Transparency data

March 2026: Emergency Services Mobile Communications Programme (ESMCP) Accounting Officer Memorandum

Updated 22 May 2026

March 2026

It is normal practice for Accounting Officers to scrutinise significant policy proposals or plans to start or vary major projects and then assess whether they measure up to the standards set out in Managing Public Money. From April 2017, the government has committed to make a summary of the key points from these assessments available to Parliament when an Accounting Officer has agreed an assessment of projects within the Government Major Projects Portfolio (GMPP).

Background to Programme

The Emergency Services Mobile Communications Programme (ESMCP) is delivering the Emergency Service Network (ESN), replacing the ageing Airwave network with a modern commercial 4G solution. ESN is jointly funded by the Home Office, Department of Health & Social Care, Ministry of Housing, Communities and Local Governments, the Scottish and Welsh Governments. ESMCP has two principal contracts, Mobile and User Services, which were awarded to EE/BT and IBM respectively, in late 2024. The programme’s Integrated Programme Plan confirms ESN will reach ‘Full Voice Service Ready’ by March 2028, enabling emergency services to begin transitioning from Airwave.

Assessment against the Accounting Officer standards

Regularity

Our programme’s procurement approach does not require new or amended legislation to progress. ESMCP continues to operate within its funding envelopes and undergoes regular InvestCo oversight, fully aligned with the principles and controls set out in Managing Public Money and the HMT Green Book. Through the 2025 Spending Review, the Home Office and Funding Sponsor Bodies have confirmed the resource allocation to ensure the programme’s critical path activities are funded to enable successful delivery.

The updated PBC was approved by Home Office InvestCo on 18 December 2025, which includes 2 years of funding to March 2028, and was followed by HMT & CST approvals in early 2026. On this basis, I consider ESMCP to conform to the Regularity standard.

Propriety

The Public Accounts Committee  reported on 14 July 2023 that although reliable, Airwave is expensive, lacks data services, and is becoming obsolete.  The Independent Assurance Panel also found that Airwave requires significant ongoing investment to replace obsolete components and maintain infrastructure.

The programme has made strong progress by engaging stakeholders and assurance bodies like the National Audit Office (NAO) and Government Internal Audit Agency (GIAA) and responding to their recommendations. It follows established governance for PBC approval and risk management, adhering to the National Infrastructure Service Transformation Authority (NISTA) led, gateway review process. Gate 0 took place, 24–28 November 2025, where the programme received an AMBER rating. ESMCP is delivering ESN in line with Managing Public Money, meeting public safety expectations. The MS contract will extend 4G coverage to 17,275 km of roads, enabling 999 calls in these areas, and delivers broader coverage than Airwave. ESMCP aligns to missions; ‘Safer Streets’ and ‘An NHS Fit for the Future’ with “timely access to care”. On this basis, I consider ESMCP to meet the Propriety standard.

Value for Money

The PBC confirms that delivering ESN offers better value for money than retaining Airwave, with a significant positive Net Present Social Value versus the baseline. The strategic case emphasises faster, higher‑quality 999 service and the higher ongoing costs of the baseline TETRA system. The monetised benefits include ESN 999‑call connectivity for Police and Fire across GB and for Ambulance in England, with non‑monetised benefits for 27 national and 300+ sharer organisations.

Uncertainty has reduced following finalisation of contracts and agreement to extend Airwave to December 2029. The programme is monitoring and managing risks around delivery milestones and future contracts. On this basis, I consider ESMCP to meet the Value for Money standard.

Feasibility

Many countries are adopting 4G/5G solutions for emergency communications, and strong technical progress since the 2019 reset has created high delivery confidence in ESN. Risk assessment is fully assured, using sensitivity analysis, QRA and OB based on programme-identified risks and HMT Green Book methodology. ESMCP is assured by the Cabinet Office, HMT, NAO, the GIAA and Home Office‑led reviews, with governance ensuring the programme remains within agreed performance, spend and legislative parameters. The Emergency Services - through National Police Chiefs’ Council (NPCC), National Fire Chiefs’ Council (NFCC) and Association of Ambulance Chief Executives (AACE) - provide assurance on technical viability and lead transition planning. On this basis, I consider ESMCP to meet the Feasibility standard.

Conclusion

As the Accounting Officer for the Home Office, I have considered this assessment of the Emergency Services Mobile Communications Programme and approved it on 04 March 2026.

I have prepared this document to set out the key points which informed my decision. If any of these factors change materially during the lifetime of this programme, I undertake to prepare a revised version, setting out my assessment of them.

This document will be published on the government’s website (GOV.UK). Copies will be deposited in the Library of the House of Commons, and sent to the Comptroller and Auditor General, Treasury Officer of Accounts and Chair of the Public Accounts Committee.

Simon Ridley CB

Home Office Acting Permanent Secretary and Principal Accounting Officer for ESMCP

Date: 04 March 2026