Press Release - The Implementation of the National Probation
Service
26 April 2001
The National Probation Service Information Systems Strategy
(NPSISS) network is operating in 38 out of the 42 new local
probation areas in England and Wales. Nevertheless, there were
serious problems in the development of a case recording and
management system, known as CRAMS, leading to its use by a minority
of probation service areas. During 2000 CRAMS was being used
substantially by only 16 of the 54 former local probation service
areas, representing only 20 per cent of the probation service
budget.
Key findings identified in today’s National Audit Office report
include the following.
- Implementation of the NPSISS computer network was a notable
achievement - but the Home Office’s poor specification of expected
outputs, weaknesses in service monitoring and inadequate control of
purchases contributed to the full cost of the NPSISS programme,
including CRAMS, being £118 million, some 70 per cent
above forecast. CRAMS alone cost almost £11 million compared to the
Home Office’s initial estimate of £4 million.
- The introduction of these systems was always likely to present
a significant management challenge. However, the Home Office’s
programme team suffered from a lack of continuity in its leadership
and was not fully resourced to deal with the scale of the issues
facing it. In its first seven years, for example, the programme
team had seven different programme directors.
- Since early 2000, the Home Office has held back its pursuit of
IT development work because of concerns about whether letting new
orders under its enabling agreement with its contractor, Bull
Information Systems Ltd, would comply with public procurement
requirements.
- Failure by the Home Office to prioritise necessary preparatory
work has contributed to delay in establishing a new strategic
partnership to follow on from the end of the current agreement with
Bull in December 2001. As a result, the Home Office will have to
bear the likely additional cost of undertaking two phases of
procurement.
The Home Office underestimated the technical risks associated
with developing CRAMS from an existing probation service system.
And the development of CRAMS did not keep pace with the changing
business needs of probation services. It does not, for example,
provide local services with direct access to data on offenders held
by other areas.
The NAO report recognises that action is being taken to address
past failings in the management of the IT programme. The report
encourages the new National Probation Service to build on this work
by:
- ensuring that the national NPSISS network is completed to
provide a backbone for the operation and accountability of the new
National Probation Service;
- developing proper user specifications for case management
systems to succeed CRAMS, building on current experience and
reflecting clear statements of the business objectives and
requirements for the new National Probation Service;
- providing for greater continuity of leadership for its IT
programme and adequate staffing; and
- ensuring that the new National Probation Service pays full
regard to recent recommendations made by the Committee of Public
Accounts and the Cabinet Office relating to the management of IT
projects.
Sir John Bourn said today:
"Good information systems have a vital part to play in
helping probation officers carry out their work in supervising
offenders serving their sentences in the community and in helping
them turn against crime.
"Whilst the Home Office has been able to install a
standard information technology infrastructure across a large part
of the probation service, there are some important lessons to be
learnt from the serious flaws in the Home Office’s procurement and
management of this IT programme. The new National Probation Service
now has an opportunity to address these issues as it develops a new
IT strategy and enters into a new strategic
partnership."
Notes for Editors
The Home Office and local probation services adopted the
National Probation Service Information Systems Strategy (NPSISS) in
1993. The initial programme was for the provision of a national
computer infrastructure (comprising personal computers, software, a
communications network supported by common servers) and a case
record and management system, CRAMS. This programme was managed by
the Home Office’s Probation Unit and was provided by the main
contractor, Bull Information Systems Limited, under an enabling
agreement which is due to end in December 2001.
By the end of March 2001, the NPSISS network was operating in 49
out of the 54 local probation services in England and Wales. The
Criminal Justice and Court Service Act 2000 has created a unified
National Probation Service for England and Wales, led by a national
Director, with effect from 1 April. There are now 42 local
probation areas, managed by Chief Probation Officers appointed by
the Secretary of State and supervised by local probation boards, of
which 38 have access to the NPSISS network.
Press notices and reports are available from the date of
publication on the NAO website at http://www.nao.org.uk/ Hard
copies can be obtained from The Stationery Office on 0845 702
3474.
The Comptroller and Auditor General, Sir John Bourn, is the head
of the National Audit Office employing some 750 staff. He and the
NAO are totally independent of Government. He certifies the
accounts of all Government departments and a wide range of other
public sector bodies; and he has statutory authority to report to
Parliament on the economy, efficiency and effectiveness with which
departments and other bodies have used their resources.
The Cabinet Office report, Successful IT: Modernising
Government in Action, is available at:
http://archive.cabinetoffice.gov.uk/e-envoy/reports-top/$file/successfulit_menu.htm.
The Office of Government Commerce, an office of HM Treasury,
is taking forward the continuing implementation of the
recommendations.
Press Notice 30/01
All enquiries to NAO Press Office:
Tel: + 44 (0) 20 7798 7400