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FORUM AP, Roma, May 17th 2012 Professor Geert Bouckaert Managing performance: international and national trends

Managing performance: international and national trends

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Accedi alla pagina dell'evento: http://qualitapa.gov.it/iniziative-in-corso/valutazione-performance/valutazione-performance/il-percorso-2011-2012/eventi-realizzati/ Il Dipartimento della funzione pubblica ha dedicato in occasione del ForumPa 2012, un'intera giornata al Performance management nei Comuni.Nella Prima Sessione è stato affrontato il tema chiave della funzionalità ed efficacia dei sistemi di Performance Management nelle amministrazioni pubbliche e del loro effettivo utilizzo a supporto delle decisioni strategiche ed operative. Le analisi svolte in ambito nazionale ed internazionale evidenziano che anche nelle amministrazioni in cui i sistemi di misurazione e valutazione delle performance sono ben organizzati non necessariamente essi sono utilizzati a supporto delle decisioni più rilevanti per l'amministrazione.

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Page 1: Managing performance: international and national trends

FORUM AP, Roma, May 17th 2012

Professor Geert Bouckaert

Managing performance: international and national trends

Page 2: Managing performance: international and national trends

1.PI:Do we focus on the right things?

2.PI: Responsibility versus accountability

3.PI: Are we ready or not?

4.PI:Trust good versus distrust bad PIs

5.PI: Costs versus Benefits

6.PI: Supply versus Demand

7.PI: Use versus non-use (or abuse)

Page 3: Managing performance: international and national trends

3

1.Performance and Focus

Inp u t O u tp u tA c tiv ity

O b je c tiv e s

E ffe c t

N e e d s

T ru s t

1.inp ut/inp ut: ec o no m y2.inp ut/o utp ut: effic ienc y/p ro d uc tivity3.o utp ut/effec t: effec tivenes s4.inp ut/effec t: c o s t-effec tivenes s5.effec t/trus t6.o utp ut/trus t7.inp ut/trus t

7

6

5

4

321

E nv iro nm e nt

Page 4: Managing performance: international and national trends

1.Performance and Focus

Performance: What is our focus? And Why?

-the urgent or the important

-responsibility versus accountability

-depends on where you stand

Different PIs for different purposes

Page 5: Managing performance: international and national trends

2.PI: Responsibility versus Accountability

R E S P O N S IB IL IT YR E S P O N S IB IL IT Y

W E A K S T R O N G

N OA C C O U N T A B IL IT Y

A C C O U N T A B IL IT YW E A K

S T R O N G

A

C 1

C 2

D 1 D 2

D 3 D 4

B 1 B 2

Page 6: Managing performance: international and national trends

Macro-level

Meso-level

Micro-level

Input Activity Output Effect/Outcome Trust

Input Activity Output Effect/Outcome Trust

Input Activity Output Effect/Outcome Trust

2.PI: Responsibility versus Accountability

Page 7: Managing performance: international and national trends

ExecutivePoliticians

LegislativePoliticians

Citizen/CustomerAdministration

(1)

(2)(3)

(4)

(5)(6)

2.PI: Responsibility versus Accountability

Page 8: Managing performance: international and national trends

New or renewed instruments•1 Performance budgets and performance audits•2.General Citizen Charter•3.Contracts•4.Specific charters, SLA, surveys (satisfaction)•5.Hearings around contracts and performance•6.Ombud

2.PI: Responsibility versus Accountability

Page 9: Managing performance: international and national trends

3.PI: Are we ready, or not?

• Performance administration

• Managements of performances

• Performance management

• Performance governance

Page 10: Managing performance: international and national trends

3.PI: Are we ready, or not?

• Organisational readiness checklist

Page 11: Managing performance: international and national trends

3.PI: Are we ready, or not?

Performance Administration

Managements of Performances

Performance Management

Performance Governance

Measurement

Incorporation

Use/non-use

Page 12: Managing performance: international and national trends

3.PI: Are we ready, or not?

MANAGEMENT BY INDICATORS REQUIRES INDICATOR MANAGEMENT

-Guarantee Measurement + Incorporation + Use

-Watch Costs and Benefits

-Match Supply and Demand

Page 13: Managing performance: international and national trends

13

4.PI: Trust good versus distrust bad PIs

Legitimacy

Technical Features

(Validity & Reliability

Functionality

1

4

7

3

2

6

8

5

Page 14: Managing performance: international and national trends

14

F u n ctio n a lity

L e g itima cy

T e ch n ica l fe a tu re s:va lid ity a n d re lia b ility

o p timu m

1

1

1

0

A

B

C

4.PI: Trust good versus distrust bad PIs

Page 15: Managing performance: international and national trends

15

1. Where are you now? (A)

2. Where would you like to be? (B)

3. How to get from A to B

4.PI: Trust good versus distrust bad PIs

Page 16: Managing performance: international and national trends

• Selected

• Discussed

• Scored

• Evaluated

4.PI: Trust good versus distrust bad PIs

Page 17: Managing performance: international and national trends

1. Whole of government indicators (means)

0

1

2

3

4

5

0 1 2 3 4 5Utility

Feasib

ilit

y

Indicator 1Indicator 2Indicator 3Indicator 4Indicator 5Indicator 6Indicator 7Indicator 8Indicator 9Indicator 10Indicator 11Indicator 12Indicator 13Indicator 14Indicator 15

4.PI: Trust good versus distrust bad PIs

Page 18: Managing performance: international and national trends

5.PI: costs versus benefits

WHY IS THE OBVIOUS NOT SO OBVIOUS?

CBA of Indicators:Costs: creating, transferring, collecting, processing, storing,

making available, …

Benefits: comparing, registering change, improved decisions, better allocations, transparency, responsibility/accountability, learning, ...

Page 19: Managing performance: international and national trends

5.PI: costs versus benefits

ASSYMETRIES OF COSTS AND BENEFITS

COST:

Unconditional, immediate, undisputable, tangible

BENEFITS:

Conditional, not (always) immediate, disputable, intangible

Different Costs and different benefits for different actors

Page 20: Managing performance: international and national trends

5.PI: costs versus benefits

HOW TO CREATE A POSITIVE CBA?

-Reducing costs:

-Economy of providing and generating data

-Increasing Benefits:

-Increase level of needs/use (more demand);

-Avoid non-use (or abuse)

-Expand depth and scope (more supply)

Page 21: Managing performance: international and national trends

6.PI: Supply versus Demand

Bouckaert & Halligan (2008) Managing Performance, International Comparisons, Routledge, London, p. 113.

Page 22: Managing performance: international and national trends

6.PI: Supply versus Demand

HOW TO AVOID ZONES OF FRUSTRATION AND MISMATCH?

-Shifting from supply (availability) feeding demand (needs)

to demand generating supply

-Organising demand (problem driven: savings, capacity, quality, legitimacy, flexibility, mobility, …)

Page 23: Managing performance: international and national trends

7.PI: Use versus Non-Use

• Incorporate

• Types of use: soft versus hard

• Context of use

Page 24: Managing performance: international and national trends

• INCORPORATION

-Policy cycle

-Financial cycle

-Contract cycle

(St rat egic)p lan Evaluat ion

Monit oring

Feedback

Feedback

Evaluat ioncont ract

Implement ingcont ract

Designcont ract

Pol icy cycle

Cont ract Cycle

Feedback

Audit

Account ancy

Budget

Financial Cycle

Van Dooren Wouter, Geert Bouckaert, John Halligan (2010) Performance Management in the Public Sector. Routledge: London, p. 85.

Page 25: Managing performance: international and national trends

• USE

-To learn

-To steer and control

-To give account

To learn To steer&control To give account

Key question How to improve policy or

management?

How to steer and

control activities?

How to communicate

performance?

Focus Internal Internal External

Orientation Change/future Control/present Survival/past

Exemplary

Instruments

Strategic planning,

benchmarking, risk analysis,

business process reengineering

Monitors and

management

scorecards,

performance pay,

performance budgeting

league tables, citizen

charters and annual

reporting, performance

contracts

Van Dooren Wouter, Geert Bouckaert, John Halligan (2010) Performance Management in the Public Sector. Routledge: London, pp. 101.

Page 26: Managing performance: international and national trends

7.PI: Use versus Non-Use

HARD OR SOFT USE?

Van Dooren Wouter, Geert Bouckaert, John Halligan (2010) Performance Management in the Public Sector. Routledge: London, p.103.

Page 27: Managing performance: international and national trends

27

7.PI: Use versus Non-UseContext of use

Q

t

O

I

(1 )Q

t

O

I

( 2 )

Page 28: Managing performance: international and national trends

28

7.PI: Use versus Non-Use

Q

t

O

I

( 3 ) Q

t

O

I

Q m in

( 4 ) Q

t

O

I

Q m ax

( 5 )

Page 29: Managing performance: international and national trends

7.PI: Use versus Non-Use

REASONS FOR NON-USE

-Insufficient quality-Psychological barriers: satisficing and bounded rationality-Cultural barriers: entrepreneurial vs bureaucratic; egalitarian vs

hierarchical-Institutional: balance of power; balance of professions

CONSEQUENCES OF NON-USE

-Over-claiming ‘best practices’-Weak institutional memories

Page 30: Managing performance: international and national trends

7.PI: Use versus Non-Use

EFFECTS OF USING INDICATORS

-Functional behavioural effects:-Learning and Innovation-Steering and Control-Responsibility and Accountability

-Dysfunctional behavioural effects:

-Conditionality for functional and dysfunctional effects

Page 31: Managing performance: international and national trends

1.PI:Do we focus on the right things?

2.PI: Responsibility versus accountability

3.PI: Are we ready or not?

4.PI:Trust good versus distrust bad PIs

5.PI: Costs versus Benefits

6.PI: Supply versus Demand

7.PI: Use versus non-use (or abuse)

Page 32: Managing performance: international and national trends

SOME REFERENCES

• Bouckaert Geert, Halligan John (2008) Managing performance, International comparisons. Routledge, London, 440 p.

• OECD (2009) Measuring Government Activity. OECD, Paris (Edited by Christopher Pollitt, Geert Bouckaert, and Wouter Van Dooren), pp. 130.

• Pollitt Christopher, Bouckaert Geert (2011, 3rd expanded ed.) Public Management Reform. Oxford University Press, Oxford, pp. 367,

• Van Dooren Wouter, Geert Bouckaert, John Halligan (2010) Performance Management in the Public Sector. Routledge: London, pp. 208

Page 33: Managing performance: international and national trends

K.U.Leuven

Public Management InstituteParkstraat 45 bus 3609

B-3000 Leuven

Belgium

0032 16 32 32 70

[email protected]

www.publicmanagement.be

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