MPS Olympic Programme

Report: 15
Date: 26 October 2006
By: Assistant Commissioner Central Operations on behalf of the Commissioner

Summary

This report outlines the activity the Metropolitan Police Service has undertaken in its initial preparations for the Olympic and Paralympic Games to be held in London in 2012.

A. Recommendation

That Members note the contents of the report and support the MPS in its approach to the preparation and planning of the London 2012 Olympic and Paralympic Games.

B. Supporting information

1. On 6 July 2005 the International Olympic Committee (IOC) awarded the 2012 Olympic and Paralympic Games to London.

2. The Games will host 202 countries and include 26 sports events being played at venues mainly within, but also outside of the London area.

3. The Olympic and Paralympic Games will run over a 60 day period. For policing and security purposes the timetable is as follows:

• Olympic Park lockdown approx  - 14 June 2012
• Athletes’ arrival  - 14 July 2012
• Olympics Opening Ceremony  - 27 July 2012
• Olympics Closing Ceremony - 12 August 2012
• Paralympics Opening Ceremony - 29 August 2012
• Paralympics Closing Ceremony - 9 September 2012

4. Based on previous Olympic Games it is estimated that London 2012 can expect to witness:

• 10,500 athletes from 202 participating nations.
• 24,000 media representatives being present.
• 200,000 persons accredited for the event, including police, volunteers, athletes and staff.
• 9,000,000 ticket sales.
• 6,000 athletic coaches and officials attending.

5. The Games coincide with Her Majesty the Queen’s Diamond Jubilee celebrations and also with the Notting Hill Carnival (25-27 August 2012), presenting a significant policing challenge.

6. The Olympic Delivery Authority (ODA) is responsible for constructing the Olympic Park in Stratford and all other facilities. This will mainly impact on five London boroughs (Newham, Tower Hamlets, Hackney, Waltham Forest and Greenwich). The events will also impact significantly on the Royal Parks OCU. The London Organising Committee for the Olympic Games (LOCOG) will be responsible for staging the Games.

7. The MPS was actively engaged in preparing London’s Olympic bid in the run up to the International Olympic Committee (IOC) announcement in July 2005. This engagement continues with police officers currently ‘embedded’ within and working directly with both LOCOG and the ODA. These working arrangements are proving to be invaluable in co-ordinating activity and maintaining effective communication between the MPS and these key Olympic partners.

Governance and vision

8. Appendix 1 shows an organogram of the governance structure for the security of the Olympic Games. Appendix 2 provides a narrative of the role and responsibilities of each the bodies shown within the governance arrangements.

9. The Commissioner has assumed, with the co-operation of affected Chief Constables, overall responsibility for the safety, security and policing of the Games. The Commissioner will be personally accountable to the Home Secretary in this regard.

10. On 28 November 2005 the Olympics OCU (CO12) within the MPS Central Operations Command, was created.

11. The MPS Programme Vision for the Olympics is:

• To develop a safe and secure environment for all those who are involved with or are impacted by the 2012 Olympic Games
• To recognise the issues and impact on the population of London and to work in partnership to address / mitigate them
• To develop a world-class security package

12. The CO12 Mission statement in preparing for the Olympic Games and realising the vision is:

“The CO12 Olympic OCU will ensure the Metropolitan Police Service delivers a safe and peaceful celebration of the 2012 London Olympic and Paralympic Games maximising its legacy for the benefit of the Capital City by:

• Utilising the knowledge, skills and experience of all MPS police officers and police staff and our colleagues nationally and internationally, and
• Working with all partners, stakeholders and communities”

13. The MPS has engaged with Government, the Mayor’s Office, the ODA and LOCOG in order to ensure that MPS governance structures strategically ‘fit’ the overall 2012 Olympics governance structure.

14. The Metropolitan Police Authority (MPA) has representation on Olympic related issues through the Olympics Safety, Security and Resilience Strategic Committee (OSSRSC) involving all key Olympic partners and stakeholders, and also through regular meetings with the Olympic Security Co-ordinator.

15. The scope of the MPS programme has been developed and was approved by the MPS Management Board on 8 March 2006. This was determined as a result of a number of exercises conducted by CO12 involving staff from across all MPS Business Groups. Due regard has also been taken of previous Olympic Games and other event planning conducted in other countries across the world (e.g. Sydney, Melbourne; Athens; Turin). The scope has been shared with the key Olympic partners to ensure a ‘joined-up’ approach to the preparations. The Programme scoping chart is shown as Appendix 3.

16. The Home Secretary confirmed on 3 July 2006 that Assistant Commissioner Tarique Ghaffur has been appointed the Security Co-ordinator of the London Olympics. The Security Co-ordinator is responsible for ensuring that the security concept and operations for the Games knit together in an integrated approach, which incorporates the roles and responsibilities of the emergency services and other relevant agencies. The Security Co-ordinator is accountable to the Home Secretary (and, indirectly, the Culture Secretary who has the overall government lead for the Olympic and Paralympic Games).

17. In August 2006 the MPS Olympic programme also became a strand within the Met Modernisation Programme (MMP) and is subject to scrutiny through the MMP Delivery Board (MMPDB) and the MPA Oversight Committee.

Olympic Security Directorate

18. The MPS is now organising and leading on the creation of the Olympic Security Directorate (OSD), which will be fully in existence and accommodated within an MPS building in Stratford in January 2007. The multi-disciplinary, multi-agency OSD works directly to the Olympic Security Co-ordinator.

19. The OSD has responsibility for coordinating the agencies involved in providing safety, security and resilience to the London 2012 Olympic and Paralympic Games. Partner agencies are independent but part of an inter-dependent Olympic security family, working together in a no-blame environment that respects the roles and accountabilities of all its separate constituents. Partner agencies retain their own distinctive roles and lines of accountability, but operate in the closest possible collaboration to ensure maximum coherence, efficiency and effectiveness. The OSD is responsible for strategic and operational planning of security for the Games, and the implementation of this during the event period in order to achieve the Olympic Strategic Security Objectives. The terms of reference for the OSD are shown at Appendix 4.

Planning

20. The Security Co-ordinator has set a clear strategic direction for the security planning of the Olympic and Paralympic Games. In delivering security to a celebration and showcase for London and the MPS, due consideration has to be given to the fact that although security is an important and vital element for 2012, it is just one of a number of elements required to deliver a successful Olympics Games. Successful relationships with key partners and stakeholders, including the communities of London is key to the success of the planning for the Games.

22. Security planning for the Olympic and Paralympic Games will be based upon the following requirements:

• 3d digital modelling and simulation.
• Target hardening of the Olympic sites.
• Outcome-focussed planning.
• Distinct scenario and exercise testing.
• Contingencies.
• Strong partnership working.
• Supported by ongoing pro-active crime operations.
• Supported by sound programme structures.
• Supported by clear audit trails.
• A covert security plan.

Legacy

23. The Olympics is not just about the 29 days that the Olympic and Paralympic Games are operating and the 31 days of Olympic Park lockdown. Legacy is a key theme of the programme and a philosophy of the MPS, LOCOG and the Mayor that spans across all the planning activity. It stands above all of the policing scope and is one of the key themes that must be considered within all the projects. This is especially so when considering design and infrastructure. The MPS has deployed a Crime Prevention Design Advisor (CPDA) to work from within the ODA to ensure that all planned builds receive expert security design advice. The MPS must also consider and plan for:

• Olympic Park planning and construction period and associated builds in Stratford, including the new Stratford City shopping centre.
• Post construction transfer of the facilities from the ODA to LOCOG.
• Post-Games policing requirements of the Lower Lea region. Ensuring that future policing needs of existing and new communities within the Stratford area, both during the building phase and post-games, are catered for and linked in with the Safer Neighbourhoods programme.

Abbreviations

IOC

International Olympic Committee

ODA

Olympics Delivery Authority

LOCOG

London Organising Committee for the Olympic Games

CO

Central Operations

OCU

Operational Command Unit

MMP

Met Modernisation Programme

OSSRSC

Olympic Safety, Security and Resilience Committee

OSC

Olympics Security Committee

DOP (IT)(PSR)

Defence and Overseas Policy Sub-Committee on Protective Security and Resilience

ACPO

Association of Chief Police Officers

GLA

Greater London Authority

DCMS

Department of Culture, Media and Sports

HMIC

Her Majesty’s Inspector of Constabularies

MMPDP

Met Modernisation Programme Delivery Board

C. Race and equality impact

1. Diversity and Citizen Focus have been identified as a key theme of the MPS Olympic Programme. Diversity is a strand within the programme and sits alongside all the other strands to oversee and monitor diversity and equality issues within each. Recognising the importance of diversity within the programme also sends the positive message to communities, partners and colleagues that it matters. It will also ensure compliance within the programme around statutory and legislative requirements. The programme strand lead for this area of work is Deputy Assistant Commissioner Rose Fitzpatrick, the Director of Diversity and Citizen Focus.

2. The MPS programme will work closely with LOCOG, the GLA and others partners on areas that will actively enhance the diversity input into the Games. These areas include:

• The Olympic Volunteering programme.
• Youth involvement.
• Community engagement and consultation during the planning phase.

D. Financial implications

1. As well as determining the scope for the Olympics programme, the MPS has also been engaged in estimating the costs in both preparing and delivering security to the Games. The MPS has worked with partner delivery agencies involved in security and other Police Forces implicated in the Olympics to produce estimated costs and continues to actively work with the Home Office to refine these to the best possible estimate at this time. Further work will continue to refine the costs, however it is clearly unrealistic six years from the Games to expect that the estimates will not change. One of the biggest unknowns is the security threat level in 2012. This cannot be wholly forecast, and will largely be influenced by events between now and then.

2. In May 2006 Her Majesty’s Inspector of Constabularies (HMIC) was asked to independently scrutinise and validate the expected costs of the MPS and the partner agencies.

3. Olympic funding to the MPS was originally expected to begin in 2009. However, costs are already being incurred, predominantly at present by the Olympics OCU delivery and intelligence team. The cost to the MPS of this team is estimated for 2006/7 at approximately £1.15million and is currently being met from within the existing Central Operations budget. All Olympic related costs are being captured through a dedicated cost code.

5. However, it will not be long before there is a need for expenditure on more tangible forms of policing and security, particularly in the area of the Olympic Park in Stratford. As a result the MPS is engaged in discussions with the Home Office, the Department of Culture, Media and Sport (DCMS) and the Mayor with regard to the need to accelerate the receipt of additional funding to support the programme and delivery of policing to the Games. A business case has been submitted to the Home Office for reimbursement of costs incurred during 2006/7 and to cover £4.1m expected costs in 2007/8. Submission of the business case has the support of HMIC. Confirmation of funding arrangements has been requested by 1 November 2006.

5. Within the MPS Olympic programme there is a separate work-stream devoted to Finance. The MPS will wherever possible exploit both sponsorship and income generation opportunities in support of the programme.

Conclusion

6. The MPS is delighted to be involved in leading and co-ordinating the preparation and planning of security and policing for the London 2012 Olympic and Paralympic Games. This exciting and unique event will provide the MPS with the opportunity to demonstrate its excellence, experience and professional approach to policing large-scale public events alongside its partners and the communities of London to a worldwide audience. The MPS is determined to play it’s part in delivering the London 2012 vision “to stage inspirational Games that capture the imagination of young people around the world and leave a lasting legacy."

7. It is inevitable that every department of the MPS will ultimately be involved in the Olympics in a way that will be in addition to their normal day-to-day work. The MPS Olympic programme will ensure that every part of the organisation is considered, engaged and involved in planning for the London 2012 Olympic and Paralympic Games, an event that is destined to be both spectacular and on a scale never witnessed before within London.

E. Background papers

None

F. Contact details

Report author: Nick Baker, MPA

For more information contact:

MPA general: 020 7202 0202
Media enquiries: 020 7202 0217/18

Appendix 2

Governance

1. The MPS Olympics programme has an organisational governance structure that includes:

• Olympic Security Co-ordinator and MPS Strategic Lead
  Assistant Commissioner Tarique Ghaffur - CO
• MPS Programme Director
  Commander Julian Bennett
• MPS Olympics Co-ordinating Committee
  Chair – Commander Julian Bennett
• Strand Lead Level
  Senior MPS staff

2. Other governmental and inter-agency elements of the governance structure are organised as follows:

Olympic Security Steering Group (OSSG)

3. Ultimate responsibility for security at the Games rests with the Home Office. This OSSG is chaired by the Moira Wallace, the Home Office Director General for Crime, Policing and Counter Terrorism, and consists of representatives from the MPS, Security Services, Department of Transport, Ministry of Defence, DCMS, Home Office, Greater London Authority, ODA and LOCOG. It discusses Olympic security issues and is the official level feed-in to DOP(IT)(PSR).

Defence and Overseas Policy Sub-Committee on Protective Security and Resilience (DOP(IT)(PSR))

4. Chaired by the Home Secretary, the remit of this Cabinet Committee is to keep under review the 'Protect' and 'Prepare' elements of the Government's long term counter-terrorism strategy (CONTEST), including:

• policy on protective and other security measures to counter the threat of terrorism in the United Kingdom and to British interests overseas; and
• policy for managing the consequences of major terrorist or other disruptive incidents in the United Kingdom.

It reports to the Sub-Committee on International Terrorism as appropriate. DOP (IT)(PSR) will report on Security and Resilience to the Olympics Board through the Olympics Minister.

Ministerial Committee on Olympics (MISC25)

5. Chaired by the Foreign Secretary, this ministerial-level committee co-ordinates and oversees all Government issues relating to the London 2012 Olympics and Paralympic Games.

Olympics Safety, Security & Resilience Strategic Committee (OSSRSC) (Interim Programme Board)

6. The OSSRSC is a multi-agency committee chaired by Assistant Commissioner Ghaffur. It co-ordinates safety, security and resilience planning before and during the Games, and into legacy. It consists of representatives from London agencies: MPS, LFB, LAS NHS, London District, ALG, GLA, MPA, Security Service, Utilities, BTP, CoL and LRT.

The terms of reference of the OSSRSC are:

‘To co-ordinate the safety, security and resilience aspects of the London 2012 Games during the preparation and events phase. It will also consider the post-Games legacy with respect to safety, security and resilience by:

• Committing and co-ordinating resources.
• Reviewing progress, resolving issues and removing blockages
• Identifying, owning and mitigating shared risks
• Developing and owning a shared communication strategy
• Managing stakeholder relationships as appropriate
• Being accountable for delivery of agreed strands of work
• Liaising with the Olympic Security Committee.

ACPO Olympics Co-ordination Committee

7. This Committee chaired by AC Ghaffur co-ordinates national and regional policing activity (law enforcement and emergency response) for events that will be held outside London during the Games.

Olympics Security Directorate (OSD)

8. The OSD has responsibility for coordinating the agencies involved in providing safety, security and resilience to the London 2012 Olympic and Paralympic Games. Partner agencies are independent but part of an inter-dependent Olympic security family, working together in a no-blame environment that respects the roles and accountabilities of all its separate constituents. Partner agencies retain their own distinctive roles and lines of accountability, but operate in the closest possible collaboration to ensure maximum coherence, efficiency and effectiveness. The OSD is responsible for strategic and operational planning of security for the Games, and the implementation of this during the event period in order to achieve the Olympic Strategic Security Objectives. The terms of reference for the OSD are shown at Appendix 4.

ODA and LOCOG Heads of Security

9. The ODA and LOCOG will appoint Heads of Security to deal with their own internal security issues and to manage the private security elements of the Olympic construction site and the running of the Games.

Appendix 4

Olympic Security Directorate

Terms of reference

1. The Olympic Security Directorate (OSD) is a multi-agency, multi-disciplinary body that sits within the Metropolitan Police Service (MPS) and is headed by the Olympic Security Co-ordinator. The Security Co-ordinator is appointed by the Home Secretary, to whom he is accountable, to act on behalf of the Commissioner of the MPS. The Security Co-ordinator is also indirectly accountable to the Culture Secretary who has the overall government lead for the Olympic and Paralympic Games.

2. The Security Co-ordinator will be responsible for ensuring that the security concept and operations for the Games knits together an integrated approach that incorporates the roles and responsibilities of the emergency services and other relevant agencies, including the Olympic Delivery Authority (ODA) and the London Organising Committee of the Olympic Games (LOCOG). The Security Co-ordinator will receive strategic direction on security planning from the Home Office led multi-agency Olympic Security Steering Group (OSSG) which will report direct to the Home Secretary and the Ministerial Committee.

3. The OSD will take responsibility for coordinating the agencies involved in providing safety, security and resilience to the London 2012 Olympic and Paralympic Games. Partner agencies will remain independent but be part of an inter-dependent Olympic security family, working together in a no-blame environment, that respects the roles and accountabilities of all its separate constituents. Partner agencies will retain their own distinctive roles and lines of accountability, but will operate in the closest possible collaboration to ensure maximum coherence, efficiency and effectiveness.

4. The OSD will co-ordinate strategic and operational planning of security for the Games, and ensure that implementation is effective during the event period in order to achieve the Olympic Strategic Security Objectives (see Annex A).

5. To achieve the objectives the Directorate will:

1. Work in partnership with the ODA and the LOCOG ensuring the work to secure the Olympic Park site during construction and during the Olympic events themselves is in line with agreed standards and operating procedures.
2. Establish the security strategy for the Games in order to deliver the strategic security objectives.
3. Determine the security roles and responsibilities amongst all partner agencies involved in planning for the Games at the earliest opportunity.
4. Work in accordance with the principles of strategic security planning (see Annex B).
5. Be responsible for co-ordinating, owning and delivering a fully integrated security package, thus ensuring a single national security plan.
6. Prepare the Olympic Security Plan, which will specify tactical and operational responsibilities of all public and private agencies involved in security preparations. In the preparatory phases the overall project plan will show how the security strategy will be met including projected costs, timescales, benefits and risk involved in an integrated comprehensive operational plan. The security plan will cover both national and local security measures for dealing with incidents in London and the rest of the UK in relation to the Olympic and Paralympic Games.
7. Ensure that all safety and security arrangements are comprehensive and coordinated in an efficient and effective manner. Objectives, principles and operational planning will be realised in the most cost effective way possible.
8. Update on a regular basis and submit to the OSSG projected security related costs ensuring that all agencies are satisfied that costs have been identified. The Home Office proposes that a Steering Group finance sub-group be established reporting to the OSSG. The remit of this sub-group will be to value and scrutinise Olympic security budgetary projections.
9. Take responsibility for co-ordinating strategic, tactical and operational inputs relating to planning and command from all organisations involved in protecting the Games both before and during the event.
10. Define and sequence the security related activities leading up to the Games through the implementation of a comprehensive programme management framework and the instigation of operational plans.
11. Provide ownership of risk and supporting responsibilities, allocating responsibility in relation to identified risks from the outset.
12. Escalate critical risks and issues to the OSSG through the Security Co-ordinator.
13. Agree an accountability structure with the OSSG using clear and well-rehearsed communication channels in order to inform Parliamentary business.
14. Utilise available technology, such as modelling, to provide an outcome focused planning process.
15. Adopt an auditable decision-making process.

Annex A

OSD Security Objectives

1. Ensure an intellectually rigorous risk management process is used to assess Games security needs.
2. Provide a cohesive, inclusive and co-ordinated framework for Games security planning and operations that supports the prime objective for London 2012 and is effective throughout the preparation, event and legacy phases.
3. Deliver a robust, effective security package through the most cost effective and appropriate means, engaging all relevant agencies, including private sector partners.
4. Provide effective and discreet security capabilities outside of Olympic venues. To this end:
   • It is acknowledged that LOCOG, under the umbrella of the OSD is responsible for in-venue security,
   • The MPS and others within the OSD will ensure that there is an effective and immediate in-venue response capability.
   • The OSD will also advise LOCOG on in-venue security matters. Where issues arise they will be escalated through the OSSG and/or relevant licensing authorities to resolution.
   • Similarly, such involvement of the OSD extends to preparatory competitions, designated Olympic zones (including training venues) and non-competition events and functions as appropriate.
5. Manage contingency arrangements for the Games and associated Olympic related events, focussing on resilience and recovery.
6. Minimise threats to Games security by implementing preventative strategies.
7. Provide a legacy of knowledge, skills, advanced technology solutions and an enhanced security infrastructure for London.
8. Make best use of national and international opportunities for collaboration and co-operation.

Annex B

Principles of Strategic Security Planning

1. Direction - Clarity of purpose should be delivered through a strategic plan, supported by objectives that are agreed and understood by all involved, to provide both focus and effective prioritisation. Ownership of risk and supporting responsibilities, for example, should be clearly established at the outset.

2. Flexibility - Planning processes and outputs must be capable of responding to changes in the threat, constituent partners, and the wider environment over time. This will require consultation, negotiation and a good understanding of inter-dependencies.

3. Communication - Reliable information must be passed correctly and without delay between those who need to know and, where appropriate, the public. This may require innovative information and communication technology (ICT) solutions to inter-agency communication during planning. Security restrictions on some forms of communication need to be understood and adhered to by all partners.

4. Diversity - Security will be delivered in a way that reassures all communities. The OSD will embrace diversity in its widest sense and seek to engage young people wherever possible.

5. Co-operation - A planning partnership based on mutual trust and understanding is needed to facilitate information sharing and deliver effective solutions to issues as they arise. Where potential difficulties are anticipated, effective mechanisms for speedy resolution need to be agreed.

6. Transparency and Accountability – The OSD will be open and transparent with all stakeholders and the wider community during every stage of planning and operation (except where to be so would compromise operational safety or security). Proper independent scrutiny in order to ensure the most effective outputs are being achieved will be welcomed.

7. Continuity - Planning should be grounded in the existing functions of organisations and familiar ways of working, albeit delivered at a greater tempo, on a larger scale and in more testing circumstances. Change within individual partner organisations is inevitable over the lifetime of this project but systems need to be developed to minimise impact on the planning process.

8. Subsidiary - Planning (and in time operational) decision-making should be made at the first appropriate level, with co-ordination at the highest necessary level.

9. Preparedness - All individuals and organisations should be properly prepared to carry out their responsibilities and have clarity as to their roles and responsibilities.

10. Anticipation - Risk identification, analysis and management are needed for all potential scenarios (both direct and indirect) to enable a pro-active approach to planning.

11. Consistency – plans and procedures that are developed (venue and personal security for example) need to adhere to nationally agreed standards, providing a consistent security regime across geography and function.

12. Legacy - Security planning processes should leave a lasting legacy of effective partnerships, professional systems, and efficient delivery among constituent organisations.

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