Select Committee on Administration Written Evidence


Memoranda from the Director of PICT

Initial Submission (October 2006)

INTRODUCTION

  1.  PICT is the newly formed Parliamentary Information and Communications Technology service, jointly owned and managed by both Houses of Parliament, and delivering services to the Members of both Houses. It was formed at the beginning of 2006 by amalgamating a wide range of previously separate units, including the former Parliamentary Communications Directorate (PCD). The formation of PICT creates opportunities to improve service levels to Members and exploit new technologies: we can already point to some significant improvements in the last few months, of which the dramatic reduction in the average helpdesk queuing time (from nearly five minutes to less than one, despite a significant increase in the call load) is perhaps the most tangible. On the other hand the legacy which we are working to overcome is one of incompatible systems and approaches, under-investment in resilience and lack of overall strategic planning. At the same time, the demands on Parliamentary ICT services have grown inexorably.

  2.  Even in the last year the number of parliamentary network accounts has risen by around 13% (to almost 8,000); the number of remote access accounts (all types) has risen by 15% (to around 3,400); and the number of calls to the PICT helpdesk in September was 57% higher than calls to the PCD helpdesk in September 2005 (now almost 9,000 calls per month—daily totals fluctuate enormously).

    —  PICT manages 91 IT rooms including 5 data centres and 235 servers.

    —  Parliamentary Network availability in 2006 so far is 99.9%.

    —  Parliament received 1.5 million e-mails in September that is 18 million coming in each year, all filtered for spam and checked for viruses.

    —  We have 2.5 Terabytes of locally stored data (equates to 416 million one-line e-mails or 80,000 Oxford English Dictionaries).

    —  25 Terabytes of data is securely stored off site.

    —  PICT supports 143 business information systems held on servers and several 100s of small applications on desk tops.

  3.  PICT is still developing as an organisation and is determined to succeed in its primary objective, which is to meet the needs of Parliament and parliamentarians. It therefore welcomes this first opportunity to engage formally with the House of Commons Administration Committee and hear the Committee's views on priorities and strategies for the next few years.

  Members use and depend on PICT-supported ICT directly or indirectly throughout the day:

    —  The security pass system for Members and their staff.

    —  Overnight print production and electronic publication of parliamentary documents.

    —  E-mails, telephone systems, mobile PDAs, voicemail, telephone directory.

    —  PCs, printers, laptops.

    —  Remote access for constituency offices.

    —  Electronic point of sale and stock control systems in the restaurants.

    —  Electronic tabling of PQs, tracking of Bill amendments.

    —  Division bells.

    —  Hansard reporting and webcasting of chamber and committees.

    —  Library systems tracking legislation, PQs, EU documents,catalogue and loans, news and legal databases.

    —  Serjeant's systems managing accommodation, maintenance, facilities etc.

    —  Payroll and expenses.

    —  The public website.

    —  Service desk and IT training.

(a)  BEST PRACTICE IN THE WORLD AT LARGE

  4.  There is no single best practice solution either to the supply of ICT services to Parliaments in general or to the specific issue of multiple locations. The following paragraphs look first at the technical configuration, then at the supply model, and finally at performance measurement and benchmarking.

  5.  Most organisations with multiple locations, complex data and high information security requirements impose a tightly managed technical environment where users are strictly limited as to the software they may use and security of access. Parliament currently operates a more flexible model, as agreed by the previous Information Committee, which has some necessary elements of standardisation, but is less tightly managed, because this gives individual Members greater freedom and flexibility; it also allows Members themselves to influence rules on security and acceptable use.

  6.  The present pattern of provision is relatively recent. Until the 2001 election Parliament provided Members with a network and dial-up Citrix access, but Members were responsible for obtaining their own equipment and support. Standard PCs (plus laptop) and printers were issued only from 2001 and the first "refresh" of that equipment is now reaching completion. Remote connectivity has developed substantially with the introduction of the first Virtual Private Network (VPN) service in 2002/03.[1] This year (2006) has seen the introduction of Personal Digital Assistants (PDAs) for Members and the installation of a wireless network in Portcullis House atrium. Constituency offices continue to function with a wide variety of non-standard equipment and configurations.

  7.  The present more flexible model works successfully on the parliamentary estate because Westminster-based in-House service analysts on x2001, backed by in-House engineers, are trained to work with the mixed technical environment and can generally trouble-shoot problems, if necessary by visiting Members' offices. Taking into account contract management overheads and risk sharing agreements, the outsourcing of routine support would typically be 30-50% more expensive and the service level would be more formally bounded by contract conditions and likely to be less flexible for users.

  8.  Comprehensive support at the same level for all constituency offices clearly raises different logistical and cost issues, whether in-sourced or out-sourced, and has to address the diversity of equipment and set-ups. Flexibility comes at a cost, as the additional costs incurred by the "refresh" project have demonstrated (see section f). Again, a more restricted ("locked down") technical environment and stricter policies on access would reduce costs, with faults more quickly diagnosed and corrected, but might be unacceptable to many Members. On the other hand, 48% of Members surveyed in October 2005 said that they would welcome the opportunity to switch from third party to in-House support of their constituency offices, assuming that PCD/PICT could offer a good service. These issues are covered in greater detail in response to questions (d), (e) and (f).

  9.  As regards outsourcing more generally, both public and private sectors operate a variety of models, depending on the requirement. Single contract outsourcing in central and local government has enjoyed some success, but also some high profile failures. Issues to consider include the extra cost of the contract management overheads and the risk of inflexibility/heavy additional costs if the requirement changes during the contract period. Few organisations take the risk of losing in-House capability altogether. The industry trend (advised by Gartner[2] and others) is towards multi-sourcing, which avoids undue dependency on a single prime contractor. Our strategy for Parliament has been to pull together and strengthen the in-House capability (hence the creation of PICT), but then to consider outsourcing specific components of the service in terms of risk, quality and value for money. At present the following areas have significant outsourced elements:

    —  Telephone operator bureau and voicemail system.

    —  Telephone maintenance.

    —  Installation and warranty-covered support of desktop equipment.

    —  Network engineering support.

    —  Data backup, spam management.

    —  Electronic publishing and web hosting (including education website).

    —  Major application support (PIMS).

    —  Major application development (HAIS).

  10.  This mixed model of in-House provision and outsourcing has been established in Parliament in order to address the issues of providing flexibility of services for Members while at the same time using a range of "best of breed" external providers to deliver specialist services. This model means that the in-House provider must be able to manage effectively a wide range of external contracts: PICT created a new expert team in May 2006 specifically to achieve best practice in ICT procurement and contract management.

  11.  We believe that the task of supporting Parliamentary ICT is best carried out by a mix of in-House and strategically outsourced components and that the support of core parliamentary functions (including the work of Members) is often best done by dedicated teams who can gain a better understanding of how Members work and are able to develop knowledge of the parliamentary environment.

  12.  Because Parliamentary IT management was fragmented before the creation of PICT, there was no systematic approach to performance measurement and benchmarking. PICT has been developing a new user-oriented performance "dashboard" of key performance indicators. This is still work in progress—for example, the main service desk case logging software has just been upgraded to capture more useful information. Third quarter data will be available shortly and will be provided to the Committee.

  13.  PICT is also working to obtain a fuller understanding of the true costs of ownership of systems as a prelude to benchmarking. Two specific benchmarking exercises have been initiated recently, both with the involvement of Gartner: one looking at the overall costs of infrastructure and staffing at the higher level of analysis; the other looking in much greater detail at the service desk and desk-side engineering team.

  14.  PICT is fully committed to achieving best practice in both performance measurement and benchmarking and would welcome the views of the Committee as to what measures it would wish to see in future.

(b)  DEPARTMENTAL STRUCTURE AND GOALS

  15.  PICT was established January 2006 as a fully joint service, but awaits legislation enabling staff to be moved to a jointly employed basis. It replaces the nine separate in-House units (including PCD) which previously provided ICT services to the Members, Departments and Offices of Parliament. The aim in creating PICT (backed by HC Commission and HL House Committee) was to create the basis for more strategic management of assets and staff, improved services, smarter procurement and contract management, improved programme and project management and better risk management. The overall aim of PICT is to achieve best practice in the delivery, support and implementation of ICT in Parliaments.

  16.  The Director of PICT (Joan Miller) was appointed jointly by the corporate officers (Clerks) of both Houses in September 2005 and sits on both Management Boards, working with the appropriate Member committees in each House. Both Houses have corporate strategic plans and PICT is charged with delivering the ICT elements in both plans. There are dedicated ring-fenced budgets for Member Services in each House, but PICT is able to negotiate single contracts and services providing better value for money for both Houses. The requirements of both Houses are in practice very similar and in many cases can be met most effectively through shared solutions. The option of separate solutions remains where this is more appropriate.

  17.  Early goals for PICT naturally reflected the change from nine separate IT teams to a single joint House service and the need for continuity of support during the transition. As far as possible normal services were maintained to Members and to departments of the House throughout the transition. Ongoing projects were also supported, while the reorganisation proceeded behind the scenes. Significant effort was put into risk assessment and elimination of single points of failure. High priority was given to resolving the difficulties with the VPN (see below).

  18.  The emphasis has now shifted to customer-oriented service improvement (see section (e) below) and realising the strategic benefits that can be obtained through technical consolidation, strong programme management and a "whole enterprise" view of information architecture. PICT will be drawing up a new strategy and business plan by January 2007 and would welcome the Committee's views on how the goals for Member services should be set.

  19.  The content of the Parliamentary ICT strategy is influenced (but not necessarily determined) by broader trends in public sector best practice, such as the transition to "e-government" and, more recently, to "t-government" (transformational government), ie the improvement of public services in quality and efficiency, using electronic infrastructure to reconfigure services around citizen/customer needs.

  20.  A parliamentary example of this is that PICT is responsible for developing the technology platforms to support a radical upgrading of Parliament's public website as called for by the House of Commons Modernisation Committee in Connecting Parliament with the Public (2004). Similarly, if the recommendations in the Modernisation Committee's latest report (The Legislative Process) are agreed, PICT will work with the Clerk's Department and House of Commons Library on new ways of exploiting ICT to support the legislative process.

(c)  IT STABILITY V FLEXIBILITY

  21.  As explained above, the decision to provide a very flexible software mix on PCs or laptops (as opposed to a "locked down" environment) reflects the wishes of the previous Information Committee and the recommendations of the SSRB as approved by the House. The security controls (password management and login restrictions) used by PICT have also been determined for us by a joint committee of both Houses that took advice on national requirements for good practice in this area. PICT works within the guidelines established by the House, its committees, and the House of Commons Commission, including policies on the distinction between parliamentary and party use and on security, and these can sometimes limit the range of technical options available.

  22.  This flexible model allowed the former PCD to achieve a highly stable network at Westminster with a reasonable level of connectivity for constituency offices. The improvement in the main network connection has been maintained by PICT, and the resilience improved further with work carried out over the summer of 2006. However connectivity via the new VPN was somewhat degraded during the first half of this year, owing to an issue caused by our supplier and which has now been resolved (an illustration of our dependency on external contracts in a key area). Since July the VPN has been working well. The network remains vulnerable to mainly localised disruptive incidents, such as power outages, but to a lesser extent than in earlier years. There have also been occasional incidents when Members or their staff have inadvertently disrupted services to others, eg by introducing their own local wireless setup.

  23.  The model allows Members a degree of freedom which appears to meet most requirements. The downside of this is that the wide range of Member office environments makes support (including routine replacement and upgrading of equipment) more costly and problematic than it would otherwise be. Similarly, the extension of support services, which many Members said that they would welcome when surveyed, will be more difficult to provide as long as the present diversity remains.

  24.  Mixed provision of support also raises IT security issues because PICT cannot ensure that locally engaged engineers have appropriate levels of knowledge and security clearance. It is essential for the security of the network that machines connected directly to Westminster via the VPN are adequately protected and managed, whatever flexibility is allowed in other respects. The Administration Committee and the Joint Committee on Security have already approved measures to improve IT security and to promote a strong IT security culture: PICT is taking these forward.

  25.  It is for Members to decide how much flexibility they require in their use of ICT. Looking at technical, logistical and security issues alone, greater standardisation and a more managed IT environment would bring benefits. The Committee's view on whether further standardisation is feasible and desirable would be very helpful to PICT in its future planning.

(d)  CONSTITUENCY PROVISION

  26.  The target recommended by the SSRB and set by the House that "the level and range of IT support offered to constituency offices should be improved to a level comparable with that offered on the Parliamentary Estate" is challenging if "comparable" is taken to mean "similar". The two main issues are the speed and reliability of online connections, and the speed and quality of technical support. Some significant progress has been made. For example, measures have already been taken to provide training for Members' constituency-based staff and to increase the resources available at Westminster to deal with remote fixes.

  27.  Gaps in the quality of service clearly remain. Neither the VPN, nor web-based services give Parliament the degree of control over connectivity that it has on the Westminster Estate. The decision by BT in 2005 to increase domestic ADSL bandwidth has helped, but future changes in bandwidth and internet traffic could impact on web-based connectivity. On the other hand, a network of private land lines connecting constituency offices to Westminster would be extremely expensive to install and rent.[3] While a business case may be made for significant new expenditure on constituency support, we assume that the Members Estimate Committee will expect costs to be contained within reasonable limits.

  28.  The consultant tasked with investigating constituency support reported at the end of January 2006 with a wide range of detailed recommendations based on 247 returned questionnaires and 22 visits to offices. Many of the recommendations concerned the nature and quality of service offered to constituencies from Westminster and the great majority of these have been taken up in the course of the fundamental reorganisation of service desk (helpdesk) staffing and processes and the subsequent Customer Service Improvement Initiative. This is covered further in section (e). The strategy to date has been to optimise the support that can be offered to constituencies from the centre on the grounds that other solutions to the local support requirement are likely to be both expensive and complex to implement.

  29.  Local IT support covers a range of services. Delivery, installation and repair of equipment can generally be covered by the procurement arrangements, supplemented by extended warranty. However, for most Members, support also needs to encompass the setting up and maintenance of small local networks, installation and training in the use of software and routine "health check" site visits to check on system set-up, apply any routine upgrades, check on file management, and back-up and check on the general serviceability of equipment (ie preventative maintenance and advice). These were the key areas where Members when surveyed felt that they needed local support.

  30.  It is probable that yet more advice and "remote fixing" can be provided from Westminster and the technologies to enable this are still developing, but full support as defined above will require at least occasional site visits and some new approaches to software support. We understand that most Members would prefer a single point of contact and a service which recognises and works with their specific requirements. Many of the Members surveyed last year wanted what they described as a "field-engineering force" managed directly or indirectly by Parliament.

  31.  Assuming that Members require IT support in their constituency offices as summarised above, and that at least some also value the ability to have non-standard set-ups, locally supported, the best way forward seems to be for PICT to offer a range of differentiated and clearly defined service levels. These could be branded—platinum, gold, silver etc—for maximum clarity about responsibility and sources of support. For example, "platinum" might provide a PICT-supported local area network (LAN) for PICT equipment only and connectivity guidance for any non-PICT equipment, with next day on-site technical support and regular "health checks"; by contrast a minimal "bronze" service would offer only connectivity for PICT provided laptops.

  32.  Recruiting and managing a UK-wide force of PICT engineers specifically to support Members' offices is possible, but a more feasible alternative would be for PICT to manage a third-party contract or contracts with regionally-based suppliers, ensuring suitable levels of security clearance and quality control, with the PICT service desk, appropriately resourced, providing a single clearing house and "one-stop shop" for Members. A permanent new service with significant cost implications would need to be approved in due course by a resolution of the House.

  33.  In the interim, given appropriate approval and funding, a pilot enhanced service could be developed for a sub-set of constituency offices from January. Proposals for full implementation would then be brought back to the Committee in the spring.

  34.  The Committee's views and recommendations on these issues would be of great assistance to PICT given that much depends on understanding Members' changing requirements, the acceptability of different models for support and the likely take-up of different options.

(e)  CUSTOMER SERVICE

  35.  The PICT Director of Operations, Matthew Taylor, has overall responsibility for Member services. Reporting to him are Members Computing Officers for each House and a Customer Services Manager who oversees the service desk, service engineers, customer services team and user training.

  36.  The PICT service desk currently operates between 8.30 am and 8.00 pm on weekdays when the House is sitting and between 9.00 am and 6.00 pm when it is not. Between these hours Members may either call the desk on x2001 or email with specific requests for service. In addition to this, the service desk is staffed from 11.00 am to 3.00 pm at weekends. Issues referred to the service desk are either resolved by the analyst taking the call or passed to a more specialised engineer who may visit a Member's office if necessary. Site visits may also be made to constituency offices to deal with PICT-provided equipment, if problems cannot be resolved remotely.

  37.  PICT's service desk has been reorganised over the summer, with improved organisation, processes, software, training and staffing. Despite the continuing growth in calls to the service desk, this work has enabled a further marked reduction in the time that calls wait in the queue to be answered—from a weekly average of around four minutes to under one minute (and under 20 seconds for significant periods). Twenty seconds has been set as a sustainable short-term target and this is now within our sights.

  38.  Many of the other concerns raised by Members and their staff in the October 2005 constituency questionnaire have also been addressed.[4] Indeed, one of PICT's key objectives for 2006-07 has been to improve the level of services for Members and their staff. For example, we have run a series of customer services training sessions over the summer recess to ensure that our staff understand and are focussed on our customers' concerns; as set out elsewhere in this paper we launched new services for mobile devices and wireless connection; and we are developing a new training strategy to include floor walking and surgery services at Westminster, for implementation in March 2007; constituency support proposals are covered in the previous section; a constituency wireless network pilot is planned for January/February 2007.

  39.  A second phase of the customer service improvement initiative has recently begun. The emphasis is on improving the rate at which problems are resolved. This involves redesigning the service engineer (desktop support) function, and in its first two weeks has increased the work rate of field engineers by 10%. This initiative will also investigate how the customer services team can be organised to provide the prime point of contact for MPs and their staff, for implementation in January 2007. Current proposals are that the Members Computing Officers and customer services staff will be brought together into one team to provide this prime point of contact for all queries other than service desk queries.

  40.  There are several other areas where PICT is seeking to improve services to Members over the next year. We are currently examining the feasibility of extending PICT service desk and Westminster engineering support to a full 7 day a week, 24 hour a day support model. The opportunity arises from the creation of PICT because the business case depends on bringing together the support arrangements for the network, individual users and critical applications such as those which support overnight publication of House documents.

  41.  We also plan to extend and improve the user training which is offered to both Members and their staff. We would like to look at this alongside the training offered to Members' staff by the Department of Finance and Administration and to develop a more flexible range of training offerings. This again would respond to the findings of the constituency support survey. While we accept (another point from the survey) that Members' constituency staff do not see themselves as technicians, a better level of awareness would reduce the need to make calls to the service desk and promote better housekeeping of IT equipment which in turn will reduce the number of service failures.

  42.  We would welcome the Committee's views on the priorities for further improvements to customer service.

(f)  NEW EQUIPMENT ROLL-OUT

  43.  There has been a full "lessons learned" exercise on the Members' equipment refresh project 2005-06. Given that Members newly elected in 2005 had been provided on arrival at Westminster with new Dell equipment, Windows XP and Office 2003, the aim of this project was to provide the remaining 520 returned Members with the same updated equipment and software. This was a complex logistical undertaking. One of the conclusions of the "lessons learned" exercise is that, although the contract offered excellent value for money in terms of equipment unit costs, we underestimated the complexities of installation, and therefore the project was initially under-resourced.

  44.  In particular the third-party engineers engaged to carry out installations frequently encountered complex non-standard set-ups in Members' offices, with customised and locally loaded software needing to be transferred to new PCs, and as a consequence time-consuming "scripts", including complex data transfer, had to be devised. At the same time some Members assumed that the contract provided for a higher level of service than was actually the case. There were also problems in obtaining full survey information in advance on such matters as space constraints, availability of power supplies and the layout of network ports and in a few cases this meant that it took two or three visits to complete one installation.

  45.  When the time comes for a further refresh, we believe that, however the contract is structured, there should be a dedicated engineering team trained to understand Members' requirements and that the level of service should be specifically agreed in advance by the responsible committee on behalf of Members. Consideration should also be given to a more closely managed deployment schedule: difficulty in contacting all the Members concerned and arranging convenient times for installation has meant that the 2005-06 refresh has taken longer than planned and that Members who have not responded (20 as of 5 October) will be updated by regular PICT staff after project close.

(g)  FUTURE EQUIPMENT

  46.  PICT is keeping pace with technological change in many ways. An interim wireless solution has just been put in place for the atrium area of Portcullis House. This new service, which will be publicised more widely in the next week or two, will allow Members full access to the parliamentary network using their laptops in the atrium area. We are planning a fuller solution to this requirement by April 2007, which will extend wireless coverage to other suitable areas of the parliamentary estate, including internet access for Members who have XP on their own laptops.

  47.  We have also addressed the particular requirement previously identified by the Administration Committee[5] for temporary wireless access to the parliamentary network in selected temporary Member accommodation in the period following an election, and this is now ready to put in place whenever an election is called. This would involve temporary surface cables and antennae in committee rooms and is therefore a tactical solution which would be installed during a dissolution and removed once all Members have moved into their offices. A more permanent solution would involve further detailed planning as a range of options could involve buildings and furniture disturbance. If the Modernisation Committee proposals are approved this year, detailed planning will commence immediately.

  48.  This year also sees the implementation of mobile computing for Members. The PDA (personal digital assistant) pilot has been completed successfully with 50 Members from both Houses and the business case has been approved for full implementation. This means that any Member who wishes can now request and receive a PDA and approximately 50 PDAs have been provided over the summer recess period. A further 450 devices for both Houses will be available for delivery by the end of the year. PDAs allow Members mobile access to most network functionality, including emails, calendar, tasks, word-processing, spread-sheets, internet access and, of course, mobile telephone calls. A possible development for the future would be to offer access to parliamentary web pages (including Hansard) in small screen format.

  49.  We are currently appraising possible solutions to the problem of poor mobile phone reception in some parts of Portcullis House. This will also affect PDAs—but we expect to resolve the problem by September 2007.

  50.  The redesign of the intranet is intended to improve search and navigation for all users, but it also provides the opportunity to re-group pages dedicated to Members' services in a virtual "Members' Portal", where via the web we would bring together access to all Member services from a single page.

  51.  This would tie in with plans to develop and improve Members' access to financial and other transactional information. This could include, for example, some self-service functionality in Agresso through a web front end, for submission and review of Members' expense claims. A feasibility study is due to begin in April 2007. A separate strand of activity will look at the feasibility of offering other services to Members via the parliamentary intranet, eg Refreshment Department bookings and payments. The Committee's views on priorities in this area would be very helpful.

  52.  The Committee asked about plans for the annunciator system following analogue switch-off. PICT works in this area in collaboration with the Parliamentary Estates Directorate. Provisional plans have been made for a phased changeover starting in 2010. The exact nature and phasing of the changeover is yet to be determined and full consideration will be given to the relationship between the annunciator system and other systems, such as the intranet.

  53.  Information and Communication Technologies are developing rapidly. It would be a high risk for Parliament to rush into adopting every new offering that appears on the market, particularly given the continuing requirement for secure and resilient systems. On the other hand we recognise that Parliament should not and does not wish to lag behind in using technology to manage information and communicate. The creation of PICT provides an opportunity to develop our infrastructure strategically and provide services that respond dynamically to the needs of Parliament.

  54.  We would also like to take this opportunity to consult the Administration Committee about how it would like to be involved in decisions about new developments—whether it would wish to hold regular meetings with PICT management on service levels and priorities, or whether it would prefer to review issues and progress on an annual or half-yearly basis.



1   A voice and/or data network with protected access that offers the features and characteristics of a private network, even though the communications pass over the public network. Back

2   Gartner is a research-based company recognised as a credible and independent commentator on the use of IT in organisations across the world. Back

3   There would be new costs each time that a constituency office changed location. A rough estimate suggests initial installation costs of around £2.2 million and annual rental charges of around £12.5 million. Back

4   The main recommendations arising from the Members survey were:
1. Improvement in helpdesk services, including reduced wait times and optimise service response and process at the first point of contact at the helpdesk.
2. Service engineer customer service at Westminster was generally felt to be satisfactory, but improvements in wireless network access and mobile connection support was requested.
3. PICT should assess the options for increased hours of support to reflect the hours worked by MPs and constituency offices.
4. Improvement in training support, with floor walking support for MPs. WWP courses were felt to be good but needed more publicity.
5. Improved services to constituency offices, with more localised technical support and training and local area network management, and if feasible, wireless networks for more flexible constituency office use.
6. PICT to develop and increase the role of the Customer Services team to be the prime point of contact with MPs and office staff on all IT matters, apart from the day to date operation and use of the Service Desk. 
Back

5   Post-election services. Back


 
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