Queens University

1
Managing in aChanging Public SectorCanadas
Experience

• Public Service Senior Management (PSSM) - 2004
• David C. Elder
• dce_at_post.queensu.ca

2
Managing in a Changing Public SectorCanadas
Experience

• Introduction
• Results for Canadians A Management Framework
• Putting Citizens at the Centre
• Bringing about Horizontality -
• Services and Policy
• Conclusion

3
Similarities in Starting Point, Differences in
Approaches

• Like New Zealand, Canada has Westminster system
  executive government has policy initiative
• In Canada House of Commons elected in ridings by
  first-past-the-post
• Canada has federal system 10 provinces and 3
  territories - with considerable interdependence
  all public policy issues tend to be
  federal-provincial

4
Approaches to Reform

• Reform in Canada not driven by overriding
  theoretical or ideological position or managerial
  approach
• Based on premise that government has role in
  society and economy
• Proceeded in several phases incremental rather
  than big bang
• Pushed by concern about fiscal situation (in
  1992/93, worst of G-7) - initially powerful motor
  behind reform
• As economic/fiscal situation improved - Canada in
  surplus for 7 years - pressures for reform
  diminished

5
Waves of Reform

• In Canada, successive initiatives to reform
  public sector
• Public Service 2000 (1992)
• Major Reorganization of Government (1993)
• Program Review and its results Getting
  Government Right (1994-1999), including
  legislated service agencies
• La Relève investing in people and changing
  public service culture (1997-1999)
• Improving Service to Canadians (1996-present)
• Modern Comptrollership (1997-present)
• Modernizing Human Resource Management (2001-2003
  - new Act in 2003)
• Results for Canadians (2001)
• Strengthening Public Sector Management (2004)

6
Moving from Reforms to Improved Management -
Results for Canadians

• Management reforms addressed reinforced oversight
  of public finances, increased focus on results,
  and improved reporting to Parliament
• Challenge for managers putting into reality
  various directions of reform
• To bring together various management policies,
  Government published Results for Canadians A
  Management Framework - 2001

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Results for Canadians
8
Results for Canadians A Management Framework
for the Government of Canada

• Sets out Governments overall approach to
  managing public service
• The Government of Canada aims to provide the
  highest quality of service to the public. To
  achieve this, it commits to excellence in four
  areas critical to a well-performing public
  sector
• focusing on citizens
• embracing a clear set of public service values
• managing for results
• ensuring responsible spending

9
Results for Canadians - Bringing it
TogetherManagement Accountability Framework

• Government saw need to
• articulate overall approach to managing public
  service
• define and clarify government expectations
  reflecting different elements of current
  management responsibilities
• rationalize existing TBS frameworks
• tie together individual and corporate management
  performance (Performance Management System)
• Elaborated Management Accountability Framework

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Management Accountability Framework
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Putting Citizens at Centre

• Moving to Citizen-Centred Service
• listening to Citizens - Citizens First
• Service Improvement Initiatives and Government on
  Line
• Transforming Public Service
• reconceiving government from outside in -
  clustering
• structuring government services not on
  departments and agencies, but on needs of citizens

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Focussing on Citizens Improving Services

• Results for Canadians commits Government to
  achieve significant, quantifiable improvement in
  client satisfaction with services over next five
  years
• Structuring of Government services from
  perspective of user from outside in
• Recognition that all levels of Government serve
  Canadians - increased cooperation in delivering
  services to Canadians among Government of Canada
  Departments and Agencies, between Government of
  Canada and Provinces (and also municipalities)
  and with third parties

13
Service Canada

• Service Canada initiative - based on listening to
  Canadians and surveys (Citizens First)
• Canadians want
• better access and timely and courteous service
• fast, convenient, seamless and connected
  services
• where possible one-stop centre for government
  services
• Government committed to improving performance of
  Government of Canada services
• Initiative makes maximum use of information
  technology Government on Line

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Serving Canadians Better - Improving all means
of delivering government services
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Serving Canadians Better -Transforming
Governments Business
Departmental Focus
Citizen Focus

• Automation of existing processes
• Services provided in e-silos
• Program by program solutions
• Program by program access

• Rethinking service delivery
• Integrated services
• Shared or common solutions
• Single window access

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Serving Canadians Better - Clustering

• Clustering government services and programs from
  citizen's point of view rather than government's
  organizational structure - reflects whole of
  government approach
• Cluster Blueprint
• subject clusters - information and services on
  particular subject
• service clusters - information organized around
  specific audiences (e.g. seniors), and life
  events (e.g. finding job, or losing wallet/purse)
• Clustering highlighted many horizontal issues,
  e.g., governance, partnerships, measurement,
  content management, service standards

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Horizontality - Services and Policy

• Horizontality and Service
• Citizen-Centred Service
• Canada Business Service Centres
• Aboriginal Canada Portal
• Horizontality and Policy
• Horizontal policy management "Moving From the
  Heroic to the Everyday
• Aboriginal Affairs

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Horizontality in Services Canada Business
Service Centres

• Network of Canada Business Service Centres
• simplify access to government programs, services
  and compliance requirements for business
  community
• overcome complex jumble of mandates among
  governments
• bring about single-window information service
  delivered across multiple channels
• Service responsive to needs of Canadian
  entrepreneurs Advisory Boards, evaluations with
  input from clients, partners and staff, service
  standards

21
Horizontality in Services Aboriginal Canada
Portal

• Portal overcomes difficulties in jurisdiction and
  mandate
• Integrates wide range of services
• Government of Canada in its constitutional
  responsibility
• Provinces in responsibility for all residents
  health, education
• First Nations, Inuit and Métis partners
• Third parties
• Services offered in portal cover social and
  economic issues
• Portal assists in person delivery

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Horizontality and Policy

• Government, organized into Departments (silos)
  how to cope with policy issues that transcend
  departments and even levels of government?
• Need to develop new approaches
• Committees (Ministers, officials) to develop
  common approaches
• Virtual organizations or teams - use of
  information and communications technology
• Integrated approaches in resource allocation and
  reporting

24
Management of Horizontal Mechanisms

• Canada School of Public Service Moving From the
  Heroic to the Everyday Lessons Learned from
  Leading Horizontal Projects describes some means
  of achieving horizontal policy management
• 1. Mobilizing teams and networks
• 2. Developing shared frameworks with common
  understanding and fact base of key issues,
  clarity about shared goals and results, as well
  as roles and responsibilities
• 3. Building Supportive structures, formal or
  informal
• 4. Maintaining Momentum includes using
  champion, building on small successes, learning
  continuously

25
Horizontality and Policy Aboriginal Affairs

• Government established Cabinet Committee on
  Aboriginal Affairs (chaired by Prime Minister) to
  oversee strategic policy development on
  aboriginal issues enhanced role for Privy
  Council Office
• Named Minister of Indian Affairs and Northern
  Development as Federal Interlocutor for Métis and
  non-status Indians integrates policy
  responsibility for all aboriginals
• Estimates documents for DIAND account for
  programs for aboriginal people of 14 federal
  departments and agencies
• Joint policy initiatives aboriginal education,
  urban aboriginal strategy, economic development
  initiative, aboriginal justice strategy

26
Accountability andStrengthening Public Sector
Management

• New Government emphasized Accountability,
  transparency, good governance, and enhanced role
  for Parliament
• Re-introduced Comptroller-General as separate
  function
• Set in motion reviews
• Review of information provided to Parliament
  (Estimates, Public Accounts, and other reports)
• Review of Financial Administration Act
• Review of Governance of Crown Corporations
• Review of Accountabilities and Responsibilities
  of Ministers and Senior Public Servants

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Conclusions - Management and Leadership

• Canada has put in place number of reform
  initiatives
• Government has not had consistent vision or
  strategy difficult to articulate case for
  change, to communicate expectations, to bring
  managers on board
• Management Accountability Framework brings
  together various management policy directions

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Conclusions - Accomplishments

• Citizen-Centred Service and concept of looking at
  public sector from outside in emphasis on
  clients - change in approach and mentality
  without structural change
• Use of Information and communication technology
  to reinforce changes in service delivery -
  Government on Line and Service Improvement
• Attention to horizontal policy management
• Increased recognition of need to make public
  service more responsive, adaptable, innovative

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References

• Results for Canadians http//www.tbs-sct.gc.ca/re
  s_can/dwnld/rc_e_pdf.pdf
• Management Accountability Framework
  http//www.tbs-sct.gc.ca/maf-crg/maf-crg_e.asp
• Service Improvement
• http//www.tbs-sct.gc.ca/rma/dpr/01-02/Guidance/
  templates/serv-serv_e.asp
• Government on Line http//www.gol-ged.gc.ca/index
  _e.asp
• Canada Business Service Centres
  http//www.cbsc.org/english/services.cfm
• Moving from the Heroic to the Everyday Lessons
  Learned from Leading Horizontal Projects
  http//www.myschool-monecole.gc.ca/Research/public
  ations/pdfs/horinz_rt_e.pdf
• The Horizontality Challenge Line Departments,
  Central Agencies and Leadership
  http//www.myschool-monecole.gc.ca/Research/public
  ations/pdfs/hc_e.pdf
• Strengthening Public Sector Management
• http//www.tbs-sct.gc.ca/spsm-rgsp/spsm-rgsp_e.p
  df