1.14 Our examination focused primarily on events at the Agency from late 1998. In particular, we looked at:
■ the reasons for the problems (Part 2); and
■ the Agency's response once the problems emerged (Part 3).
This report is based on the results of interviews with Agency staff and interested parties, scrutiny of documentation kept by the Agency and analysis of performance data. Appendix 2 provides further details of the study methodology.
1.15 We last examined the work of the Agency in our 1993 report on "Manpower Planning in the Home Office: The Passport Agency and the Nationality Division" (HC585, Session 1992-93). That report followed up recommendations made by the Committee of Public Accounts in its report on "Manpower Planning in the Civil Service" (39th Report, Session 1988-89) and our previous report on "Manpower Planning in the Civil Service" (HC398, Session 1988-89). A summary of the Committee's conclusions, which focused on the forecasting of demand for passports, manpower planning, target setting and difficulties associated with the introduction of a new computer system, is at Appendix 3 together with the Government's response and our subsequent report.
1.16 In 1989, the Agency had experienced difficulties when it computerised some of its clerical procedures. On that occasion, the Agency had implemented the new system in its Liverpool office despite initial problems and lower productivity in its pilot office, Glasgow. There were severe backlogs of passport applications and deteriorating relations with staff that culminated in industrial action. A subsequent report by Coopers and Lybrand (extracts shown at Appendix 4), commissioned by the Home Office, concluded that the Agency had been optimistic to press ahead with implementation before problems had been resolved; noted that there were inadequate contingency arrangements to deal with a surge in applications; emphasised that computer-based systems must not impede their users; and concluded that more might have been done to manage risks better within resource constraints.