* The first stage of the project has been to review the current practices and procedures.The Public Carnage Office (PCO) has long established procedures in place for testing the Knowledge of London skills of all candidates applying to become licensed London taxi drivers. In order to determine the requirements, therefore, which need to be specified for an improved knowledge of London testing system, the project team undertook a through and detailed examination of the existing system with the aim of identifying: * The strengths of the existing system * The weaknesses of the existing system * The effectiveness of service delivery * Options for delivering an improved service in the future

* This review was carried out between March and June 2000 and the factual results of the review are set out in the main body of the full End of Stage report. In preparing the report, the project team reviewed the CIS study reports and consulted existing Knowledge of London Examiners and the administrative support staff. The team also reviewed and analysed historical management information data and, where not available, researched and compiled additional management information to inform the assessment of strengths weaknesses and the identification for improvement .

*The main strength of the existing system is perhaps best measured by the deserved, and internationally renowned reputation of the London taxi driver in terms of professionalism, safety, dependability and extensive knowledge of London’s geography and places of interest.

* Whilst this reputation cannot solely be attributed to the existing standards applied to the Knowledge of London testing system (as ‘the Knowledge' represents only one component of the ' fit and proper ' person test applied by the PCO), it is nevertheless , a major component which ultimately determin whether an applicant becomes licensed.

It also has be recognised that, whilst ‘the knowledge’ is primarily a test of an applicant’s topographical skills and knowledge, completing ‘the Knowledge’ successfully provides a test of the individuals character, commitment and motivation to become a taxi driver. At the point of licensing, the existing system imbues a justifiable sense of pride and achievement in the individual.

* The existing Knowledge of London test is divided into 6 distinct stages which are:

* Stage 1 - introductory talk * Stage 2 - written test (initial assessment) * Stage 3- appearances (basic level)

* Stage 4 - appearances (intermediate level) * Stage 5 - appearances (advanced level) * Stage 6 - appearances (finals - suburbs)

The primary strengths of each of these stages are considered to be:

The talk is given by Knowledge examiners who have themselves passed ‘the knowledge’ and, in many cases, driven a cab enabling them to speak from first-hand experience. The talk provides early, personal contact between the PCO and the applicant. Candidates are given a clear indication of the cope and range of knowledge they will be expected to acquire. It provides an unequivoical message as to the level of personal commitment needed, together with advice about he approach, equipment required and where they can obtain help and assistance.

The written test indicates whether a candidate is sufficiently well prepared for the rigour of ‘one-one’ assessment. It also helps to ensure that the less able do not consume PCO resources which can be more effectively invested in the better qualified.

Personal appearances conducted by well-qualified personnel to ensure the maintenance of consistently high standards. Personal examination allows examiners to adapt questions depending on an individuals response, probe particular areas of topographical weakness, and advise candidates about further study. Candidates are allocated on a random basis to ensure they are tested by a range of examiners at each stage thus ensuring integrity and consistency.

* It must be accepted that , in exposing any area of business activity to close scruting or review, weaknesses in current practices or procedures are likly to be identified. The existing knowledge of london testing system is no different in this respect and the fist stage of this project has identified a number of perceived weaknesses which the PCO management will consider and seek to action.

* From the research and analysis undertaken, the primary weakness of the existing system is considered to be its dependence on specialist PCO personnel ( althogh from a different perspective, this can also be viewed as a strength ) . This weakness imposes a number of specific constraints on the options available to the PCO for delivering an effective service to knowledge of London applicants and these issues are reviewed in more detail in section 4 ( The effectiveness of sevice delivery).

* Leaving aside the PCO resource issues, the primary weakness with the existing system were considered to be:

The current waiting time for applicants to attend an initial talk (8 weeks from date of application)

* A lack of consistency of the talk in terms of content and delivery

* Some inconsistencies between the information given at the talk and the supporting documentation provided (i.e. the Blue Book)

* The waiting time for applicants to attend a written test (currently 7 months from the date they apply to sit)

*The waiting time for applicants to attend a re-sit (currently 5 months from date of previous test)

* Candidates finish the test well within the time allotted

* From detailed analysis there appears to be some disparity between the ‘degree of difficulty’ of the tests used

* For each appearance, the examiner has access to the candidates’ previous marks and previous examiners’ comments (whilst this information can be used to benefit the candidate, it may also place examiners in a vulnerable position, leaving them open to cornplaints of undue influence by other examiners’ comments and markings (vis a vis forThecoming Human Rights legislation)

* Subjective assessment of ‘other skills’ (whilst there is no evidence to show that a candidate’s mark is influenced by their conduct, attitude and demeanour at an appearance, examiners are vulnerable to criticisms that such factors may have influenced their mark, and thus the speed with which the candidate can pass through the system)

*The disproportionate length of time to become licensed as a ‘Suburban’ driver (‘Suburban’ candidates are required to learn considerably fewer ‘runs’ than an ‘All London’ applicant (60 runs as opposed to 400)

* No formal, objective examination’ of’additional skills’ areas such as customer care, disability and racial awareness (other than a driving test which includes a test of cornpetency in handling a taxi, the ability to use wheelchair ramps and other facilities for those with disabilities).

4. The effectiveness of service delivery

* The delivery of the existing system, from the PCO perspective, is wholly dependent on the availability of human resources; both specialists ( knowledge of London Examiners) and administrative support personnel. The effectiveness of the delivery of the existing system, therefor, is influenced by a number of factors which include:

* The ability to recruit and retain suitably qualified personnel

* Regular, contracted abtractions from duty for all qualified personnel to undrtake personal appearances.

* Availability of accomodation at Penton Street to conduct introdyctory talks , writen examinations and prsonal appearances.

* It is recognised that the existing system operates on finite resorces which. over recent years, has not been able to keep pace with demand. When the demand outstrips the PCO's capacity there is a consequential impact on the waiting times for candidates between each stage.

* In addition, because the PCO is located at a single central location, all candidates are required to appear at Penton Street at pre-arranged times alloocated by the PCO. The exising delivery of the service, therefor is dictated by the procedures adopted by the PCO and is not necessarily sympathetic,or sufficiently flexible, to adapt to the requirements or lifestyle commitments of the individual.

* Whilst the pace and speed at which applicants are able to pass through the ‘Knowledge’ process is directly influenced by the time, ability and commitment an applicant is able to give, it is also true that the overall time taken to become licensed is influenced by the constraints imposed by the current system.

‘Taking account of the perceived weaknesses outlined in section 3, there are a number of specific areas which the PCO can.address immediately with the objective of improving the delivery of the existing system. In addressing these issues, the PCO recognise that 'improvements’ in one area can adversely impact on other areas and,consequently, may be inappropriate for adoption until other aspects have been addressed.

* The above issues wili be addressed by the PCO management team separate from, and in parallel with, the activities being taken forward by the project team.The aims for improving existing delivery will include:

* Reducing waiting time from acceptance of application to initial talk (currently 8 weeks)

* Revise regular review and management of waiting times

* Ensuring consistency in terms of content and delivery

* Ensuring consistency between information given at the initial talk and supporting documentation given to applicants (ie ‘Blue Book)

* Consider providing more information about the role of knowledge schools.

* Reducing the waiting time (currently 7 months) from application to exam date

* Inform candidates of date, of first appearance (if successful)

* Reviewing length of time of each exam (with the possibility of allowing 2per day)

* Reviewing the management and allocation of re-sits (current waiting time 5 months)

*Reviewing the range of written tests and consistency in terms of standards and of difficulty

* Regular reviews existing timescales between appearaces at each stage

* Revise the review and monitoring on a a regular basis of the number of grades beig awarding at stages 3, 4 and 5

* Asses the appropriatness of the documentation made available to examiners, for each candidates' appearance

* Review the allocation of appearances to 'suburban' applicants.

* This review has re-inforced the work undertaken and provided a sound basis for progressing the project. It has identified clearly the constraints and limitations of the Knowledge of London examination system and confirmed the need to seek to improve the effectiveness and efficiency of future delivery.

* Now is the appropriate point in the project to seek input from HCULC representatives in order to move the project forward in an effective way. in takeing the project forward, it is proposed that the project team, in consultaion with the 'users' undertake the following activities:

* Define the requirements for taxi driver topographical skills (‘All London’ and ‘Suburban’).Which will include, The range of skills Assessment (e.g. method, scope, means, who by) Verification (e.g..method, scope, means, who by)

* Define the ‘additional skills requirements, including for example- Driving skill- Knowledge of relevant regulations- Customer care- Disability/racial awareness- Conflict handling

* Consider service delivery options- PCO responsibilities- Use of external assessment centres- Use of IT- based self assessment- Use of IT-based testing- Boundary between IT testing and ‘one to one'

A.J. Matthews

Project Leaders

At present the PCO has pages on the Metropolitan Police Service web sites www. met. police. uk

Search in that site’s index for “Taxis, Public Carriage Office” or “Public Carriage Office”.