show the imapact of the HO spend of 3m accrued for on a monthly profile. The programme team is using a series of targeted finance meetings with the HO team to address those outstanding financial elements (refinement of initial published figures) and thus the required detail for submission with the overall business case for ESMCP. The team are now looking at various minimal or lesser numbers of handset options following the most recent SIB and discussions with the Interim Finance Director. The model profiles agreed are Do nothing show costs of Airwave until end of 2019 Full migration, costs front loaded for end of 2017 start of 2018 Migration starting end of 2017 but minimal number of handsets 2 Variants models showing the leverage of other technology capability The full migration model, with costs front loaded for end of 2017, start of 2018 is attached for reference. Action E : What further financial information is required to make a decision to join the programme in terms of value for money? There are a number of key points that still need to be finalised to address this question. The key ones are listed below but there will be some other smaller elements that are British Transport Police Information Technology 7

8 being worked through at the moment including training. The requirements for this are still be worked out at the moment. The first item the annual Airwave cost borne by the Home Office at this time is understood to be in the region of 3million ( 3.14m in 2015/16), but the HO has made it clear, that this support will not continue for the ESMCP solution. The second point that will come out from the financial model development work being done is the Revenue charge estimation for data usage once ESN is Live. These are the costs for data usage when officers (and others) use their BTP handsets to transmit and share pictures, video, administrative and other material over the 4G network. This is the same type of cost as when you send a picture from your phone in a message to family and friends just in considerably greater numbers. Currently forces in the UK spend around 60m annually with other commercial mobile network providers to support mobile data requirements alongside the current Airwave service, which is voice only. Although the HO proposed costs will act as a guide, the work currently being done on the Vodafone Contract replacement programme, will provide BTP with the basis for developing an up to date data usage model with forecast and actual once deployment has been completed. The hardware units for this will become part of the ESN solution eventually. The third point is the financial costs for special coverage that are currently commonly referred to as Annexe E. Our understanding is that once the areas have been confirmed the Gap can then be effectively calculated in financial terms. The fourth point is the final figures for the ESN connection to and the upgrade to ICCS (and Control Room Systems) as Capita cannot provide a final quote for these costs as the detail ESN specifications have yet to be provided to suppliers. The date for this drop of information is yet to be confirmed. The fifth key area is the confirmation of the R12 security design standard from the HO. Until this is published the potential suppliers of hardware for the new platform cannot deliver their product and typically this is around a 9 month manufacturing and testing cycle. We therefore don t yet have the total unit costs of the ESN solution to develop the final business case for spend. In order to avoid slippage as planned the units need to be available by June The BTP programme team then have to take our procurement cycle into account. (Potential slippage to BTP start of Transition estimate 9 months). Action F : The earliest time the decision to join the programme could be made and the latest time it could be made. At this stage the issue of time is based on a number of variables so the answer currently is that until the items in Action E are resolved, the BTP business case cannot be made, finalised and signed off. British Transport Police Information Technology 8

9 Critically the Home Office is requesting BTP to agree to immediate enrolment, however given the considerable numbers of unknowns at this stage any potential delay that the BTP programme then encountered would then put BTP at risk of commercial liability for delays to the national transition both to the Home Office and any other force that might be impacted by a delay in BTP readiness. Reality is BTP are joined now as we are engaged in design, planning and mitigation of risk effort. The answer to the question really how soon will we have clarified the cost exposure such that the risk of joining is affordable. Whilst the modelling will be considerably more advanced in the next two months, not all the Gaps will have been addressed. Therefore we would suggest this question can only be formally addressed once the financial models highlighted earlier are reasonably developed in the next 8 weeks. Action G : the billing arrangements and explain which of these the Force believe puts BTP at a financial disadvantage with respect to other users and why? The core charges are the main sticking point at this stage, in particular the 2,600 per unit enrolment fee. It makes the simple engagement of joining and replacing Airwave like with like prohibitively costly. Home Office forces for example are only being charged and enrolment fee of 1,500 per device but even then they are not having to bear that cost as the Home Office is absorbing that cost at Departmental level. In pure commercial terms given that the enrolment charge is about recovering cost of development for the new system (Home Office to Motorola and EE) it would appear that the high cost for the HO is based on immediate recovery rather than a loss leader for initial deployment. Given the fact that commercial organisations will go on to sell and provide the same systems globally why are the UK Blue Light organisations apparently being made to meet the burden of costs at this innagural stage? Another key point is that recovery of costs cannot explain the decision to allow non 3ES organisations to be charged a higher annual fee for each device to connect to ESN. Last but not least one of the core HO drivers is to see the switch off of Airwave no later the the end of The cost to them to extend the service past this date is over 250m per year. The framework cost and HO position for this was reaffirmed at a meeting with the HO on 15 th September British Transport Police Information Technology 9