PWSC(1999-2000)55
For discussion
on 16 June 1999
ITEM FOR PUBLIC WORKS SUBCOMMITTEE
OF FINANCE COMMITTEE
HEAD 703 - BUILDINGS
Law and Order - Police
235LP - Improvements to Police stations and operational facilities
Members are invited to recommend to Finance Committee the upgrading of 235LP to Category A at an estimated cost of $649.2 million in money-of-the-day prices for the physical improvement and security enhancement of facilities at 59 police premises.
PROBLEM
The standard of the facilities currently provided in Police stations and other operational facilities, in particular areas frequently visited by the public, is inadequate in providing quality and effective Police service by today's standards. The level of security within these Police facilities needs to be enhanced.
PROPOSAL
2. The Director of Architectural Services (D Arch S), with the support of the Secretary for Security, proposes to upgrade 235LP to Category A at an estimated cost $649.2 million in money-of-the-day (MOD) prices for the upgrading of facilities at 59 Police premises.
PROJECT SCOPE AND NATURE
3. The proposed improvement project consists of two parts-the upgrading of existing facilities and the installation of automated security systems. The project will cover 59 existing Police facilities including 51 Police Stations, four Police Posts and four Marine Bases. A list of these facilities is at Enclosure 1.
4. Upon completion of the project, a uniform standard of facilities will be adopted throughout the Police Force. In addition, the security of Police premises will be enhanced with the installation of an automated security system. This will enable the release of up to 94 Police officers who are currently performing the duties of Station Guards.
5. The project will be implemented over three years in accordance with the priorities set out in the schedule at Enclosure 2, which has been drawn up taking into account the current physical condition and usage of each facility in question. The improvements work to be undertaken include -
- Upgrading of facilities
- a complete remodelling of the report room and entrance including furnishings, fixtures and fittings. Emphasis will be placed on promoting a more open and user-friendly environment with enhanced quality of services. A barrier-free environment for the disabled will also be incorporated;
- provision of better facilities for the public, e.g. the installation of touch screen computers in the report room to serve as information providers, and the provision of telephones for use by the public;
- remodelling of the ancillary areas of a Police station/facility that are frequently visited by the public in a fashion similar to the report room. Such areas include the Property Office, the Miscellaneous Enquiries Office, the Police Community Relations Office, and the Crime Enquiries Office;
- facilities for staff, including an improved environment for staff meetings and group discussions as well as easier access to reference materials through computers; and
- improvements to changing rooms including the installation of air conditioning and the upgrading of showering/toilet facilities.
- Installation of automated security systems
- the installation of an access control system at all building entrances and exits, and an automated vehicle access/exit control system;
- the installation of video phones to accommodate visitors' access to Police facilities;
- the provision of close circuit television (CCTV) coverage of the compound and vehicular access points;
- the enhancement of the compound lighting; and
- the upgrading of station/facility perimeter fencing, where necessary.
JUSTIFICATIONS
6. The project involves mainly the physical improvement to existing Police facilities. It constitutes part of the Police's on-going service improvement programme.
7. The Force management has adopted a service quality approach since 1995 with a view to bringing about a change in culture and working attitudes within the Police Force. In line with this approach, a Consultancy Support Project was commissioned in October 1997 to examine ways to further improve the quality of services provided to the public. The project initially focused on the delivery of report room services and was later extended to cover the crime office, property office and other areas involving direct contact between the Police and the public. Its main objectives are to meet the service needs and expectations of the public and to facilitate the provision of good quality services to the public, by every member of the Police Force.
8. In early 1998, North Point Police Station was chosen as a pilot station to test a number of customer services initiatives including some physical improvement concepts, with a view to developing a benchmark for the standard of services provided at all Police facilities. The improvements carried out have been very positively received by the local community. These have also been strongly supported by both the Eastern District Fight Crime Committee and the Eastern Provisional District Board.
9. Workshops and focus groups have been held by staff at the North Point Police Station, from which we have received constructive feedback and suggestions. These demonstrate strong support for all the improvement measures in providing a better service to the public including a better Police Station environment. Officers now enjoy greater job satisfaction and express pride and confidence in providing a better and more caring service to the public.
10. Based on this, a service improvement programme incorporating physical modifications, as well as the improvement of service attitude and delivery process has been drawn up. Its main features include -
- the setting up of a reception area in the report room which would facilitate the handling of reports by members of the public in a more efficient and effective manner. A number tag system will be adopted to enable a more efficient prioritization of report room "customers". More serious and complicated cases will be given priority. The time required for handling routine cases can also be reduced by asking those making reports to fill in necessary "proformas" before reaching the reporting counter;
- provision of information on Police procedures, leaflets and application forms at the designated public information area with form-filling counter facilities;
- modification of the physical setting of the report room and other areas which are frequently visited by the public to create a more user-friendly environment. For example, partitions will be installed at the reporting counter to protect the privacy of those making use of the services. Interview rooms will be provided to enable initial enquiries to be conducted in private, thus avoiding embarrassment to victims and witnesses. Dedicated interview facilities for the Crime and Miscellaneous Enquiries Office will be provided at the report room. These will remove the need for officers to interview victims or witnesses in their offices which are not designed for conducting interviews;
- provision of modern and user friendly facilities, such as touch screen computers and telephones, in the report room for use by the public;
- installation of a CCTV system to oversee the situation in the report room at any one time. This has proven to be effective in protecting the interests of the public by providing a record of business conducted in the report room;
- provision of further staff training on customer services in order to improve the manner and response of officers to meet different "customer" needs. All report room staff will be required to attend basic customer service training and to wear personalized name tags;
- streamling the reporting procedures by introducing self-report forms which are specially designed to facilitate the reporting of cases by members of the public and the introduction of reporting by fax; and
- improving the working environment for the staff working in the Police station/operational facility by enhancing meeting and conference facilities and making improvements to changing room facilities.
11. To further examine the effectiveness of the service improvement programme, the North Point pilot project was later expanded to cover Sau Mau Ping and Sha Tin Police Stations. The refurbishment works at these stations were completed in March 1999. In view of the satisfactory results of the pilot scheme, it is now proposed to extend the service improvement programme to other Police stations/operational facilities so that the public can fully benefit from the resulting changes in culture, processes and service attitude in the Police Force.
12. In conjunction with the proposed physical improvement works in Police stations/operational facilities, it is also planned to install an automated security system to monitor and control pedestrian and vehicular access to and from police premises. Such security duties are presently undertaken by Station Guards which are established Police Constable (PC) posts. Pilot schemes to replace Station Guards with automated security systems were conducted at Ngau Tau Kok and Sha Tin Police Stations in 1997. These have subsequently been reviewed. As a result of the review, a total of six PC posts have been released. The review also concluded that the proposal could generate not only staff savings but also strengthen the security of the Police facilities. We therefore propose to implement the proposal Force-wide. To minimize disruption to the public and to ongoing Police operations, the necessary installation works will be conducted as part of the police stations/operational facilities improvement works mentioned above.
FINANCIAL IMPLICATIONS
13. Based on the experience gained from the pilot schemes, we estimate the capital cost of this project to be $649.2 million in MOD prices (see paragraph 15 below), made up as follows -
| $ million
|
|---|
| (a) Building works for internal redecoration and refurbishment | | 154.141
|
| (b) Building services work for
| | 165.112
|
|
The detailed cost breakdown in respect of different categories of facilities is at Enclosure 3.
14. The gross floor area (GFA) of the facilities to be refurbished is 77 330 square meters. The average unit cost of refurbishing these facilities, represented by building and building service costs (i.e. items (a) and (b) of paragraph 13), is $4,128 per square meter at December 1998 prices. It should be noted that this includes considerable trunking and conduits, upgrading of power supplies where required, and the provision of temporary report rooms so that the Police stations/facilities concerned can continue to provide a full operational service during the renovation period. As the details of the project are drawn up to meet the unique operational needs of the Police, there are no identical improvement projects with which we can make a meaningful comparison. However, we consider the unit cost reasonable compared to similar office improvement projects and given the age of some of the buildings involved and the extent of the building services work required.
15. Subject to approval, we will phase the expenditure as follows -
| Year | $ million
(Dec 1998) | Price
adjustment
factor | $ million
(MOD)
|
|---|
| 1999 - 2000 | 44.165 | 1.02625 | 45.341
|
| 2000 - 2001 | 296.408 | 1.06217 | 314.836
|
| 2001 - 2002 | 223.905 | 1.09934 | 246.148
|
| 2002 - 2003 | 37.725 | 1.13782 | 42.924
|
| _______ | | ________
|
| 602.203 | | 649.249
|
| _______ | | ________
|
16. We estimate the additional annually recurrent cost for this project to be $20.718 million, including $12.873 million for the upgrading of facilities and $7.845 million for the automated security systems. These recurrent costs will themselves be offset by the potential saving of the 94 Police officers held on the establishment as Station Guards. We estimate the net recurrent savings generated from this project to be $257,160, made up as follows -
| Net Savings
|
| Savings from the release of 94 PC posts | 20,975,160
|
| Minus the total recurrent costs of the project | (20,718,000)
|
| ________
|
| Net savings | 257,160
|
| ________
|
PUBLIC CONSULTATION
17. Since the early planning stage, the Fight Crime Committee (FCC) has been fully informed and updated on the progress of the service improvement programme and the pilot scheme at North Point Police Station. The latest presentation to the Committee was carried out in March 1998, followed by a guided tour of North Point Police Station. Members of the FCC have given their full support for the project to be implemented as soon as practicable. There has also been close liaison between the Force management and the Eastern Provisional District Board as well as the Eastern District Fight Crime Committee. Both have played an active part in assessing the merits of the procedural and physical changes proposed under the improvement programme. In November 1998, we also briefed the LegCo Panel on Security on the concept behind the proposed project. Members supported the project in principle.
18. We further consulted the LegCo Panel on Security on 10 June 1999. Members raised a number of questions on the project. These and the Administration's responses are set out in Enclosure 4.
ENVIRONMENTAL IMPLICATIONS
19. The project will not cause any long term environmental impact. We have included in the project estimates the cost of implementing suitable mitigation measures to control short-term environmental impacts.
LAND ACQUISITION
20. This project does not require land acquisition.
BACKGROUND INFORMATION
21. We upgraded 235LP to Category B in September 1998. We plan to start the detailed design work in August 1999. Construction works of the first batch of selected stations is due to begin in October 1999. We aim to complete the project by June 2002.
-------------------------
Security Bureau
June 1999
(PWSC0167/WIN6)
Enclosure 1 to PWSC(1999-2000)55
Police facilities to be included in the improvement project
Police stations to be improved
| Hong Kong Island
|
| 1. Central | (District and Divisional. Station)
|
| 2. Waterfront | (Divisional Station)
|
| 3. Western | (District and Divisional Station)
|
| 4. Aberdeen | (Divisional Station)
|
| 5. Stanley | (Sub-divisional Station
|
| 6. Happy Valley | (Divisional Station)
|
| 7. Shau Kei Wan | (Divisional Station)
|
| 8. Chai Wan | (Divisional Station)
|
| Kowloon East
|
| 9. Tseung Kwan O | (Divisional Station)
|
| 10. Wong Tai Sin | (District and Divisional Station)
|
| 11. Tze Wan Shan | (Divisional Station)
|
| 12. Sai Kung | (Divisional Station)
|
| 13. Kwun Tong | (District and Divisional Station)
|
| 14. Ngau Tau Kok | (Divisional Station)
|
| Kowloon West
|
| 15. Mongkok | (Divisional Station)
|
| 16. Tsim Sha Tsui | (Yau Tsim District and Tsim Sha Tsui Divisional Station)
|
| 17. Sham Shui Po | (Divisional Station)
|
| 18. Cheung Sha Wan | (Sham Shui Po District and Cheung Sha Wan Divisional Station)
|
| 19. Shek Kip Mei | (Divisional Station)
|
| 20. Ho Man Tin | (Kowloon City District and Ho Man Tin Divisional Station)
|
| 21. Kowloon City | (Divisional Station)
|
| 22. Hung Hom | (Divisional Station)
|
| New Territories North
|
| 23. Tai Po | (District and Divisional. Station)
|
| 24. Sheung Shui | (Divisional Station)
|
| 25. Tuen Mun | (District and Divisional Station)
|
| 26. Castle Peak | (Divisional Station)
|
| 27. Tai Hing | (Divisional Station)
|
| 28. Yuen Long | (District and Divisional Station)
|
| 29. Tin Shui Wai | (Divisional Station)
|
| 30. Pat Heung | (Divisional Station)
|
| 31. Border | (District Station)
|
| 32. Sha Tau Kok | (Divisional Station)
|
| 33. Ta Kwu Ling | (Divisional Station)
|
| 34. Lok Ma Chau | (Divisional Station)
|
| New Territories South
|
| 35. Ma On Shan | (Divisional Station)
|
| 36. Tsuen Wan | (District and Divisional Station)
|
| 37. Lei Muk Shue | (Divisional Station)
|
| 38. Kwai Tsing | (Kwai Tsing District and Kwai Chung Divisional Station)
|
| 39. Tsing Yi | (Divisional Station)
|
| 40. Tin Sum | (Divisional Station)
|
| 41. Siu Lek Yuen | (Divisional Station)
|
| 42. Lantau North | (Lantau District and Lantau North Divisional Station)
|
| 43. Lantau South | (Divisional Station)
|
| 44. Marine Harbour | (Divisional Station)
|
| 45. Cheung Chau | (Divisional Station)
|
| Operational facilities tobe improved
|
| 46. Marine East | (Eastern Waters District and East Divisional Base)
|
| 47. Marine North | (Divisional Base)
|
| 48. Marine South | (Western Waters District and South Divisional Base)
|
| 49. Marine West | (Divisional Base)
|
| 50. Lamma Island | (Police Post)
|
| 51. Man Kam To | (Border Crossing Post)
|
| 52. Lok Ma Chau | (Border Crossing Post)
|
| 53. Lo Wu | (Border Crossing Post)
|
| Police stations for limited improvement
|
| 54. North Point* | (District and Divisional Station)
|
| 55. Sau Mau Ping* | (District and Divisional Station)
|
| 56. Airport* | (District and Divisional Station)
|
| 57. Sha Tin** | (District and Divisional Station)
|
| 58. Yau Ma Tei# | (District and Divisional Station)
|
| 59. Wanchai# | (District and Divisional Station)
|
* for installing automated security system only - Pilot station or recently built station
** for installing automated security system only - Sha Tin was a pilot station for both the upgrading of facilities and installation of automated security system projects, but its security system needs to be upgraded to the new designs
# limited scope of work as the station is due to be reprovisioned in 2004
(PWSC0167/WIN6)
Enclosure 2 to PWSC(1999-2000)55
The Planned Implementation Schedule
| 1. Western | }
|
| 2. Mongkok | }
|
| 3. Tuen Mun | } Oct 1999 - Apr 2000
|
| 4. Kwai Tsing | }
|
|
(PWSC0167/WIN6)
Enclosure 3 to PWSC(1999-2000)55
Breakdown of the total cost in respect different categories of Police facilities
| | Estimated Cost
(million)
|
|---|
| A. 51 Police Stations
|
- upgrading of facilities*
| 378.753
| - installation of automated security system
128.300
_________
| | | 507.053
| | B. Four Police/Border Crossing Posts (i.e. items 50-53 at Enclosure 1)
| - upgrading of facilities
| 6.922
| installation of automated security system
| 3.400
| | | 10.322
| | C. Four Marine Bases
| - upgrading of facilities
| 20.882
| | (b) installation of automated security system
| 9.200
_______
| | | 30.082
_______
| | Sub-total: | | 547.457
| | 10% Contingency |
| 54.746
________
| | Total: | 602.203
________
|
| |
|
|
|
* Only 47 Police stations are included as in the station improvement works programme as such works have already been completed in the three pilot stations, viz, North Point, Sau Mau Ping and Sha Tin Police Stations, and the Airport Station which is newly built will be excluded.
(PWSC0167/WIN6)
Enclosure 4 to PWSC(1999-2000)55
235LP - Improvements to Police stations and operational facilities
Points raised by Members of the Legco Panel on Security at the meeting of 10 June 1999 with the Administration's responses
| Q1. | Can the project programme be reduced from three years in order to achieve cost savings and bring about more immediate benefit to the community?
|
| A1. | This could be difficult to achieve in operational terms as an increase in the temporary reprovisioning of report rooms could lead to additional disruption to the public and could adversely affect the delivery of services. In addition, such an approach would incur higher administrative costs and additional resources would be required to supervise and co-ordinate the works. Nevertheless, the Administration will explore all possible means to expedite the project within these constraints.
|
| Q2. | With building costs decreasing, why has an inflation price adjustment factor been included at paragraph 15 as well as a 10% contingency? Cannot the inflation allowance be included in the contingency?
|
| A2. | The contingency factor and the price adjustment factor should not be combined. The former is to allow for increases in the real costs of works. This is a project contingency related to acceptable variations in the cost of the works that fall within the scope of the project. The latter is intended to provide for increases in project cost arising from price inflation alone, separate and distinct from any increase in the real cost of works. To combine the two factors would blur this distinction. Movements in civil and construction cost indices are reflected in the price adjustment factors used to derive the MOD estimate of a project. These however are based on the trend growth rate of a composite index over the medium term. Such rates are calculated by the Government Economist and adjusted twice a year to reflect movements in the various construction and engineering indices. They do not reflect short-term movements in the individual indices. This approach is valid in calculating price inflation estimates for works projects where expenditures are spread over a number of consecutive years. The actual project cost will reflect prevailing market conditions at the time of tendering the project.
|
| Q3. | Why not tender each station individually to get more competitive bids by using various contractors?
|
| A3. | This is not considered suitable in view of the need to ensure consistent standards in both design and the use of materials. We could not ensure that the desired corporate image would result from such an approach. In addition, the letting of multiple single contracts would incur unacceptably high contract administration and supervision costs.
|
| Q4. | What are the unit costs compared with other projects?
|
| A4. | A similar project fitting out the Licensing Office of Transport Department at the 4th floor United Centre incurred a unit cost of $4,000 per square metre. This compares favourably with the unit cost for the station improvement project.
|
| Q5. | Why are CCTV cameras not installed in all interview rooms, so that a video record is maintained for all interviews?
|
| A5. | Following a phased expansion of video interview rooms (VIRs) throughout the territory the number of completed and fully operational VIRs had reached 60 by December 1998. To provide the highest degree of geographical and operational coverage, each major divisional police station now houses at least one VIR. In this way, the 60 VIRs currently in existence have the capacity to deal with all projected interviews for cases in the two higher courts ( i.e. the District Courts and the Court of First Instance). They also provide the capability for simultaneous interviewing of multiple suspects in serious cases. The use of VIRs is normally limited to serious cases only but VIRs can be used for any type of interviews (e.g. those with victims ad witnesses) if and when necessary.
|
| Q6. | Could we have a better breakdown of the costs in Paragraph 13, especially items a(ii) and (d)?
|
| A6. | Additional information on the costs of the security-related components has been provided in Paragraph 13 of the PWSC paper.
|
| Q7. | Why can the project not be extended to include detention facilities, in particular the use of CCTV cameras for supervision? Environmental improvements in areas holding suspects are also important.
|
| A7. | There are currently over 560 police cells plus temporary detention facilities in the 64 existing police stations. Detention facilities also exist in other departments. The cost of altering secure facilities such as these would be very high. We also need to take heed of privacy issues. In addition, the scope of such an undertaking would be greater than the station improvement project itself and would take longer to implement. We are actively examining the issue under a separate exercise. |
