The establishment of a Transport Operational Command Unit

Report: 05
Date: 21 February 2002
By: Commissioner

Summary

This report provides an update of the current situation with regard to the discussions with Transport for London (TfL) about the setting up of a Transport Operational Command Unit within the MPS. The contract negotiations are somewhat complex and it has not been possible for this work to be completed in time for this meeting. It is intended therefore that the Special Services Agreement will be submitted to the FPBV Committee on 18 April 2002. An interim agreement has been reached with TfL to reimburse the MPS for any related costs incurred, until the contract is signed. (A report incorporating the draft Interim agreement is included as an exempt item on the agenda for this committee)

A. Recommendations

It is recommended that the report is noted and that a further report, together with the Draft Special Services Agreement be brought to the FPBV Committee on 18h April 2002, for consideration.

B. Supporting information

Background

1. The Commissioner of the Metropolitan Police and the Commissioner for Transport for London have proposed the setting up of a Transport Operational Command Unit (OCU). The unit will have specific responsibility for policing agreed bus corridors on the London bus network and enforcement of the law relating to taxi and private hire licensing. An overview of the key objectives is set out in Appendix 1.

Projected timescales

2. The projected timescales are:

• February 2002 – Draft Budget formulated
• April 2002 – Contract to MPA/contract signed
• June 2002 – First route goes live
• March 2003 – All agreed routes up and running

Issues that have been resolved

3. The following issues have been resolved:

• Overall objectives of initiative.
• Initial identification of routes.
• Command structures.
• Joint project implementation structure.
• Outline project plan.
• Outline deployment plan for operational resources.
• Pilot completed.
• Initial range of performance measures in connection with the pilot.

Outstanding issues

4. The following issues are currently being addressed:

• Funding package in 2002/03 and subsequent years.
• Special Services Agreement (with performance measures) for the scheme.
• Range of enforcement activities that should be undertaken on yellow line and LBI routes by police officers/traffic wardens.
• Intelligence information gathering and processing procedures, including how TfL and the London boroughs will feed in data.
• Staffing

5. The most recent figure for MPS staffing is as follows:

Police

207

TWs/Auxiliaries

276

Civilian staff

47

Total

530

6. MPS staff will be ring fenced for this activity. The posts will be newly created and fully funded by TfL. If these new posts are filled by existing staff then the necessary recruitment activities will be undertaken to fill any vacant positions and ensure the establishment is maintained.

7. The TfL staffing component for this initiative is currently estimated to be in the region of 80 staff. A number of these staff will be existing post holders who are currently undertaking related activities; the additional staff employed by TfL will be funded from within the £25m funding limit and are included in the summary of costs (See Appendix 2).

Command and control

8. London Buses have five operational Areas covering London. Each of these Areas will have a police inspector who will be responsible for the designated bus corridors on the Area with each of the corridors having a dedicated team managed by a sergeant. The Areas will also have a task force to assist the dedicated teams when incidents, traffic or crime levels occur which are beyond the limit of their resources.

9. The OCU will have its own control room, which will be linked with TfL and the MPS Traffic Control and may be a combined unit. In addition, an intelligence unit is being developed which should combine the intelligence units of SENECA, cab enforcement, Traffic OCU, London Buses and the Transport OCU.

Pilot

10. In order to test the concept of a Transport OCU a pilot was run on routes 109 and 159 between Croydon and Westminster Bridge for two weeks commencing 14th January 2002.

11. From day one the relationship between the MPS and TfL staff working on the pilot was excellent. With bus-operating staff showing a high level of enthusiasm which manifested in an increase in calls to police from 6 per day to more than 120 per day. This meant that the bus drivers became spotters for the police and traffic wardens who became highly focused and directed to incidents.

12. The practice of having traffic wardens on motor scooters rather than on foot and police officer's on motor cycles rather than double manned in a car also proved very successful, with response times to incidents being significantly improved.

13. The following table details some of the activities conducted by the staff on the pilot.

Activity	Totals
Fixed Penalty Notices	922
Arrests (6 s25 PACE, 1 BofP, 1 Disqualified driver, 1 robbery, 1 burglary + possession of drugs, 1 drugs + wanted on warrant, 1 TDA and 1 drugs/deception)	13
Process	36
Verbal Warnings	2,010
Removals (Called to 328 vehicles – 295 owners returned)	33
Vehicle Excise Offences	108
Vehicle Prohibitions	11
Vehicles Examinations	65
Number of buses checked by Revenue Protection Officers	449
Passengers checked	14,263
Passengers summoned	100
Penalty fares issued	162

Other Performance indicators being collated include police response times and bus mileage lost.

Contract

14. The MPS has acquired counsel's opinion that the services to be delivered by the proposed Transport OCU fall within the definition of "Special Services" within the meaning of the Police Act 1996.

15. The MPS has a similar agreement with the Palace of Westminster for delivery of policing services within the Parliamentary Estate. The negotiation of this agreement has brought operational benefits for all parties including:

• Management of expectations
• Clarity around what is to be delivered
• The price to be charged
• Means of varying the level of service required
• Allowing recovery by the MPS of agreed costs

16. The value of the agreement with the Palace is approximately £20m per annum and of similar scale (and complexity) to the proposed Transport OCU. The contract is managed by the Divisional Commander, with support from the Finance Directorate.

17. The MPS will be seeking to ensure that any costs incurred before signature of the contract (e.g. vehicles – which have a long order period) will be underwritten by TfL. This will form a matter for discussion between the parties on the assumption that the MPA gives approval to proceed. (A copy of the draft interim agreement is included for approval as an exempt item on the agenda for this committee).

18. It is important to remember that the MPA will be asked to deliver a new OCU within a cash limit (£25m, or say £24m after deductions for cost to be incurred by TfL). Because the set-up and running costs have yet to be fully established (e.g. to take one example consideration of accommodation requirements remains at an early stage) the number of police officers, traffic wardens and civil staff that can be delivered within this sum is likely to change as the operational requirements are more clearly articulated. It is thought that an annual budget of £25m. would allow the recruitment of approximately 530 staff, although the possibility of a larger staff complement cannot be excluded. These numbers will change, as issues are resolved through implementation.

19. The term "rebated expenditure" relates to expenditure already incurred by the MPS, for example on red routes on the designated bus routes or within Operation SENECA. The proposed contribution by TfL is for additional service provision over and above this. The value of these services is subject to review by the Finance Directorate and agreement will need to be reached with TfL on the value of such services following review.

20 Notes to the Table of Estimated Cost are shown in Appendix 3.

Conclusion

21. This initiative will achieve high visibility policing and enforcement in some of the busiest parts of London. It will improve the efficient movement of buses, the public and staff's perception of safety and has the potential to assist in the reduction of crime levels both on and around bus services.

22. If considered to be successful by TfL, consideration will be given to rolling it out from the initial 20 corridors to the rest of London.

23. Answers to the most frequently asked questions are shown at Appendix 4.

C. Financial implications

1. The Transport OCU is considered to be new business for the MPS, as such TfL will pay the estimated start up cost and the estimated annual running cost of the OCU on an ongoing basis. The services provided by the OCU will be set out as part of the contractual relationship between TfL and the MPS, this will also govern payment for the services.

2. The latest estimate of costs for the project in 2002/3 stands at £25m (an indicative breakdown can be seen below) as details of the scheme are worked up, these costs will be further validated and amended.

3. At the current time it is estimated that full year costs of the unit (2003/4 onwards) will be in the region of £25m per annum. Estimates of annual costs are detailed in Appendix 2.

4. The estimate contained within the draft consolidated budget produced by the Mayor in December 2001 and considered by the Greater London Assembly on 23rd January 2002 is £25m.

5. As things stand currently therefore, the total estimated full year cost for the Transport OCU is broadly in line with the proposed budget ceiling of £25m. As stated previously there will be some further adjustments. However, there are indications that these will still allow the final establishment figure to remain at or near 530.

D. Background papers

None.

E. Contact details

Report author: Commander Alan Shave, MPS.

For information contact:

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

Appendix 1: Overview of key objectives

Objective 1

The public and staff feel safe using bus services, bus stops and the roads on agreed routes and corridors

Transport OCU responsibilities and activities

• Bus corridor staff to provide high profile on-bus presence on defined routes/corridors and locations in order to deter crime and anti-social behaviour
• Assign staff to target and reduce criminal activity in order that the public and staff feel safe using bus services, bus stops and the roads on agreed routes and corridors
• Focus on activities of school children, including known problem routes/locations and work with TfL and the other agencies on established educational initiatives (e.g. Buswise/Junior Citizen) to prevent anti-social behaviour occurring
• Respond quickly and effectively to reports of assaults on staff and passengers and reports of public disorder on buses, at bus stations and bus stops
• Investigate serious ticket fraud and where required support TfL ticket checking activities
• Provide reactive and pro-active support to bus operators and TfL who wish to prosecute criminals and vandals caught on CCTV

In support of the above, TfL will:

• Ensure rapid repair to stops and shelters
• Work with bus operators to ensure rapid removal of graffiti from buses
• Provide trained Revenue Protection Force to work with MPS on security issues
• Provide CCTV equipment on all buses. During the programme to retro-fit existing buses and fit new buses with CCTV, ensure that equipment is available on the most appropriate routes and in the most appropriate areas
• Ensure vehicle attack alarms are in working order and used correctly

Objective 2

To ensure the efficient movement of buses on agreed routes and corridors

Transport OCU responsibilities and activities

• Bus Corridor staff (Police Constables and Traffic Wardens/Auxiliaries) to deal with illegal obstructions on the highway to ensure the free flowing movement of buses and take other appropriate action to ensure the free movement of buses
• Report defective traffic signals and take positive action to maximise bus flows during any periods of associated disruption. Where appropriate, implement temporary bus priority measures as necessary
• Bus Corridor staff to provide high profile presence in order to deter illegal parking and other road traffic offences
• Ensure road works are in accordance with licensing agreements and are managed appropriately and timely and where necessary take positive action to maximise bus flows during any periods of associated disruption. Where appropriate, implement temporary bus priority measures as necessary
• Ensure obstructions due to traffic collisions are removed as soon as practicable and/or steps are taken to minimise the effect on bus journey times
• Minimise the impact on bus operations at times of security alerts and other critical incidents
• Provide assistance, guidance and support to staff and customers during special events e.g. demonstrations, including strikes on other forms of public transport to maximise bus flows. Where appropriate, implement temporary bus priority measures as necessary

In support of the above, TfL will:

• In conjunction with bus operators, ensure buses are fit for purpose
• Arrange for the rapid removal of broken down buses from the highway
• Ensure bus schedules are realistic based on known information about congestion hotspots
• Provide appropriate and timely management information and statistics

Objective 3

Enforcement of the law and licensing relating to taxi and private hire vehicles

Transport OCU responsibilities and activities

• Ensure that taxi and private hire premises and ranks are operating according to regulations
• Undertake strategic enforcement operations against taxi touting as identified by the intelligence unit
• Provide an effective response to criminal acts by or against taxi and private hire drivers, reported to or observed by the MPS. Provide support to PCO on street activity
• Maximise the co-ordination of MPS taxi activities and those of TfL personnel addressing taxi and private hire operations
• Establish a Taxi Unit within the new Transport OCU to act as a single point of contact for TfL personnel
• Provide, where appropriate, training for PCO personnel
• Collect data on illegal operations and supply data to MPS staff assigned to taxi enforcement operations

In support of the above, TfL will:

• Maintain an effective licensing process for London taxi and private hire operators, and in the future, their vehicles and drivers
• Ensure compliance with licensing regulations through a variety of audit mechanisms
• Provide guidance to the MPS staff on areas where strategic police enforcement would be productive
• Collect data on illegal operations and supply data to MPS staff assigned to taxi enforcement operations
• Marketing safe cabs/licensing

Appendix 2: Table of estimated costs 2002/03 - development year & 2003/04 - full year

Item	Notes	2002/2003 Total (£000)	2003/2004 Total (£000)
Salary	[1]	12,924	21,622
Control Room	[2]	700	192
Intelligence Unit	[3]	695	185
Radios	[4]	473	12
Telephony	[5]	132	114
Computers	[6]	105	51
Ticket Writers	[7]	915	20
Accommodation	[8]	3,498	1,153
Vehicle Fleet	[9]	2,339	1,074
Training	[10]	3,194	1,257
Uniforms	[11]	485	162
Grand total		25,460	25,842
Less rebate	[12]	1,263	1,894
Total additional cost		24,197	23,948
Tfl staff	[13]	800	1,000
Total OCU cost		24,997	24,948

Please see appendix 3 for notes to the table.

Appendix 3: Notes to the table of estimated costs

1. The Salary Costs are calculated using the average rates paid for each grade and rank within the Metropolitan Police Service (MPS). The table below states the estimated number of staff at full establishment.

Rank/grade staff	Numbers
Commander	1
Chief Superintendent	1
Chief Inspector	2
Inspector	8
Sergeant	40
Constable	155
Civil staff - support	24
Communications staff	18
Vehicle recovery driver	5
Traffic Warden	276
Total Staff	530

2. The Control Room is assumed to be of a similar size and specification to one set up in May 2000. 

3. The Intelligence Unit is assumed to require a staffing complement of 23 and the costs are based on existing Borough Intelligence Units.

4. This is the cost for the purchase and maintenance of personal and vehicle radios.

5. This is the purchase cost of 84 new lines and handsets. The running costs are for rental, maintenance and call charges.

6. In addition to the IT kit within the Control Room and Intelligence Unit there is a requirement for 30 personal computers and 5 printers. The running costs are for ongoing support to the network and applications and their eventual refresh.

7. This is the estimated cost of 300 electronic Ticket Writers. 

8. The set up charge is an estimate of the refurbishment, fixtures, fittings and furniture requirements. The running costs include repairs, rent and utility charges.

9. The set up charge is the purchase cost of the vehicles supplied and fitted to police specifications. The running costs include repairs, maintenance, fuel and eventual refresh.

10. The set up charge is the cost of training the police officers and traffic wardens that will have to be recruited to fill the vacancies created by the requirements of this new unit. It also includes the charge for training staff to drive the vehicles. 

11. The set up charge is for the initial uniforms and personal equipment. The running costs are for replacements.

12. The rebate in 2003/04, is provisionally £1.75m salaries and £0.14m for accommodation and equipment. This is an estimate of the existing costs to the MPS for the operational services already provided on the designated routes to be covered by the Transport Operational Command Unit. This rebate estimate is subject to a review by the Finance Directorate.

13. The additional TfL staffing costs for this project are included within the total budget.

Appendix 4: Frequently asked questions

Q: Does the use of police officers in this way meet the MPS policing priorities for 2002-2003?

A: There is a clear link between MPS Priorities and objectives for 2002-2003, viz.:-

• Security of the capital against terrorism
• Create safer communities for Londoners, by 
  • Reducing crime & disorder
  • Reduce the fear of crime
  • Increase visible police presence
• Improve response to vulnerable victims
• Tackle youth offending

Q: What are TfLs objectives?

A: The Mayor’s key objective for buses is that they must be:

• reliable
• quick
• convenient
• accessible
• comfortable
• clean
• easy and safe to use
• affordable

Q: Are the objectives of TfL and MPS contradictory?

A: There is plenty of evidence from New York and the MPS’s own operations (Seneca) to show that the objectives are complementary.

• Many of the borough’s crime hotspots are on the main bus routes.
• Many of the active criminals travel to the scene of a crime by bus.
• Many of these criminals are fare evaders.
• Many fare evaders are wanted on warrant.
• Many fare evaders are carrying offensive weapons. e.g. a revenue initiative can have a multi-functional result.

Q: The recent diversion of traffic officers and wardens to crime and terrorism duties is contradictory. 

A: The movement of these staff is only temporary.

Q: Can Hendon train enough police officers for next year?

A: TfL have offered over £1m to provide additional training courses. Commander (training) is confident that he can provide sufficient courses in addition to those required by boroughs. Personnel department is confident that they can get sufficient recruits to meet all known demands. Also:

• The Transport OCU will recruit staff over a period of 12 months.
• The majority of staff are not police officers.

Q: Are they part of the Mayor’s extra 1000 police officers?

A: No

Q: Will the officers be under the control of the Mayor or TfL?

A: All MPS staff will remain under the control of the Commissioner.

Q: Can TfL pay the MPS for providing a public service?

A: Legal advice is clear that it is an acceptable practice. Similar to Heathrow.

Q: How much is the pilot costing?

A: The staff being used were already available because the routes selected are nearly all red routes and the boroughs are also Seneca sites. TfL have agreed to reimburse the MPS for any supplementary costs incurred. 

Q: What will stop the MPS having to pay out if the main programme goes over the budget?

A: This is new business and TfL will be paying start up and running costs. Expenditure will be closely monitored and if it looks like an over spend is going to happen the service being delivered will be reduced, in consultation with TfL, in order to remain within budget. 

Q: What if TfL decide in future years to pull out of the deal?
The accommodation charge appears too low.

A: Agreement is being sought with TfL to provide at least 12 months notice and meet any necessary expense incurred by the MPS. Details of the arrangement will be contained in the Special Services Agreement that Members will be considering at a future meeting. All of the estimated costs associated with the proposed Transport OCU are being refined as more information becomes available. It is hoped to accommodate the majority of the OCU staff in one central London building which should be more cost effective. Details currently being negotiated by TfL.

Q: What is the extent of the contract? 

A: The MPS and TfL Finance and Legal Services departments are currently working together on this, and a draft contract will be considered by Members at a future meeting.

Q: What co-ordination will there be with British Transport Police? 

A: Meetings have already taken place with the Chief Constable of the BTP

Q: What are the performance indicators? 

A: These will be refined following the pilot and incorporated in the Special Services Agreement. Some of these may be associated with the following:

• Crime and anti-sociable behaviour levels on the corridors.
• Fear of crime (passenger/staff).
• Driver absenteeism
• Problem solving long term issues.
• Police response times.
• Number’s of illegally parked vehicles.
• Cab enforcement initiatives.

Q: MPA needs to develop and enforce a rigorous monitoring role.

A: A joint MPS/TfL monthly management report is being prepared to measure performance against the objectives and performance indicators. This will be available to the MPA.

Q: Will experienced officers be taken from boroughs?
Will BOCUs have to provide officers to support the Transport OCU?

A: The Transport OCU will be built up over 12 months with the majority of staff not being police officers.
We are currently reviewing whether probationers could be posted direct to the unit due to the affect on boroughs.
Any officer taken from a borough will be replaced immediately and in the case of a probationer replacement that officer will be capable of an independent patrol before the transfer takes place.

Q: What extra work will fall on BOCUs?

A: In the short term there is likely to be an increase in arrests that will be dealt with by BOCU Prisoner Processing Teams and Criminal Justice Units. In the longer term as the deterrent effect of the new OCU becomes effective demand should go down.

Q: What are the boundaries of the initiative?
(indirect operational impact)

A: Transport OCU staff working along the bus routes/corridors will provide an initial response to all incidents that come to their notice. Those that do not relate to the units policing objectives will, after any immediate appropriate action has been taken, be handed over to local units to deal.

Q: What process will there be to resolve conflicts between MPS & TfL priorities?
(e.g. abstraction of police officers for public order events)

A: Transport OCU staff will be ‘red circled’ which means they cannot, save in exceptional circumstances, be used on other police business. If this should occur TfL should receive a discount for services lost.

Q: What criteria were used to determine which bus routes should be included? 
(none in Haringey)

A: Levels of assaults, robberies, criminal damage offences, disturbances and missile throwing incidents.

Q: Financial details of the agreement need further scrutiny by MPA

A: A report, incorporating a draft of the Special Service Agreement and associated appendices, will be prepared for the MPA FPBV meeting on the 18th April

Q: Who will sign the Service Level Agreement on behalf of the MPA?

A: The Clerk will sign on behalf of the MPA.

Q: What are the penalties for breach of service level agreement?

A: Details will be contained in the Special Services Agreement that Members will be considering at a future meeting.

Q: Assurance sought that the SLA will clearly state that the MPS will play no part in the enforcement of congestion charges.

A: This is agreed

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