Proposal to refurbish/refresh Brixton, Kingston, Walworth and Colindale police stations

Report: 11
Date: 15 December 2011
By: Director of Resources on behalf of the Commissioner

Linked to exempt item 22

Summary

In line with the MPA/MPS Estates Strategy 2010-2014 and in support of the MPS Custody Improvement Programme and Corporate Real Estate Programme, this paper proposes the refurbishment of Brixton, Kingston, Walworth and Colindale Police Stations. Refurbishment/refresh works to the four police buildings which are core to the estate, will enhance the operational capacity and enhance existing custody facilities of each building. This will provide a total of 115 cells operating on a 24/7 basis at these four sites with necessary interviewing, charging facilities, capability to operate virtual courts as well as fully adhere to the Dedicated Detention Officer inputter method of working.

A. Recommendations

That Members

1. Approve the proposed works to Brixton, Colindale, Kingston and Walworth Police Stations in line with the MPA/MPS Estates Strategy 2010-2014 and in support of the TP Development Custody Improvement and Corporate Real Estate programmes;
2. Approve a capital budget allocation of up to £45.7m (including the £3.6m previously approved for the design element/Pre-Contract Agreement (PCA) for the works from the Custody and Corporate Real Estate budget as detailed within the 2011/18 Capital Programme and note that revenue implications will be managed within existing budgets;
3. Approve, the award of four separate works contracts to Wates Construction Limited as detailed in Exempt Appendix 1, and delegate authority to the Chief Executive of the MPA and the Director of Resources of the MPS to let the necessary works contracts. Note that the award of contracts in regard to Brixton, Walworth and Kingston is conditional on receipt of town planning consent.

B. Supporting information

Introduction

1. The MPA/MPS Estates Strategy and Corporate Real Estate Major Change Programme introduced in 2010, seeks investment in buildings to support operational needs; maximising the use of these buildings to enable the release those properties that are surplus to operational requirements. Aside from compliance with health and safety and compliancy issues, investment is focussed in those buildings that are core to operational policing needs and where opportunities exist to enhance the use of current facilities and maximise economies of scale. In this way both the MPA and MPS can ensure funding is allocated to core needs, in accordance with value for money principles.

2. The CRE programme runs in parallel to the work undertaken and underway in support of other MPS business re-structuring programmes.

3. As part of the wider TP Development Programme, the MPS Custody Improvement Project has developed the future operational model for custody to manage demand, estate capacity, resource, processes, shifts and structures and addresses the additional responsibilities under the Corporate Manslaughter and Homicide Act. Operational improvements have been identified through a combination of economies of scale; the effective deployment of dedicated custody staff and the rationalisation of 24/7 custody suites from 51 24/7 custody suites plus 17 overflow sites at present to 40 centralised 24/7 suites plus 7 overflow sites, with a view to reducing to 35 24/7 custody suites by end of financial year 2014/15. This will equate to an overall reduction of 100 cells. The provision of additional charge station facilities, interview rooms, virtual court facilities and improvements in processes will enable a significant reduction in booking in and processing times thus facilitating greater throughput and utilisation. Locations have been identified with consideration given to drive times, prisoner throughput and number of interview and consultation rooms.

4. Improved processes, coupled with investment in core estate facilities will improve detainees’ safety, quality of service, professional service provided and cell utilisation. The project places emphasis on custody becoming an MPS facility rather than a TP Borough based facility, with Central Command & Control (CCC) taking the lead in cell allocation to address issues regarding capacity and increasing the use of the core estate and up-scaling key strategic suites where the demand is justified, will enable the MPS to reduce operational cell numbers but increase availability. The MPS will retain extra custody capability, on top of general custody requirements, to manage peaks in demand caused by large scale public disorder events. The MPS will manage this by keeping a number of smaller suites in operational readiness, without staffing provision, but able of being opened at short notice.

5. A number of facilities have already been provided in this regard, including those at Leyton (Waltham Forest), Barking and Dagenham and Heathrow. In addition to those sites under construction (Wandsworth, Croydon) and Wood Green, Haringey where town planning consent was granted on 14 November, the MPA Finance and Resources Committee considered proposals to extend custody and associated facilities and upgrade office accommodation at Colindale, Walworth, Kingston and Brixton in June 2011, and authorised expenditure of £3.6m to enable detailed design through a pre-construction agreement to be undertaken. The outcome of the detailed design phase is presented herein.

6. The earlier model of Borough based custody centres has been reviewed identifying efficiencies in the delivery of custody service with the number and location of custody suites and staffing levels determined centrally. Post-Occupation Evaluation surveys of both building function and operational performance have been undertaken for Leyton (Waltham Forest) and are in progress for Barking & Dagenham and Heathrow, Polar Park suites. These have informed design requirements for the four schemes under consideration. The schemes at Brixton, Colindale, Kingston and Walworth will comply with these current Standards and Design Guides and it is anticipated that improvements in design will reduce costs by 3% over those of the Leyton Custody Centre, providing overall cost savings to the current schemes.

7. Having developed a base-line design guide for custody facilities combining both Home Office and MPS standards, both Property Services and DoI are able to accurately plan and project costs for future suites on the basis of known and recent approved operational requirements such as Virtual Courts, Herald etc. A rigorous Change Control process ensures that all proposed changes are assessed by the Project Board for approval.

8. In support of these work strands, the opportunities to enhance utilisation in the four buildings listed in this paper and extend custody facilities within these buildings that are core to the estate, have been identified. Proposals in regard to the four sites, following detailed design, are outlined below:

Brixton Police Station, Lambeth

9. The building currently provides cellular offices for Lambeth SMT, and office based functions including a catering facility, locker and storage facilities. The existing custody suite includes 15 cells, 2 charge stations, 3 interview rooms and a virtual court. The Borough also have 24/7 custody facilities at Streatham and Kennington police stations, giving an overall Borough cell capacity of 31 cells. The lack of detainee processing facilities at all three of these sites causes a log jam in the cells, unnecessarily slowing up the investigative process.

10. The current provision of 31 cells over 3 sites in Lambeth is inadequate for the Borough’s Custody demand. Proposed works will include the refurbishment of all floors to open plan/flexible space with the potential to increase the number of workstations by approximately 25% improving locker/changing areas. The custody extension and associated works will increase cell capacity from 15 to 40 cells, with 6 charge stations and 7 interview rooms, and consultation and associated processing rooms. The plans for neighbouring Southwark Borough will see 24/7 cell capacity reduce from 38 cells to 30. Intelligent planning of the investigative function and the move to the provision of centralised custody facilities will ensure any additional capacity needs from Southwark can be dealt with at Brixton or Lewisham. The proposed facilities at Brixton will enable the MPS to cease operating 24/7 custody from Kennington and Streatham Police Stations.

11 Details in regard to the timing/logistics of carrying out works have been developed through the design stage. Front Office functions will be maintained throughout build works to reduce security & community concerns. Other functions will be temporarily located to other buildings within the MPS Estate. Custody provision will be met from a Westminster BOCU facility.

12. Initial discussions with local town planners suggest the Town Planning application will be considered positively with submission anticipated November 2011 and Committee decision expected February 2012 Public consultation undertaken in late October was positive.

Colindale Police Station

13. The building currently provides open and cellular office space for various policing operations supporting both borough and pan-London teams as well as Local Authority units, canteen, locker and storage facilities. The existing Custody Suite has 21 cells, 3 charge stations, 2 interview rooms.

14. The proposed works will include the refresh of all floors increasing the number of workstations by approximately 15% in addition to improving locker/changing areas. The Directorate of Professional Standard’s teams currently located in the building will be relocated to the Hendon estate. The main aim of the custody works at Colindale are to improve the processing capabilities of the custody suite. Currently the 2 interview rooms and 2 consultation rooms are inadequate for detainee throughput. The extra space required on the ground floor for these improvements has resulted in the ability to provide for additional cells. Custody extension and refurbishment will increase the cell capacity to 25 with 4 charge stations and 5 interview rooms and 3 consultation rooms.

15. Details in regard to the timing/logistics of carrying out works have been through the design stage and agreed in principle by the BOCU Commander. DPS teams will be relocated and works will be arranged with remaining occupiers in situ. It has been confirmed that town planning consent will not be required since all the works are contained within the existing building.

Kingston Police Station

16. The building currently provides cellular and general offices for Kingston SMT, administrative functions etc and canteen, locker and storage facilities. The existing custody suite has 10 cells, 2 charge stations, 2 interview rooms and a virtual court.

17. The proposed works will include the refresh of all floors increasing workstations by approximately 25% (reduced from initial 40% due to logistics and reduced opportunities due to structural constraints of existing building); improving locker/changing areas. The custody extension and refurbishment will increase the cell capacity to 20 with 4 charge stations making the suite fully adherent to the Dedicated Detention Officer model and 4 interview rooms. With only 10 cells, Kingston regularly have to transport their detainees to Sutton police station. An increase in the processing capabilities and thus the speed of detainee throughput, and the number of cells, will ensure a more proportionate facility for the Area.

18. Details in regard to the timing/logistics of carrying out works will be developed through the design stage. Opportunities have been identified to decant to Local Authority facilities, but excluded due to limitations regarding availability. Proposals to utilise Eagle House to provide alternative accommodation on a rotation basis have been agreed by BOCU Commander. Vacating the building in part/whole will enable a quicker build time.

19. It is expected that obtaining town planning consent will not be contentious. Initial discussions with local town planners suggest any Town Planning application will be considered positively. Town Planning decisions are expected February 2012.

Walworth Police Station

20. The building currently provides cellular offices for some members of the SMT, administrative functions, canteen, locker and storage facilities. The existing custody suite has 20 cells, 2 charge stations, 4 interview rooms.

21. The proposed works will include the refresh of all floors increasing workstations by approximately 20% (reduced from initial 40% due to logistics and reduced opportunities due to structural constraints of existing building) and improve locker/changing areas which will need to be relocated from the ground floor to accommodate custody facilities. The custody extension and refurbishment will increase the cell capacity to 30 with 4 charge stations and 4 interview rooms(6 interview rooms if there is sufficient space). These custody improvements, together with the planned closure of the custody suite at Peckham police station will decrease the 24/7 cells in Southwark borough by 8. More efficient detainee processing ability with a higher ratio of charge stations and interview rooms together with the use of custody facilities on a corporate basis will ensure suitable capacity in this area.

22. Changes to the estate as a result of the proposals in this report are aligned to business group change programme implementation processes.

23. Certain teams will need to be temporarily relocated and arrangements will be agreed with relevant Business Groups. In addition, it is unclear the extent to which other buildings within the existing portfolio can be released. Certain opportunities have been identified which will be explored further with operational colleagues. The Corporate Real Estate Programme will enable the MPA to reduce the property portfolio by 25% in 2014/15. Investment in these four locations is directly aligned to this Programme.

Procurement

24. Following a tender process in November 2007, the MPA Finance Committee approved the appointment of three main contractors from the Improvement and Efficiency South East Major Contractors Framework (IESE), to carry out a number of Patrol Base, Custody Centre and combined Custody and Patrol Base projects, using a two stage tender, design and build process.

25. The procurement process under the IESE framework makes provision for the award of a pre-construction agreement (PCA) in advance of any main construction contract. The PCA mechanism delivers detailed design and cost certainty prior to the award of the construction contract. The first IESE framework expired 19 July 2011. Placing a PCA under the first IESE framework in advance of this date was permitted. The IESE framework provided for call-off of contracts through mini-competition using two-stage tendering, being a single procurement process in two stages commenced during the framework period. The procurement strategy for these projects was developed to maximise the benefits of procuring all four projects through the same supply chain. Under this arrangement, and following MPA Finance and Committee approval in June 2011, Wates Construction Ltd were appointed to undertake the PCA.

26. The first IESE framework enables construction contracts to be placed compliantly after 19 July 2011 when a PCA is in place. In this instance, and if approval is given to the works proposed, the MPA will enter into construction contracts with Wates Construction Ltd.

27. MPA approval to proceed to award contract is requested on this basis. If approval is given, updates on these projects will be provided through the regular updates to the MPA / Mayor’s Office for Policing and Crime.

C. Other organisational and community implications

Equality and Diversity Impact

1. The equality and diversity implications arising from the custody element of this proposal have been addressed though the Equalities Impact Assessment (EIA) as part of the TP Development Custody Improvement Project which is developing the future operational model for custody and was considered by Management Board 3 August 2011.

2. All facilities will ensure compliance to current legislation and MPS requirements, where possible. The refurbishment and refresh of office, locker/changing room and custody areas will provide suitable facilities for operational use and those visiting the building. Further details in regard to the provision of facilities provided through the Corporate Real Estate approach was presented to the MPA Equalities and Diversity Committee 2June 2011.

Consideration of MET Forward

3. The Corporate Real Estate and Delivery of Property Services’ strands are obliged within the intent of Met Forward, in particular demonstrating value for money.

Financial Implications

Revenue

4. The PSD related revenue implications of this proposal will be met within existing MTFP budgets.

5. DOI related revenue implications in regard to ongoing running costs will be met within existing budgets.

6. Costs incurred as a result of the temporary relocation of staff into existing MPS accommodation will be funded from the MPS Corporate Real Estate Programme.

Capital

7. The approved Custody Programme budget for 2011/18 is £171.58m of which £47.46m has been allocated. This paper proposes the allocation of a further £41.63m in support of operational needs. The balance of £2.08m required for increased utilisation will be funded through the Corporate Real Estate Capital Programme Provision.

8. A breakdown of expenditure for the four schemes is detailed in Exempt Appendix 1.

Legal Implications

9. The terms of reference of this Committee allow Members to consider and approve the recommendations which are set out in this report. Members may agree to delegate authority to the MPS Contracts Board to approve the letting of individual contracts associated with this proposal within the approved budget.

10. The main purpose of the contract which is subject of this report relates to the execution of construction works for a new build custody facility. In terms of the procurement regulations, this contract would be considered a “works” contract under the Public Contract Regulations 2006 (“the Regulations”).

11. As the aggregated value of the public works contract and associated works referred to within the body of this report exceed the minimum threshold set out in the Regulations, the MPA, as Contracting Authority, is required to competitively tender the contract. However, a “call off” contract from an existing Framework Agreement that is available to the MPA is a compliant method of procuring the required works. This report identifies the use of the first IESE Framework Agreement, as a compliant route to market and confirms a mini-competition was undertaken in accordance with the terms of the Framework Agreement.

12. The length of call-off under a framework agreement is not specifically limited by the Regulations, but it should be appropriate to the purchases in question and should reflect value for money considerations and not be done to circumvent the EU rules.

13. External legal advice confirms call-off contracts that involve a two stage process under the IESE Framework Agreement may extend beyond the 4 year term of the framework so long as it is placed within the life of the Framework Agreement. This report relates to the second stage of the compliant process.

14. This report indicates that the first IESE Major Works Framework Agreement was approved by the MPA Finance Committee on the 3 May 2007. Wates Construction Limited were selected by a compliant mini-competition (first stage tender), conducted in accordance with the Framework and that WCL were approved by the MPA Finance Committee on the 19 November 2007 for award of pre-construction services and construction contracts for a programme of custody facilities.

15. On the 23 June 2011 the MPA Finance and Resources Committee approved a capital budget of £3.6m for the design and costing works under a PCA with potential spend of up to £42.1m for subsequent works, subject to the outcome of the pre construction agreement and further approvals process.

16. Drivers Jonas Deloitte’s acting as the MPA’s project and cost consultants, have confirmed procurement compliance to the MPA Standing Orders and that Wates; Construction Ltd’s sub-contracted works have been competitively tendered. Further, Drivers Jonas Deloitte have confirmed their proposals have been market tested and demonstrate value for money.

17. On the basis of the information contained in this report DLS supports forward approval of the recommendation in Section A being compliant with EU and UK Procurement Law.

Environmental Implications

18. The outcome of the Business Case, in broad terms, will achieve the following three outcomes each of which will result in environmental benefits:

• Reduction in resource use and impacts
• Retention of higher quality estate
• Increased utilisation of estate

19. Specific environmental enhancements will be considered at detailed design stage in line with the MPS Sustainable Design guidelines and processes.

20. Any fit-out and procurement will adhere to Property Services Directorate design guidelines on environmental management covering construction and operational use, and specifications for responsible procurement. This will ensure, for example, that ICT equipment is energy efficient.

21. DoI intend to avoid the purchase of new technology, favouring the recovery of assets from existing sites. However, it must be noted that it is not always possible nor strategically sound to use IT assets that are technically redundant (e.g. analogue cameras) Also as the extensions will need to be constructed and tested before the decommission of existing sites, there may be a need to purchase duplicate technology. However, through the recovery of assets through the wider CRE Programme, DoI will endeavour to minimise this expenditure.

22. Procurement will address sustainability wherever possible. When specifying for equipment and technologies, consideration will be given to the legacy use of the equipment, with preference given to equipment with flexibility to be attained from other builds or re-deployed. The anticipated environmental implications are tabulated below: The table below indicates the expected effect of the proposed works to the building.

Risk (including Health and Safety) Implications

Each scheme is dependant on the ability to maintain operational capacity including support during the Olympic Games period. Plans developed with TP to relocate teams temporarily, using facilities more corporately, will minimise the impact of the works.

The appointment of a contractor through the IESE framework has captured the “lessons learnt” from previous schemes at Waltham Forest, Barking & Dagenham, Heathrow, Croydon and Wandsworth regarding design, construction and procurement by ensuring a collaborative approach to minimise disruption, inconvenience and achieve best value will be key to ensuring projects are delivered within budgets.

Abbreviations and acronyms

• CCAP - Climate Change Action Plan
• CRC - Carbon Reduction Commitment
• CRE - Corporate Real Estate
• CSR - Corporate Social Responsibility
• DoR - Directorate of Resources
• DPS - Directorate of Professional Standards
• GLA - Greater London Authority
• IESE - Improvement and Efficiency South East
• KPI - Key Performance Indicator
• MTFP - Medium Term Financial Plan
• MPA - Metropolitan Police Authority
• MPS - Metropolitan Police Service
• NSY - New Scotland Yard
• OJEU - Official Journal of European Union
• PCA - Pre-Contract Agreement
• POE - Post-Occupation Evaluation
• PSD - Property Services Department
• SCC - Strategic Co-ordination Centre
• SMP - Sustainability Management Plan
• SOCO - Scene of Crime Officers
• TP - Territorial Policing

D. Background papers

• MPA Finance Committee - 19 September 2007 – Appointments to the Custody Centre and Patrol Base Programmes utilising the SECE Major Works Framework
• MPA Finance and Resources Committee - 23 June 2011 - Proposed Refurbishment of four sites at Brixton, Kingston, Walworth and Colindale.
• MPA Equalities & Diversity Committee - 2 June 2011 - Corporate Real Estate

E. Contact details

Report authors:  Jane Bond, Director Property Services

For more information contact:

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

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