PCD 1776 GPS tagging Programme 2025-26

Executive Summary:  

MOPAC’s GPS tagging programme has been running since 2017 focused on reduced reoffending, improving the enforcement of sentences and better protection for victims and the public. Since 2019 the GPS Knife Crime programme has been in place to reduce the risk of violence by those in the programme and the benefits of this programme have been supported by two positive evaluation reports. 

PCD 1604 agreed to extend the GPS knife crime programme until March 2026 and agreed the budget allocation for 2025/26. This decision also included approval to start a new pilot for non-domestic abuse Stalkers, which was successfully launched in December 2024. This decision also approved the use of the Government Digital Marketplace for a new procurement of the GPS tagging and monitoring provider for 2025/26. This procurement process has now taken place, and we have identified the chosen provider, Buddi Ltd.  

This decision seeks approval to award the 2025/26 GPS monitoring contract to Buddi Ltd to the maximum value of £1,170,000 for the initial 12-month term. This contract will include an optional 12-month extension period. 

Recommendation:  

The Deputy Mayor for Policing and Crime is recommended to:   

1. Approve the contract award for the GPS tagging and monitoring provider to Buddi Ltd for a contract with the maximum value of up to £1,170,000. Any spending above the £900,000 allocated budget will be on a pay as you go basis and will only be approved if there is sufficient budget available.    

2. It is recommended that the Director of Commissioning and Partnerships, in consultation with the Chief Finance Officer are granted delegated authority, to sign future documents in relation to this decision, including contracts and variations. Approval of this decision remains with DMPC as per MOPAC’s Scheme of Delegation.  

PART I - NON-CONFIDENTIAL FACTS AND ADVICE TO THE DMPC 

1. Introduction and background  

1. The Police and Crime Plan 2021-25 and the London Knife Crime Strategy contained commitments to pilot the use of GPS tagging with knife crime offenders being released from prison on licence. The MOPAC GPS tagging for knife crime pilot started in February 2019 and since April 2020 has been live in all London boroughs. The pilot, which has now developed into an established programme, provides an important risk management tool for probation practitioners and to date over 1,800 offenders have been given GPS licence conditions as part of this programme. A MOPAC pilot to test the use of GPS tagging with high-risk domestic abuse perpetrators was launched in March 2021, which has now concluded. 

2. Following ministerial approval, a new MOPAC pilot to test the use of GPS tagging with non-domestic abuse stalking perpetrators was launched in December 2024 and is available across all London boroughs. 

3. The aims for the two current pilots are: 

• That GPS data is used to improve the management of the risk posed to the public, children, and known adults. 

• That GPS improves the enforcement of licence conditions and increases deterrence from further offending. 

• Offenders subject to GPS have their thinking and behaviour challenged and positively changed through the use of location data in supervision. 

• That GPS location data is shared appropriately for enhanced crime detection. 

• Best practice learning is developed around how information on these cases can be shared with police, victim/survivor safety agencies and other professionals, within legal boundaries and ICO guidelines. 

4. The evaluation of MOPAC’s GPS pilots is being undertaken by MOPAC Evidence and Insight, using a model that builds on the approach previously employed for the offenders tagged on the Persistent Offender Programme. The interim evaluation report for the GPS for knife crime pilot was published on the MOPAC website in June 2020. In 2021 the final evaluation report for the GPS tagging for Community Sentences pilot was published. Both of these reports detail the value of GPS as a tool to manage risk and offending behaviour and monitor compliance with conditions. 

5. The GPS for Domestic Abuse pilot has also been evaluated by MOPAC Evidence and Insight, with a positive process and performance evaluation published in May 2023 showing benefits for victim protection and risk management. A final process and performance evaluation of the knife crime programme was published in 2024. This also included early impact findings including reoffending and compliance outcomes which demonstrate the positive impact of GPS tagging and the benefits this brings, including reduced reoffending. 

6. Last year PCD 1604 agreed to extend the GPS knife crime programme until March 2026, agreed to launch the new Stalking pilot and agreed the budget allocation for 2025/26. 

7. The existing contract with the electronic monitoring supplier, Buddi Ltd, was procured using the G Cloud 13 Framework from the Crown Commercial Service and now ends on 31st March 2025. 

2. Issues for consideration  

1. This decision seeks approval for the contract award for GPS tagging and monitoring to be awarded to Buddi Ltd. Procurement has taken place using the G Cloud 14 Framework from the Crown Commercial Service and identified Buddi Ltd as the only eligible supplier meeting the required criteria. The maximum contract value for the initial 12 month period is £1.17m. 

3. Financial Comments  

1. The budget for GPS tagging in 2025/26 as outlined and agreed in PCD 1604 is £900,000 for tags, monitoring, lost tags and missed appointments. 

2. The maximum contract value with Buddi Ltd for 2025/26 will be up to £1,170,000, and this will be funded by the allocated budget of £900,000 in C&P and any additional carry forward that is subsequently agreed via decision. 

3. Any spending above the £900,000 allocated budget will be on a pay as you go basis and will only be approved if there is sufficient budget available.  

4. Finance have carried out a financial due diligence check on Buddi Ltd. The check assessed the organisation as very low risk and did not highlight any negative financial issues to consider. Any financial risks are also minimised by paying in arrears upon delivery of the service. 

4. Legal Comments 

1. Section 62(2) of the Criminal Justice and Court Services Act 2000 (the 2000 Act) provides that released prisoners may be subject to licence conditions which include electronic monitoring conditions. Sections 62(2B) of the 2000 Act provides that the person who is to be made responsible for the monitoring is of a description specified in an order made by the Secretary of State. The Electronic Monitoring (Responsible Persons) Order 2018 provides a description of the persons who may be made responsible for the monitoring of individuals subject to electronic monitoring whilst on licence. Further organisations, in addition to those listed below, could be added to this list via the parliamentary statutory instrument process, depending on the outcome of procurement processes and whether this addition received support from central government and received parliamentary consent. Included in those organisations who can be responsible for the electronic monitoring of those on licence are:  

• Buddi Limited, Talbot House, 17 Church Street, Rickmansworth, Hertfordshire, WD3 1DE (Company Number 05308826);  

2. MOPAC’s general powers are set out in the Police Reform and Social Responsibility Act 2011 (the 2011 Act). Section 3(6) of the 2011 Act provides that MOPAC must “secure the maintenance of the metropolitan police service and secure that the metropolitan police service is efficient and effective.” This is a broad power and the extension of the pilot is aimed at deterring further offending, improving rehabilitation and enhancing crime detection all of which would enable the efficiency and effectiveness of the police service. In addition, under Schedule 3, paragraph 7, MOPAC has wide incidental powers to “do anything which is calculated to facilitate, or is conducive or incidental to, the exercise of the functions of the Office.” Paragraph 7(2) (a) provides that this includes entering into contracts and other agreements.  

3. Section 143 (1) of the Anti-social Behaviour, Crime and Policing Act 2014 provides an express power for MOPAC, as a local policing body, to provide or arrange for the provision of (a) services that in the opinion of the local policing body will secure, or contribute to securing, crime and disorder reduction in the body's area and (b) services “intended by the local policing body to help victims or witnesses of, or other persons affected by, offences and anti-social behaviour.”  

4. The Mayor's Office for Policing Crime is a contracting authority as defined in the Public Contracts Regulations 2015 ("the Regulations").  All awards of public contracts for goods and/or services valued at £181,302 or above will be procured in accordance with the Regulations.  

5. Commercial Issues  

1. The original procurement for this service (as agreed in PCD 1405) took place using the government Digital Marketplace (G Cloud 13), as did the extension (as agreed in PCD 1604).  

2. To provide GPS tagging and monitoring provision from 1st April 2025 until 31st March 2026, a new procurement has now taken place using the government Digital Marketplace (G-Cloud 14). The result of this procurement is this decision to award the contract to Buddi Ltd. The contract used for this service will be the standard Digital Marketplace Crown Commercial template as required under G-Cloud for a period of 12 months.  

3. There is an optional single extension period of up to 12 months for this contract, which would take the maximum contract value of up to £2.24m. 

4. This procurement has taken account and complies with the GLA Group’s Responsible Procurement (RP) Policy. As with past MOPAC contracts with GPS suppliers, the tags will be leased rather than purchased to increase the environmental sustainability of the pilot.  

5. The actions proposed can be taken in compliance with procurement legislation and MOPAC’s Contract Regulations.  

6. Public Health Approach  

1. This pilot has the support of the Violence Reduction Unit as it seeks to test whether GPS can improve the management of the risk posed by prisoners being released following a conviction for knife or non-domestic abuse stalking related offences. Thus far in the pilot, GPS has been used not only to increase deterrence, enforcement and restrictive conditions to protect known victims and the public, but also to support engagement with relevant services and to specifically challenge individuals to change their lifestyle to move away from behaviour associated with increased risk of violence. 

7. GDPR and Data Privacy  

1. For the purposes of this project, MOPAC are a joint data controller with HMPPS. 

2. MOPAC is a joint controller for the purposes of delivering an evaluation of the programme. The evaluation will require access to personally identifiable information (PII). Data will include standard PII covered under Article 6, special category data covered under Article 9 and criminal conviction and/or offence data under Article 10. 

3. MOPAC will adhere to the Data Protection Act (DPA) 2018 and ensure that any organisations who are commissioned to do work with or on behalf of MOPAC are fully compliant with the policy and understand their GDPR responsibilities.   

4. A Data Protection Impact Assessment (DPIA) has been produced to identify and minimise risks to data subjects. This document has been updated to reflect the extension of the pilot and the inclusion of stalking perpetrators. 

5. MOPAC also receives, processes and uses personally identifiable information for professional contacts in relation to this project. This is required for the management of the project and is processed under the lawful bass of public task, in the exercise of our official authority.  

6. All providers funded by MOPAC are required to comply with the GDPR and Data Protection Act 2018 

7. It is a requirement of the G-Cloud procurement process for the GPS monitoring provider to store and process all dates within the UK. 

8. Equality Comments 

1. MOPAC is required to comply with the public sector equality duty set out in section 149(1) of the Equality Act 2010. This requires MOPAC to have due regard to the need to eliminate discrimination, advance equality of opportunity and foster good relations by reference to people with protected characteristics. The protected characteristics are: age, disability, gender reassignment, marriage and civil partnership, pregnancy and maternity, race, religion or belief, sex and sexual orientation. 

2. The extent to which individuals from the above groups are included in the pilot is monitored through two Equality Impact Assessment documents, one for each pilot, which are reviewed regularly to ensure that any disproportionality can be addressed. The decision as to which cases are included is taken by the allocated Probation Practitioners, based on the assessed risk and need of each case. Clear guidance has already been given to staff about the criteria for assessing cases and further guidance and training continues to be provided to mitigate any disproportionate impact and examine the causes when this takes place. 

3. There is ongoing work to better understand and address ethnic disproportionality in the GPS knife crime programme as part of a rapid review and updated data and analysis on this subject has been published on the MOPAC website. Ongoing work on this issue will continue throughout 2025/26. 

9. Background/supporting papers 

• Appendix 1 PCD 1604 – Extension of GPS Tagging 2024-26