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DEC 2001
4.
MODERNISING GOVERNMENT - THE KEY ELEMENTS
4.1 In this section we review each chapter of the White
Paper. We include observations which may be of assistance in bringing
forward some course corrections.
POLICY MAKING
4.2 The reform agenda presented in this chapter is
basically sound and in line with the most advanced contemporary reforms in
other countries.
Observations
4.2.1 We did not see sufficient of the policy-making
process in action in Departments to offer a judgement of how far the Civil
Service has espoused the principles in this chapter. We can say that the
principles appear well-known, there is agreement with them and there is
evidence of increasing effort to improve performance.
- The "Big Picture"
4.2.2 The White Paper, particularly this chapter, talks
about the need to focus on "the big picture". However, global
issues, international trends, or even the European Union were almost never
mentioned in the interviews we conducted. It left us wondering why the
expertise in the European Secretariat and the international comparisons
made by the PIU appear to have penetrated so little. We came upon no
evidence of new efforts to join up with opposite numbers in Europe, to
understand the agenda of others and to help shape thinking in Europe in
the way the Prime Minister set out in his Islington speech in October
1998.
2. Forward looking and
evidence-based
4.2.3 To ensure that policy work is forward looking
requires a clearer distinction between policy research and policy
formulation. Policy research should be focussed on the mid to long-term.
It can take years to develop the database and the time series needed to
support policy analysis and policy formulation. Policy formulation
operates under different time constraints. Frequently, it responds to
emerging crises or to the need to seize opportunities as they occur. It
will never be made on the basis of perfect knowledge.
4.2.4 The evidence may not provide the policy solutions.
In fact, some very successful public policies have come from thinking
"out of the box". The most important contribution of
evidence-based research is to provide a more accurate understanding of the
extent of our "ignorance" allowing us to focus the work needed
to close the gap.
3. Cross-cutting,
inclusive, results-based
4.2.5 We heard much support from outside
the civil service for recent attempts to broaden the base of policy-making
– notably by the SEU, PIU and RIU – in particular the bringing in of
external advice and inclusive consultation methods such as the policy
action teams. Inside, there remains some scepticism but nonetheless, we
found no dispute with the agenda. The Cabinet Office would play from
strength if it supported the efforts of line departments to link policy
more firmly to delivery.
RESPONSIVE
PUBLIC SERVICES AND QUALITY PUBLIC SERVICES
4.3 Modernising service delivery is an area in which the
Cabinet Office is not working from a position of strength. Rivalry exists
among units in the Cabinet Office and among central agencies.
1. Knowing
when to lead
4.3.1 In light of its many
responsibilities, it is doubtful whether the Cabinet Office could ever
become a recognised centre of expertise in service delivery. It is not
providing direct services to users. Its knowledge is obtained indirectly
from departments and agencies or through Cabinet Office staff who have
previous service delivery experience. Deliverers also felt that too often
central initiatives were begun with enthusiasm but not followed through.
4.3.2 The Cabinet Office should
rethink how it can best contribute to modernising service delivery. The
leadership and the accountability for modernising service delivery should
rest with those closest to the users.
2. A
seamless approach
4.3.3 Service deliverers expect:
- a seamless approach within the Cabinet Office;
- a single team approach between the Cabinet Office and
the Treasury; and
- a single system approach for setting priorities and
making key allocation decisions.
4.3.4 A seamless approach within the Cabinet Office
The Cabinet Office should commit to a seamless approach
in dealing with departments, and agencies on service delivery. This would
ensure that all Cabinet Office units would work in a co-ordinated way,
exchanging information and integrating requests from Departments and
agencies.
4.3.5 A single team approach between the Cabinet Office
and the Treasury
Both the Cabinet Office and the Treasury have a
legitimate interest in service delivery reforms: the former to ensure that
the Modernising Government agenda is moving forward; the latter to ensure
value for money and accountability for results. Departments and agencies
need and expect a co-ordinated approach at the centre. The Cabinet Office
and the Treasury should be exemplary models of inter-agency co-ordination.
A "single team" approach between the Cabinet Office and the
Treasury would bring together all those having a shared responsibility in
service delivery. It would help resolve differences of views and ensure a
co-ordinated approach.
4.3.6 It is the responsibility of those at the centre to
speak with one voice on government-wide priorities.
4.3.7 A single system approach
A concerted approach between the Cabinet Office, the
Treasury, and departments requires common tools. The new PSAs provide the
opportunity to capture the key departmental commitments in support of
Government wide or Civil Service wide priorities while meeting the needs
of the Treasury by allocating resources for results.
4.3.8 The presumption should be against launching more
initiatives in favour of consolidating progress and completing the reform
agenda.
INFORMATION AGE
GOVERNMENT
4.4 The issue is not whether the British Civil Service
will go on-line but for what purpose. Around the world, governments are
moving toward a digital future. However, their reasons for this vary
widely.
1. Focussing on purpose
4.4.1 In a modern and democratic society, an IT strategy
should be built around a societal purpose enabled through e-commerce and
e-government.
4.4.2 E-government will impact on the relationship
between citizens and the State. It will affect the role of government in
society, the way public services are provided and what is expected of
public servants in the future. How well a government grasps the
integration of these components will determine the impact and the
value-added of e-government on society.
4.4.3 More work is needed to clarify the purpose of
e-government to avoid reproducing on-line the dysfunctional aspects of the
current reality and the lack of linkages among service providers.
2. The information age strategy and the service
delivery strategy must work hand in hand
4.4.4 The information age strategy currently enjoys
clarity of goal and a precise target. Those are important levers.
4.4.5 Many of the benefits of e-government are centred
around service delivery. E-government allows citizens to access government
on their own terms, at the time and place of their choosing. The benefits
to users include self-service, integrated and better quality services.
4.4.6 IT improvements will not be judged on their own
terms but as part of the citizen’s complete experience of public
service. We were not clear that the IT strategy was tackling the difficult
questions of resourcing vital improvements to existing and out-dated IT
infrastructure.
4.4.7 Without slowing down the work on the IT strategy,
the Cabinet Office must ensure that the information age strategy and the
service delivery strategy work hand in hand.
3. The Cabinet Office leadership is needed
4.4.8 There is a strong demand for the Cabinet Office
leadership. Its contribution to date is recognised. There is a need to
work in close partnership with Treasury and No 10 to ensure maximum
efficiency and avoid duplicating requests for plans. Departments would
also welcome Cabinet Office help to foster collaborative working between
them and to agree government-wide priorities.
The Cabinet Office lead is welcomed as a means of
resolving a number of corporate issues to the benefit of all Public
Service partners:
- electronic signature;
- security issues;
- confidentiality, Cabinet confidence and privacy; and
legal issues
4. About people and culture
4.4.10 The key determinants of successful e-government
centre around people and culture. The technology is the easiest part.
Communication and information technologies do not create knowledge,
know-how, new ideas or collaboration, people do.
4.4.11 Across the Public Service and the United Kingdom
one can find simultaneously high level of technological literacy and
illiteracy, first world and third world in terms of basic IT
infrastructure.
4.4.12 A successful IT strategy must be rooted in a good
appreciation of the situation "on the ground" and be prepared to
invest in people. We are not aware that a human resources strategy was
developed in support of e-government.
VALUING THE CIVIL
SERVICE
4.5 This chapter includes a broad range of issues. Sir
Richard Wilson’s report to the Prime Minister entitled "Civil
Service Reform" has started to bring greater focus for the Civil
Service
1. Behaviour speaks of true commitment
4.5.1 The behaviour of people at the most senior level
speaks louder than speeches or declarations. Behaviour speaks of values,
beliefs and true commitments. Our interviews indicate that there is a
chance of sending conflicting signals. There is a fine line between
healthy criticism aimed at improving the performance of the public service
and comments which erode the sense of pride and the self-esteem of public
servants.
4.5.2 Public service reforms require consistent
behavioural leadership by managers and leaders at all levels.
4.5.3 The White Paper is addressed to the public sector
as a whole. The Cabinet Office has felt inhibited in following the agenda
through with partners outside the Civil Service yet it could facilitate
the sharing of good practice.
2. A compelling articulation
4.5.4 Most public servants share a common sense of
mission and a profound belief in the importance of the public service in
society.
4.5.5 There is a need for a compelling articulation of
the importance of the public service in contemporary terms. It should talk
of the value added of the public service in a global environment, in a
knowledge-based economy, in a knowledge-based society.
3. Leadership by the Head of the Civil Service
4.5.6 Sir Richard Wilson in Civil Service reforms has
sent a powerful message about the importance of reforms and about
commitment at the top. It is creating hope and expectations. The
leadership role is essential and should be pursued.
4. The corporate role of Permanent Secretaries
4.5.7 The establishment of the Civil Service Management
Board, chaired by the Secretary to the Cabinet, is an important step
forward. Permanent Secretaries have an individual and a collective
responsibility. An individual responsibility to serve their respective
ministers, to oversee the performance and ongoing improvement of their
department. They also have a collective responsibility to serve the
government as a whole by supporting and moving forward the government
agenda. They have a collective responsibility to modernise the Civil
Service as an institution and to ensure that it is up to today’s
challenges. Each generation of civil servants has a duty to leave behind a
better institution than the one they inherited.
4.5.8 The collective responsibilities of Permanent
Secretaries can best be fulfilled when they work as a team under the
leadership of the Secretary to Cabinet and Head of the Civil Service.
4.5.9 The Civil Service Management Board should be
encouraged to pursue its work. The new statements of objectives are
moving in the right direction. New avenues should be explored to
support the collective responsibilities of Permanent Secretaries.
5. Resolving Corporate Issues
4.5.10 Cross-cutting issues in the Civil Service which
affect all, or most, departments should be addressed at the centre. These
include the concept of career in the Civil Service, pay and mobility.
6. Diversity
4.5.11 One of the toughest challenges outlined in this
chapter is to become a public service that is truly representative of
society. It is an important challenge which will test the resolve of
ministers and managers at all levels. Recruitment is just a stop along the
way. Above all it will require a concerted effort at changing the culture
of the institutions. Public service managers and employees must become
truly comfortable at working and serving in a cross-cultural environment.
To meet this challenge, the public service must provide an hospitable
environment which values societal diversity as well as diversity of ideas.
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