Supplementary written evidence submitted
by the Home Office
At the Welsh Affairs Committee evidence session into
the future of the Newport passport office, held on 10 November,
I undertook to write to you providing additional background documentation
and information on a range of issues; specifically:
- Details of any meetings between the Identity
and Passport Service (IPS) and the Public and Commercial Services
(PCS) union ahead of the formal consultation and release of the
Direction of Travel document referred to by PCS;
- The claim that IPS will deliver no savings as
a result of closing Newport application processing centre or introducing
new passport application systems (this claim was made with
reference to a conversation between the PCS and an IPS manager—Louise
Horton);
- Information on the provision of Welsh language
services in the Equalities Impact Assessment;
- Information on the number of passport applications
which are withdrawn once the customer is advised that an identity
assurance interview is required, and the number of detected frauds;
and
- My level of confidence that 30-45 jobs are sufficient
to maintain customer services in Newport.
This letter sets out my detailed response to these
points and I have enclosed copies of all relevant documents.
IPS MEETINGS WITH
PCS
As I and the Chief Executive of IPS, Sarah Rapson,
made clear to the Committee, IPS has been talking to the PCS about
the need to restructure passport operations for some time. These
discussions have been on an informal basis and have allowed the
union to shape IPS's proposals in advance of any formal, time-limited
consultation.
IPS senior managers met with PCS representatives
on 20 and 27 July, 26 and 31 August, and 7, 14 and 28 September.
During these meetings, PCS were asked to comment on the specific
criteria used to assess which application processing centre should
close, were shown details of the developing analysis and were
informed of IPS's plan to make a full announcement on the 14 October.
I do not recognise the claim made by PCS that IPS's
proposals came as a "bolt from the blue". The minutes
of 28 September meeting, which I have provided at Appendix 1,
clearly show that PCS was engaged well in advance of our planned
announcement; indeed they had requested that IPS staff be given
time off to discuss the proposals with PCS representatives.
It was during the meeting on 26 August that IPS officials
shared the Direction of Travel document of which the Committee
has requested a copy. This document, correctly titled "Application
Processing Network Analysis", is an informal document compiled
by a junior manager which sets out their initial thinking. It
is not an options paper, it did not inform IPS's further analysis,
no decisions were made based on it, neither I nor the IPS Chief
Executive received a copy and it did not play any part in the
recommendations that were put to me or the IPS Chief Executive.
It was shown to PCS in August as nothing more than a working draft
which illustrated some of the thinking and considerations that
junior managers had been developing—it is clearly marked
"draft Restricted".
I have already released in full to PCS and
the Committee the final methodology, data, analysis and conclusions
the IPS Management Board used to make their recommendation to
me of 13 September. This is the authoritative assessment used
to determine the Newport proposal which takes into account a range
of additional factors and the most up to date data.
I do not believe that releasing this document serves
any constructive purpose. Nevertheless, on 10 November IPS provided
PCS with a copy in good faith as part of their commitment to a
transparent and open consultation. I have also included a copy
at Appendix 2 as requested by the Committee. I trust you will
bear in mind the points I have made when you review it.
NEWPORT AND
PASSPORT APPLICATION
SYSTEM SAVINGS
The Committee also asked for clarification as to
whether closing the Newport office would lead to any savings for
IPS, and this was specifically linked to a claim that IPS's plans
to upgrade its online services now meant that no savings could
be made.
As I have outlined, IPS is in the process of replacing
its current passport application software with a newer, more robust
system provided by Computer Sciences Corporation (CSC). I can
confirm that the introduction of this new passport application
system will deliver savings. IPS has renegotiated its contract
with CSC over the past two months and the new contract represents
a reduction in the contract value of £94.5 million and a
net reduction in the cost of services to IPS of £17.6 million
over the lifetime of the contract. The additional functionality
provided by this new system will allow IPS to change the way customer
applications and telephone queries are handled and deliver more
services online; which together will result in productivity gains
equivalent to 129 Full-Time Equivalents (FTE).
With regard to the specific proposal to close Newport,
IPS estimates that this will save £24 million by 2015. Added
to the £26 million IPS will save through changes to its Interview
Office Network, the Agency estimates that a total £50 million
saving will be achieved by 2015.
EQUALITY IMPACT
ASSESSMENT
The Equality Impact Assessment (EIA) on the proposed
closure of the Newport Office is a draft document that will not
be completed until formal consultation has been concluded. IPS
has shared the draft EIA with PCS as part of meaningful consultation,
to allow PCS to contribute to the development of the EIA. As well
as helping public bodies meet their statutory duties on equality,
the EIA provides important checks and balances in deciding between
policy options.
The reference highlighted by the Committee, specifically
whether the Welsh language provision can be removed, is contained
in section 4 of the EIA. This section reflects potential impacts
that have or may be identified through stakeholder engagement
and offers potential mitigations for or against the identified
impacts. Therefore, the reference regarding Welsh language services
and in particular the potential processing of these applications
in other Regional Offices has been identified as an impact, which
requires IPS to consider what mitigation it can offer. IPS has
never considered removing Welsh language services and this will,
of course, be reflected in the final EIA.
INTERVIEW CANCELLATIONS
As I said in my evidence to the Committee, the number
of identity assurance interviews that are booked where the applicant
fails to attend is already a matter of public record. Several
Parliamentary Questions have been asked on this topic including:
Parliamentary Question 313501 (which I asked) and House of Lords
Questions 2145 and 2507.
In summary, between January 2008 and September 2010,
a total of 3,545 passport applications were withdrawn once the
applicant learnt of the requirement for an interview. Of these,
352 were applications dealt with by the Newport Regional Office.
Over the same period, five applications were refused
as a direct result of a confirmation of identity interview; one
in 2008, two in 2009 and two in 2010.
CUSTOMER SERVICE
CENTRE JOBS
You also asked for further information on the provision
of counter services in the new Customer Service Centre. Based
on the experience gained in Belfast and Glasgow, IPS estimates
that a total of 24.3 Full-Time Equivalents (FTE) will be required
to provide the existing levels of counter service for approximately
50,000 applicants per year and up to 10,000 identity assurance
interviews. A further 7.5 FTE will be needed to provide application
processing, examination and printing of premium (same day) passports.
This results in a total requirement of 31.9 FTE which,
on a 1:1 basis, would result in 32 people being employed in the
Customer Service Centre. This is the basis for IPS's lower estimate.
However, given that the current Newport office employs around
30% part-time workers, it is sensible to assume that these 31.9
FTE will represent a higher number of staff. Using the current
ratio, 31.9 FTE would equate to around 41 staff. IPS then included
a small amount of headroom (up to four additional jobs) to allow
for any changes or additions that may arise as part of the ongoing
consultation with the Trade Unions. This resulted in the range
quoted to the Committee of between 30 and 45 jobs.
I hope this letter answers all the specific points
raised by the Committee and I look forward to receiving a copy
of the Committee's report.
I am copying this letter to members of the Committee,
the IPS Chief Executive and the Public and Commercial Services
Union.
Damian Green MP
Minister of State for Immigration
November 2010
APPENDIX 1
MINUTES OF 28 SEPTEMBER 2010 IPS-PCS MEETING
Names of individuals present at this meeting
have been redacted.
[IPS] refers to an IPS official; [PCS] refers to a PCS representative.
PCS Informal Consultation Meeting
28 September 2010
1. INTRODUCTIONS
Management side: [NAMES
REDACTED]
PCS: [NAMES REDACTED]
2. UPDATE ON
MEETINGS WITH
MINISTER
[IPS] stated that he was
looking for two specific actions from the meeting.
- 1. An agreement from PCS about working together
on Communications.
- 2. An agreement from PCS to work together
to mitigate against any adverse impact on our people with compulsory
redundancy as a last resort.
[PCS] replied that:
- 1. PCS would be happy to enter into an agreement
to share communications and provide advance notice of these communications
on both sides. However, it was unlikely that PCS could agree to
joint communications.
- 2. An agreement on Redundancy avoidance should
be linked to the Cabinet Office protocols and that this issue
is better discussed during the formal consultation.
[IPS] discussed the meetings
with the Minister and provided an update regarding the current
progress of the submission. [IPS] stated that the Minister
understood the IPS issues and was equally concerned about the
impact on staff, quality of service and retaining our hard earned
reputation. The Minister has vigorously questioned the recommendations
and is minded to accept the proposal to close Newport and retain
23 ION Offices along with a peripatetic model and VIS. [IPS]
also explained that the Minister also wished to explore a counter
provision in Newport.
[IPS] then stated that
communications were being planned on that basis with an anticipated
release date of 14 October.
[PCS] outlined the PCS
position on job cuts and that their red lines may have to be redrawn
once the national PCS position had been clarified.
Action point: [PCS]
also requested a copy of the Ministerial submission and hard data
prior to formal consultation beginning, which was agreed.
3. ANNOUNCEMENT
PLANNING
[IPS] shared the outline
communications plan and reiterated the target date of 14 October.
She also explained that the Minister needed to confirm this, which
would be conveyed to PCS once known. [IPS] explained that
IPS would need to shut off interviews and counter slots for 14
October, which would be done later in the week. PYA staff will
be sent recorded letters and invited to attend briefings in their
Regional Office. [IPS] explained that it is intended to
brief all operations staff at the same time and that this will
be timed so that staff are being told simultaneously along with
the Minister making a statement to Parliament. All announcements
will be scripted and the affected offices will have contact with
an ED or the CEO. All staff briefings will be supported by an
HR Business Partner.
Action point: [PCS]
requested time off to be given to staff to discuss the announcement
with PCS, which Management agreed to take away and consider.
Action point: It was agreed
to share the Leadership Forum briefing regarding the shutting
down of bookings with PCS.
Action point: It was agreed
to share advanced copies of communications and briefings with
PCS ahead of 14 October.
4. ION PROPOSALS
[IPS] discussed issues
regarding two pieces of work, which were the restructuring of
ION, particularly around the 23 locations, the peripatetic options
and VIS. [IPS] also discussed the creation of the Customer
Service Centres too.
[PCS] expressed PCS concerns
regarding JEGS, T&S, peripatetic options, sharing of premises
with OGDs and other Public Sector sites and potential equal pay
issues.
Action point: [IPS]
to arrange a meeting between [IPS] and PCS.
Action point: [IPS]
to review previous Customer Service Centre communications and
recommunicate as appropriate.
5. PREPARING
FOR FORMAL
CONSULTATION
Formal consultation would begin with PCS on Tuesday
19 October with the regular Tuesday meetings forming the spine
of the consultation with additional meetings as necessary. [IPS]
would also act as a coordinator for Operations.
[IPS] explained that there
were three distinct projects going on as part of an overarching
restructuring programme of work. The projects are:
- 1. Restructuring.
- 2. Customer Service Network.
- 3. Application Processing Network.
6. AOB
Action point: [IPS]
to respond to GRO issue.
Action point: [IPS]
to arrange meetings over pay.
[IPS] advised PCS that
Home Office will be consulting with HOTUS in the next couple of
days regarding the new policy on redundancy and redeployment.
APPENDIX 2
APPLICATION PROCESSING NETWORK ANALYSIS
APPENDIX 3
CURRENT & PLANNED OPERATIONAL EFFICIENCIES
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