Tag Archives: outsourcing

Rights to Provide plans focus on “potential offered by mutual models” to improve services

By David Bicknell

The Government has detailed how it is developing and implementing Rights to Provide to “empower front line staff across the public sector to take over the services they deliver,” possibly through the creation of new mutuals.

The Government said it has identified local authorities’ services, fire services, probation and adult social care as some of the areas for developing new mutuals. This it says, will be backed by enhanced support available to staff through the Mutuals Information Service and the Mutuals Support Programme.

In announcing an updated discussion paper David Cameron said increasing parental choice in schools, extending personal budgets so people can choose how they spend money on services and increasing the transparency of public service performance and user satisfaction are all part of the next steps to improve public services by opening them up.  The paper updates the Open Public Service (OPS) White Paper published last summer.

Launching the new paper, Cameron said: “Nearly two years on from coming into office, brick by brick, edifice by edifice, we are slowly dismantling the big-state structures we inherited from the last government. We are putting people in control, giving them the choices and chances that they get in almost every other area of life. There is still a way to go and this kind of change will not happen overnight. But no one should doubt my determination to make our public services better, by opening them up.”

Specifically on mutuals, the paper says:

“Alongside the focus on digital delivery, and as a core part of work to reform the Civil Service, Government Commercial Teams are working with individual departments to identify where new commercial models would accelerate reform and improve services. In some cases, this may involve high-quality in-house delivery; in other cases outsourcing may offer best value.

“We are particularly interested in the potential offered by mutual models, including mutual joint ventures, that give employees much greater say in the way their organisation is run, for example the model being considered for MyCSP.

“To ensure that the benefits of mutualisation are available across the wider public sector, we are giving public sector staff new Rights to Provide – empowering employees to form public service mutuals to bid or request to take over the services they deliver. This will empower millions of public sector staff to become their own boss,freeing up untapped entrepreneurial and innovative drive.

“Public service mutuals are now well established in community healthcare, with thousands of public servants working in new mutuals with contracts worth almost £1 billion. We have extended these rights to new areas, including adult social care and NHS trusts, and we are looking to go further, in areas such as youth services, probation services, children’s centres, and fire and rescue services.

“We have been actively working with fledgling mutuals on the ground, for example through the Mystery Shopper service and the Mutuals Information Service; and we are supporting some of the most promising and innovative mutuals to reach the point of investment readiness, through the Mutuals Support Programme – a fund of more than £10 million to contract for support in the form of business and professional services to groups of staff who want to form mutuals or existing mutual organisations in the public sector. A steady stream of applications is developing into a pipeline of projects.”

The Government said all its departments will put in place a Right to Provide to empower employees in public services for which they are responsible to s pin out to create new public service mutuals. Public sector workers who want to formmutuals or co-operatives to deliver public services will be given a Right to Provide.

The Government will look to reflect these commitments in departmental business plans where appropriate.

Information from the Mutuals Information Service will inform departmental policy development, the new paper says.  

It points out that “the Department of Health’s Right to Request is near completion, with 40 services now operating as independent social enterprises and further projects to go live by April 2012. The Right to Provide has generated interest across NHS trusts, foundation trusts and adult social care.

“The Department of Health is already exploring opportunities to support social enterprises and mutuals spinning out from the NHS, social care and adult social work. The status of other government departments is as follows:

Department for Business, Innovation and Skills (BIS) Further Education – now starting

Home Office – not yet started

Ministry of Justice – now starting; commitments will be reflected in the Department’s business plan 

Department for Work and Pensions – not yet started

Department for Education Youth Services, and Social Work – now starting

Department for Education Children’s Centres – not yet started.

Other Links

Cabinet Office news release

Part equity models for mutuals could revive outsourcing sector

By Robert Morgan

Few can be in any doubt of the coalition government commitment to worker inclusive mutuals and the potential for not only smaller government as a result but a revival of the outsourcing services industry.  This model acts as a template to appease European workers councils who have long held back the greater use of outsourcing in country like France and Germany.

Headline grabbers like ““Ministers are poised to launch one of the biggest experiments in public sector reform … a John Lewis-style mutual – the first to be created in central government”, and “… three or four more Mutuals THIS year …” and “…1,000,000 public sector workers in Mutuals by 2015” in the Financial Times this week has not been picked by the bulk of the popular press. But they and the continental press soon will.

Francis Maude, Mutualisation’s marketing guru has said of the MyCSP mutual ““I don’t … view this as the ultimate model … we have learnt … The next one should be easier to do”. The award of the MyCSP contract, rumoured to be ten years with a break clause at year seven, will administer 1.5m government pensions, transfer 500 DWP staff into the SPV, see CEO compensation capped at 8% above average employee salary, net profits shared with the supplier but only after 1% going to charity and 1% going to apprenticeships, and employees interests will be represented by an externally advertised director. So part of the model are clear – a new form of privatisation with Jon Lewis style employee participation and share ownership and a “caring” social charter.

But has government learnt from Labour’s disasters in PFI / PPP – you know the £120 to change a light bulb stories. Key questions need answers:

  • To what extent will the mutual be given freedom to operate?
  • At least in the short-term, a mutual remains tied to its public sector background and delivery and is therefore subject to the rigours and constraints of regulation, OJEU and accountability to the Auditor General. Will these restrictions be “officially loosened” any time soon?
  • Everyone agrees that the public sector will continue to shrink and by definition therefore, so will a dependent mutual’s service revenues, this throws up questions on it’s ability to survive – and to attract external revenues, and so …
  • … will the choice of partner be heavily dependent on their demonstrated ability or commitment to develop such services?
  • What penalties are there for NOT securing external business?
  • How might the Mutual formula vary and evolve between different circumstances?

More importantly for the outsourcing industry is, are more commercial models going to spring up and be accepted. The consensus of clients I have spoken to is “yes”, but this needs to be balanced with the fact that there was not a single tier one outsourcer (IBM, CSC, HP) in the short-list for MyCSP.  Demand says “yes” and Supply says “yawn”. 

Robert Morgan, formerly the founder of Morgan Chambers and now director of outsourcing advisory Burnt Oak Partners, is delivering a speech on Part Equity models for commerce on Wednesday 8th February 2012 at Berwin Leighton Paisner – the event is free and tickets can be coordinated via  shan,murad@blplaw.com  – yes it is a comma!

Robert also writes the influential Outsourcing Lex column at

http://www.burntoak-partners.com/viewpoint/outsourcings-lex-column/

HM Courts Service hides “Libra” IT’s new shortcomings

By Tony Collins

A report published today by the National Audit Office highlights how limitations in Libra, a case management IT system in use across magistrates’ courts, has contributed towards  HM Courts Service’s inability to provide basic financial information to support the accounts.

HM Courts Service claimed a success for the troubled Libra system in 2008 – but the failure of the system was more enduring and deep-rooted than thought. The problems were kept hidden until today’s NAO report because the present and past governments have kept “Gateway” progress reports on IT-based projects confidential.

In an unusual step, the head of the NAO, Amyas Morse, has “disclaimed” his audit opinion on the accounts of the HM Courts Service, largely because of a lack of financial information.

Disclaiming an audit opinion is more serious than qualifying the accounts of a government department or agency. Qualifying the accounts means that Morse has reservations on whether figures presented to the NAO are accurate. Disclaiming an audit opinion means that Morse lacks the basic information on which to give any opinion on the accounts.

MP Richard Bacon, a member of the Public Accounts Committee, says that disclaiming an audit opinion is the “auditor’s nuclear button”.

The NAO report today puts the focus on inadequacies in the “Libra” system which is supplied by Fujitsu and STL, with integration work by Accenture.

Fujitsu originally estimated the cost of Libra, a case management system for magistrates’ courts, at £146m. By March the estimated costs were £447m and were expected to rise further. The Libra project took 16 years to complete.

Problems and cost increases on the Libra system were well known in 2003 when the NAO criticised the management of the project. After that all went quiet until in 2008 when HM Courts Service declared Libra a success.

Now the NAO’s Morse says:

“Because of limitations in the underlying systems, HM Courts Service has not been able to provide me with proper accounting records relating to the collection of fines, confiscation orders and penalties. I have therefore disclaimed my audit opinion on its Trust Statement accounts.”

In a statement the NAO criticises the Libra system directly:

“Today’s report highlights how limitations in Libra, the case management IT system in use across magistrates’ courts, and similar systems have contributed towards  HM Courts Service’s inability to provide information at an individual transactions level to support the accounts.”

The NAO says that the Ministry of Justice plans to investigate further the functionality of Libra to determine whether it is possible to provide evidence to support accruals-based financial reporting.

Says the NAO:

“In particular, the Ministry and HMCTS [HM Courts and Tribunals Service] believe that it may be possible to obtain evidence over fines and confiscation orders if a suitable report is run shortly after the month end.

“ However, the Ministry and HMCTS have informed me that they may not be able to address these fundamental issues until Libra is significantly enhanced or replaced with a new case management and accounting system. The timing of this enhancement or replacement is currently uncertain. However, the Ministry have committed to ensuring that any replacement for Libra includes accounting functionality to enable financial reporting.”

MP Richard Bacon, who has followed the Libra project for many years, says:

“This is a disgraceful position for the Courts Service to have reached.  It is true that the Libra computer system is both expensive and useless but we have known this for many years (Cost of Courts’ IT system triples) and public bodies still have a duty to keep proper records.

“We are now looking at a possible £1.4 billion loss in uncollected fines and penalties partly because of the longstanding shambles that passes for record-keeping in the courts service.

“For centuries, people have kept accurate records and accounts using pen and paper. This could still be done now if needed and if there were sufficient will to do it.”

Margaret Hodge MP, Chair of the Committee of Public Accounts, said:

“It is really worrying that HM Courts and Tribunals Service can’t produce basic financial records.  HM Courts Service is responsible for collecting fines and penalties, but we can’t tell if this money is accounted for properly.

“The Comptroller and Auditor General has taken the rare step of disclaiming his audit opinion – the Committee will be looking for HM Courts and Tribunals Service to improve.”

Comment:

It is astonishing that HM Courts Service has been able to continue in operation without MPs having idea until today that the costly Libra computer system was unable to provide basic financial information.

Parliament was kept in the dark about Libra’s new shortcomings because “Gateway” review reports in IT-based projects and programmes are kept confidential. It is a pity for taxpayers and accountability on major projects that ministers are surrendering to the wishes of civil servants who want Gateway reports kept confidential.

NAO report on Courts Service.

Officials pay supplier invoices – then raise purchase orders

This morning the National Audit Office has published a report that says the Equality and Human Rights Commission, in up to 35% of cases, raises its purchase order after it gets the invoice from suppliers.

It’s unlikely that any private sector company could survive if it didn’t know what it owed, didn’t know what it had bought, and had to wait for an invoice from the supplier to raise the purchase order.

Amyas Morse, the head of the NAO, says in his report today:

“While I welcome the considerable improvements that the Commission has made in its controls over procurement, there are still areas where it needs to make improvements. In particular, up to 35% of the Commission’s purchase orders are still not raised until after the Commission has received an invoice for goods and services.

“This means that Commission staff are committing funds without going through proper processes and are avoiding some of the checking processes. Consequently the Commission does not have an accurate understanding of its committed expenditure at any one point in time.

“The Chief Executive has made it clear that he takes noncompliance with these processes seriously such that in cases of repeated non-compliance delegations will be withdrawn.”

A common practice? 

Is this absence of proper accounting worryingly common in central government and its agencies, particularly on IT contracts?

Auditors told us that in the case of NPfIT contracts they found some invoices that were paid when they came in, awaiting reconciliation with any past paperwork.

This, perhaps, ties in with the experiences of Conservative MP Richard Bacon, a member of Public Accounts Committee who, when asking civil servants for a breakdown of IT spending has, in the past, been referred to the department’s IT supplier.

On the C-Nomis IT project for prisons, the National Offender Management Service paid £161m without keeping any record of what the payments were for.

The Cabinet Office wants to cut the £17bn or so spent every year on public sector IT. But before departments, agencies and other organisations cut their costs they’ll need to know what those costs are. Maybe they should ask their major IT suppliers? We wonder if the domination of GovIT by a small number of suppliers has got to the stage where it’s the suppliers managing the civil service IT budgets. If that’s the case it is not the fault of suppliers.

UK GovIT often a barrier not enabler says Cabinet Office official

By Tony Collins

In an interview for UKauthority.com Chris Chant, Executive Director at the Cabinet Office and head of the G-Cloud programme,  debunks the claims of some that GovIT doing a great job and should remain largely untouched.

Chant says: “IT is supposed to be an enabler. Quite often in my experience in government IT it is actually a barrier to getting things done. That’s no way to use IT. It is supposed to support what we do.”

His criticism puts into context claims by some in the civil service that GovIT is an unpublicised success because of the ease and success of online re-taxing of vehicles, the payment of benefits to millions of people and the collection of taxes.

Chant has made clear his concern that some departments are locked into major IT suppliers through costly, inflexible long-term contracts that, in some cases, are being signed anew.

“In the main we are not delivering good quality IT to government and public sector workers. We are not delivering good IT solutions to the citizen …”

He calls for internal change and describes SMEs as “front and centre to what we need”.

“It is with SMEs that agility and innovation lie, and it is that market we are really encouraging… Good IT is not developed by spending a long time trying to work out a definitive answer, and then taking ages over delivering it only to discover it is not what we needed in the first place. It is about iteration. I have said all along that we do not have all the answers. We will develop as we go and take SMEs with us.”

Asked whether the public sector is ready for the cloud Chant replies: “No we are not. We are quite a way from that… We are very well positioned to operate in a world where our IT is delivered by multinationals but now it is a different world.”

He says that the cloud has security limitations. “It is difficult to see the cloud in the short term handling some of the higher security aspects of what we do but for a lot of what government does it’s about commodity products and we need to get people in who know how to handle that.”

The focus he says must always be on the citizen – assumptions should not start from a departmental or systems standpoint. “We will need to change the way we do things; we will need some new people and I suspect a lot of retraining. I think we will need a lot fewer people working on the client side of government IT…

“We are in really tough times and the idea that we can operate with [current] cost levels is wrong…”

Government clouds take shape – UKauthority.com.

The unavoidable truths about GovIT – Chris Chant.

Vested interests will try to stop GovIT changing.

What exactly is HM Revenue and Customs paying Capgemini billions for?

DWP signs new large contracts with HP, Accenture, IBM and Capgemini.

What exactly is HMRC paying Capgemini billions for?

By Tony Collins

When the National Audit Office published a largely-positive report on HMRC and its online filing systems last month, the department received some justifiably good media coverage.

What was little noticed was that auditors were unable to get a breakdown of what HMRC is paying its “Aspire” systems suppliers Capgemini and Fujitsu for online filing.

Collect your car after a service and your bill has a breakdown of the parts used, their cost, and the cost of labour. But when HMRC pays around £8bn to Capgemini for its Aspire IT service, a clear breakdown of costs is not provided.

Says the NAO report:  HM Revenue & Customs – The expansion of online filing of tax returns:

“HMRC has a high-level view of the overall costs of ICT provision through the ASPIRE contract. It has been taking steps to improve that information and achieve cost savings. It does not yet have a detailed breakdown of the costs of online filing services, so it cannot benchmark those costs to assess their value for money.

“HMRC is currently negotiating with the ASPIRE contractors to obtain a clearer breakdown of the costs of ICT services provided.”

In case you think the NAO has made a mistake, and that HMRC must surely have a breakdown of the costs of Capgemini’s services, the NAO makes it completely clear that the Department has no such breakdown.

“The ASPIRE contract includes a rolling programme of benchmarking the prices HMRC pays for the various contracted services, including those relevant to online filing … Since 2010, HMRC has introduced new processes to improve information on the cost and use of ICT and benchmarking of key ICT service lines. These processes cannot yet provide information in sufficient detail to benchmark and challenge the cost of individual online filing services…”

Unfortunately for taxpayers it is not unusual for a department to pay its main IT supplier without having a full breakdown of the bills.

Several years ago the Conservative MP Richard Bacon asked criminal justice officials for a breakdown of costs on the “Libra” contract for magistrates’ courts IT. The Department didn’t know. So it referred Bacon to Fujitsu, Libra’s main supplier.

Fujitsu eventually provided a breakdown so vague – with high-level categories such as “network services” – that Bacon had little choice but to ask the same questions repeatedly to find out how public funds were being spent with Fujitsu.

In the end Bacon failed – and he had little support from departmental officials.

Now, about 10 years on, Capgemini is keeping HMRC in a similar level of ignorance.

Can any department be trusted with the public funds to pay its IT suppliers billions of pounds without a clear and unambiguous breakdown of what it is paying for?

A supplier’s reluctance to supply a breakdown of costs is understandable.  A clear breakdown could clear a path through the fog of supplier pricing, so it could make price comparisons easier.

It is up to HMRC to insist on a breakdown.  Its IT services have been outsourced since 1994. Shouldn’t it know exactly what it is paying billions for by now?

Chris Chant, an Executive Director in the Cabinet Office, has deplored the high costs of locked-in long-term contracts with out-of-season monolithic suppliers.  Does the Aspire contract alone make a good case for the reform of central government?

The unavoidable truths about GovIT – Chris Chant.

Making the case for “tilting the table” for mutuals

By David Bicknell

A recent get-together organised by Stepping Out discussed the landscape for mutuals and asked what needs to happen to get the mutuals show on the road.

The discussions are summed up in this well argued blog by Craig Dearden-Phillips.

A few paragraphs caught my eye:

“The general view in the room is that financial weakness – in the form of small balance sheets – is a disadvantage facing spin-outs tendering for contracts. There appears to be a truth that when tenders come up, this sector struggles to show the financial ‘leg’ necessary to get nervous public sector commissioners into bed. Instead they bee-line for safer-looking super-providers. Some would argue that social enterprises should be ‘gifted’ public assets in the form of property to address the balance sheet issue.

“Therefore, to what extent Government should ’tilt the table’ and if so how was one of the talking-points. There is a natural reluctance in many quarters of too much government intervention in markets of any sort. ‘Best is best’ is a common watchword in the world of public procurement. How to behave in markets is also a big question for spin-out organisations. Are they best, in the longer term, to partner up or even fold-in larger healthcare groups in order to gain efficiencies and achieve long-term stability? Or is this too much of a compromise that would water down their raison d’etre as socially focused organisations?

“This one of the unresolved questions facing spin-outs in this sector, particularly as they come up head to head with organisations whose chief competencies lie not in actual service delivery but the winning and fulfilment of contracts, often with third party deliverers.”

The blog makes some good points and appears to sum up the key issues facing mutuals.  To deliver any sense of a future for spin-out mutuals, the question is not whether to tilt the table, but how and when.

Praise for departing Deputy government CIO

By Tony Collins

Bill McCluggage, the departing Deputy government CIO, has been praised by friends and colleagues for his strength of purpose as a change advocate, and for steering through the government ICT Strategy.

He is also admired by friends for “telling it like it is” despite the Cabinet Office’s restrictive communications policy.

Said one friend: “To get the ICT strategy out and into delivery underlines Bill’s credentials as a deliverer not just a strategist; and he regularly held his ground with those who sought to maintain the status quo.”

McCluggage announced this week he is leaving government to join storage supplier EMC. He said on Twitter that it’s “sad to leave excellent team that have delivered real change but time to move on and address new challenge”.  He said he counted himself “lucky to have been part of the vanguard of new GovtIT”.

Mike Bracken, Executive Director of Digital, Efficiency and Reform Group, Cabinet Office, said that Whitehall will be poorer in McCluggage’s absence.

McCluggage joined the Cabinet Office as Deputy Government CIO in September 2009. He has been Director of ICT Strategy & Policy and Senior Information Risk Owner with overall responsibility for the formulation, development and communication of cross-Government ICT strategies and policies.

He was IT Director at Harland & Wolff Heavy Industries in Belfast and was an engineering officer in the RAF. He is a chartered engineer and member of the Institution of Engineering and Technology.

As Deputy government CIO McCluggage has been a firm advocate of agile techniques, cloud computing, open source, cutting out waste and duplication, and bringing many more SMEs into GovIT.

Deputy Government CIO to join EMC.

Deputy government quits.

Cabinet Office loses another top ICT man.

Where is the Government CIO?

By Tony Collins

Joe Harley, Government CIO

Joe Harley, the government CIO, is much respected inside and outside of government.

Amiable, straight-talking and influential, he could be the Government’s civil service ambassador for change.  Like his predecessor John Suffolk he could use conferences and public events to talk inspirationally about the dystopian costs of government IT and what to do about them. He could jolt the complacent into an awareness of their self-deceptions.

Why hasn’t he? If the Government CIO has much to say  is not for the public ear.  While there has been talk in recent weeks of how five corporations control GovIT, and how it can cost up to £50,000 to change a line of code, Harley has been silent.

Where does the Government CIO stand on the need for major reform of the machinery of government, on the sensible risks that could save billions?

Is the top man in Government IT inspiring his colleagues and officials in other departments to do things differently?

It’s true that Joe Harley has enough to do – perhaps too much – in his “other” day job as CIO and Director General of Corporate IT,  Department for Work and Pensions (DWP).

He is a leader of the programme that is helping to deliver Universal Credit. He chairs the public sector-wide CIO Council; and his trying to do more with a smaller budget will require all the skill and the experience he acquired as global CIO for ICI Paints and before that as BP’s IT Vice President for global applications, hosting and consultancy.

These responsibilities give Harley a chance to point to a new way, to confront unequivocally the costs of GovIT, to lead by example: by replacing gradually the long-term contracts and monolithlic suppliers of old; by listening to SMEs and employing them directly, and in more than a token capacity.

What has happened is the opposite. HP, Accenture, IBM and CapGemini are safe in his hands.

The DWP has recently awarded those suppliers new and conventionally-large, long-term contracts. Headlines in the past two months hint at how the DWP will, for years to come, dance to the tune of its large IT suppliers:

“DWP signs fifth large deal with HP”

“DWP awards Accenture seven year application services deal”

“DWP awards IT deals to IBM and Capgemini”

These deals could be seen as a protest against all that Francis Maude, Minister for the Cabinet Office, stands for.

In March Maude spoke of a need for big contracts to be broken down into “smaller, more flexible projects” which would “open up the market to SMEs and new providers”. Maude wants to end the oligopoly of big GovIT suppliers – but does he have an influence at the DWP?

Nobody is suggesting that Harley shows a hard fist at the negotiating table. But he should assert himself sufficiently in public to make us believe that his appointment as Government CIO was more than the filling of a vacuum.

He doesn’t need to lead by radiating charisma; but can you inspire from the shadows?  Billions is spent unnecessarily each year on not changing the government administration. So it’s time Harley advocated change.  He could be a standing reproach to the myth that senior civil servants do all in their power to obstruct change.

Deposing the muscular monoliths in the supplier community will require a consuming interest in innovation, courage (risk-taking) and a passion to cut costs. Harley has many strengths and qualities. Surely these are among them. But if they’re not manifest soon, some in government will wonder if the Government CIO has gone missing.

Links:

DWP awards 7-year deal worth up to £350m to Accenture

DWP signs fifth large deal with HP

DWP awards deals to IBM and Capgemini

DWP signs big contracts with IBM and Capgemini

Without commissioning reforms, no mutuals within five years, only outsourcing companies

By David Bicknell

The government has been put on notice to find ways of making life easier for mutuals – or suffer the consequences.

As Public Finance reports, Patrick Burns, a member of the Cabinet Office Mutuals Taskforce, has warned that without changes in the way outsourcing contracts are awarded, spun-off mutuals could fail within five years.

Burns said: ‘If you don’t do something with the commissioning environment, then in five or ten years time you will not be dealing with mutuals, you will be dealing with [outsourcing companies] Serco, Capita and Virgin. Not that they are bad companies, but it’s not the point.’