"... it wasn't supposed to be as efficient, it was supposed to be cheaper. ..."
The NPAS concept was originally touted to the then Police Authorities and Chief Constables, as being "More effective ( not efficient ), and at a reduced cost".
When, and rightly so, questions were asked to quantify the improvements in Effectiveness, and the reductions in cost, which they ( NPAS ) could not answer, and Forces became reluctant to sign up for a Service with such unknowns,leading to delays in implementation, the Home Office Minister of the Day ( Nick Herbert ) got his BIG Rubber Stamp out, and ORDERED all Forces to comply - and sign up to NPAS.
From that moment on (IMHO ) the concept was doomed - it no longer mattered whether the new Service would achieve its Aims & Objectives to be more Effective ( or more effficient ) and cost less,because everyone HAD to join in - regardless !
Coconutty