1 An Introduction to Practical Tools to Support Delivery VII CONFERENCE OF THE MONITORING & EVALUTATION NETWORK IN LATIN AMERICA AND THE CARIBBEAN November

1

An Introduction to Practical Tools to Support Delivery

VII CONFERENCE OF THE MONITORING & EVALUTATION NETWORK IN LATIN AMERICA AND THE CARIBBEANNovember 2011

Ray Shostak, CBE

Objectives of the Workshop

The workshop will introduce a range of practical tools to accelerate the delivery of a governments key priorities.

By the end of the session we will have:

•Considered the imperative of delivery•Introduced three potential analytical tools•Considered the challenges of using tools•Explored the potential uses of the tools

2

Shape of the Workshop

3

Time Focus Process

2.00 Introduction and Framework Presentation

2.20 Preparing for Delivery Presentation

2.40 Are you ready for action? Group Workshop 1/2 and Plenary

3.15 Understanding Delivery Systems

Presentation

3.30 What does it look like? Group Workshop 2/3 and Plenary

4.15 From a Citizens point of view Presentation

4.45 Concluding questions and Remarks

Plenary

Context…….

4

Individually, think of a policy areathat is a government priority for delivery………

• Identify the outcomes desired• Identify your role in delivery

??

Outcomes for and with citizens

MONITORING, CAPACITY

BUILDING andINTERVENTION

CULTURE•Outcomes focus•Data rich•Can do•Real time monitoring•Reform

SKILLS•Problem solving•Cost benefit analysis•Engagement•Evaluation

ACTIONWhen off track

CULTURE•Outcomes focus•Data rich•Can do•Real time monitoring•Reform

SKILLS•Problem solving•Cost benefit analysis•Engagement•Evaluation

ACTIONWhen off track

ACCOUNTABILITY

with consequences

ACCOUNTABILITY

with consequences

To President/Prime

Minister

To President/Prime

Minister

To ParliamentTo Parliament

By InstitutionBy IndividualBy InstitutionBy Individual

By InstitutionBy IndividualBy InstitutionBy Individual

BUDGETING FORRESULTS

(multiple years)

Programme budgets against

resultsUnit costingMonitoringEfficiency

Joint procurement…….

Programme budgets against

resultsUnit costingMonitoringEfficiency

Joint procurement…….

Government StrategyGoals/Ambitions

For parliamentary period

Government StrategyGoals/Ambitions

For parliamentary period

GovernmentGovernmentNon Government

Non Government

Delivery PartnersProgrammes, Objectives, Milestones, Deliverables

Institutions and Individuals

Delivery PartnersProgrammes, Objectives, Milestones, Deliverables

Institutions and Individuals

Aligned as Government Plan

Aligned as Government Plan

Outcomes Driven PerformanceOutcomes Driven Performance

Key Lessons on Delivery

6

Ministries committed to working together to focus on agreed outcomes

Guiding coalition

Taking a citizen centred perspective

Staff knowing it’s ‘the day job’

Leadership, focus, capacity and clarity

Shared and clear strategic visionSound governance and accountability arrangements Prioritising key programmes

Understanding what works and engaging the delivery system

Knowing what motivates and stimulates delivery in each part of the delivery systemUnderstanding the strengths/weaknesses of general and specific interventionsCitizen insight

Effective performance management and good data

Good metricsUnderstanding what drives contributing partnersGood feedback loops – that are used

Features of a Delivery Plan

• Clarity about vision and outcomes

• Sets out priority actions to deliver the outcomes

• Effective performance, programme and risk

management

• Effective delivery partner and stakeholder engagement

• Effective governance arrangements

• Effective performance, programme and risk

management

7

Features of a Delivery Plan/1

8

Sets out priority actions to deliver

the outcomes

Clarity about vision and outcomes

Clarity on incentives,

resources, roles and responsibilities

throughout the delivery chain

• A clear description of the aim of the project and the outcomes being sought.

• A narrative of what needs to be delivered by the lead Ministry and their delivery partners to achieve the outcomes

• An explanation of how short term progress and long term impact will be demonstrated

• A clear explanation of the impact when the project has been delivered, including from the point of view of the citizen

• The key actions required are clear, comprehensive, have owners and key milestone dates

• Timescales are proportionate to complexity of delivery• Actions have been well-researched and based on sound

evidence and analysis of their impact • A timeline is in place with intermediate points showing

expected progress• The most important challenges to be addressed are

identified, prioritised and have mitigation actions

• All key players in the delivery system, and wider stakeholders who can influence delivery, are identified, and appropriate action taken to involve them in planning

• The resources available from contributing Ministries and delivery partners are set out.

• There are clear and effective cross-ministry working arrangements in place at all levels.

• Incentives throughout the delivery system are clearly identified

• Key interdependencies have been identified and delivery timescales take these into account

Key characteristics

WHAT NEEDS TO BE IN PLACE PITFALLS TO AVOID

• It is unclear how the project aims and public commitments are achieved

• Success is described in system or institutional terms, rather than from the perspective of the citizen

• Language is technical and jargon is used

• There is no clear link between the key actions and the delivery of outcomes

• Lack of evidence to demonstrate that the right actions have been identified as critical

• Action owners and/or deadline dates are missing• Timescales are unrealistic given the complexity of the task or

resources committed• Major challenges are not identified and important actions to

change performance are not set out

• The delivery system is not well-understood or clearly defined• Little or no assessment of the delivery system’s capacity

and/or capability • Planning and resource estimates are unsupported by

evidence • A lack of cross-ministry commitment to take difficult decisions

and remove barriers • Interdependencies have not been identified nor has their

impact been factored into plans

Features of a Delivery Plan/2

9

Effective governance

arrangements

Effective delivery partner and stakeholder engagement

Effective performance,

programme and risk management

• Key delivery partners and stakeholders are identified and prioritised

• Engagement and communication plans are in place and based on sound analysis and understanding of the delivery system

• Plans demonstrate understanding of delivery partner and stakeholder attitudes (throughout the delivery system) with appropriate targeting of outline key messages

• Plans set out proposals for monitoring the effectiveness of engagement and communications activities

• An agreed monitoring system system for monitoring progress with timely and accurate information to support decision makers and keep delivery on track

• Robust Programme and Project Management arrangements are in place throughout the delivery system

• Clear, timely and accurate reporting mechanisms that provide a clear indication of whether delivery is on trajectory

• Delivery risks and effective strategies for mitigating these risks have been developed and implemented

• Risk management processes throughout the delivery system

• A clear line of accountability from the most senior levels through to all levels of the delivery system

• Conflicts between the project and other areas of focus by those involved in governance have been identified and mitigated

• Scrutiny of progress is timely, regular, informed and focussed on delivery of outcomes

• Mechanisms to hold to account all those who need to contribute to delivery in Ministries and the delivery system

• No analysis of delivery partners and stakeholders and how to influence their expectations and attitudes

• Engagement and communication plans are incomplete or ill-defined

• Lack of engagement of citizens and delivery partners in identifying what works

• No assessment of how well the plan is understood by all delivery partners

• There are unclear lines of accountabilities and/or a lack of ownership of key aspects of the delivery plan

• Governance arrangements add complexity and burden. • Governance does not support focus on the key actions that

will deliver the outcomes

• No common understanding amongst those responsible as to how progress should and can be monitored

• Monitoring mechanisms that only look back rather than seeking to identify problems before it is too late to take remedial action

• Strategies for addressing identified risks are non-existent or are unlikely to be effective

• Risk management is seen as a tick-box exercise and not a planning tool; risk registers, where they exist, are out-of-date

Key characteristics

WHAT NEEDS TO BE IN PLACE PITFALLS TO AVOID

Delivery Tools

• What is a tool?A sequence of methods to analyse and problem solve

• Why do we need them?To develop insights on how to get more for less and better outcomes more efficiently

• Boundaries?In the context of approaches to reform and delivery

Public Service Reform

Citizen Empowerment

Front Line Professionalism

Strategic Leadership

Excellence and Equity

Government enabling changes through incentives and support without micro-managing

Per

sona

lised

ser

vice

s

thro

ugh

empo

wer

ed

citiz

ens

and

prof

essi

onal

s

wor

king

toge

ther

Greater accountability and

transparency enabling

citizens to hold services to

account

Policy Delivery: trajectories

50

55

60

65

70

75

80

85

90

95

1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010

Delivery Indicator

Low Trajectory (policy has a lagged impact)

Mid trajectory

High Trajectory (policy has an immediate impact)

Policy Step

A

Long Term Strategic GoalMid term Delivery

Contract Goal

Intermediate progress indicators or milestones

Historical performance

Project Plan StreamsProject Plan Streams

Policy Step

B

Policy Step

C

An approach to Delivery

The importance of systematic intervention

Unblocking Delivery Obstacles

(ie. progress reviews, problem solving, follow-up work with and brokering between departments)

Performance Policy (ie. Performance Framework,

Excellence, cross departmental working)

Performance Monitoring

(ie. Data tracking and reporting)

Capacity Building & Cross Govt Learning on Delivery (ie. knowledge mgmt,

deptl delivery units, networks & training)

INTERVENTION WHEN

PROGRESS IS NOT MEETING

AMBITIONS

INTERVENTION WHEN

PROGRESS IS NOT MEETING

AMBITIONS

Delivery Unit Patterns

*Conducted as neccesary

‘Go live’

Planning PhaseDelivery Phase

Year 2 Year 3 Year 4Year 1Activity:

• Assessment of readiness to deliver

• Six monthly Delivery Reporting

• Delivery Leads events

• Update notes to PM

• Updates to Cabinet Committee

• Departmental stocktake*

• PSA Board attendance

• Progress Review

• Priority Reviews*

• Develop action plans to implement

• Other tools*

Delivery Tools

Scope of

problem to solve

Product

Preparing for Delivery

16

Preparing Ministries for Delivering Performance

17

OBJECTIVE: to identify, through a collaborative approach , underlying barriers to delivery and increase the prospects for secure outcomes of a Government priority

WHAT IS REQUIRED:

A set of criteria that will enable judgement of current performance and give direction to future developmentAn approach to collecting evidence of preparednessAn approach to synthesising the evidenceAn agreement on reporting

Overview

18

Fieldwork

Document Analysis

Interviews and visits

Workshops

• Cross Ministry• With officials• With stakeholders• With providers

Self AssessmentSelf Assessment

Analysisand

Recommendations

Analysisand

Recommendations

Report and

Action

Build a Review Team

Vision and leadership

Is there a clear, compelling and coherent vision of what success looks like and why it is important?

Is there leadership at national and local level and is it committed to driving delivery?

Is there a clarity of who is responsible within the Ministry for the delivery of the vision and outcomes- and do they demonstrate effective leadership?

Is there regular communication of the vision and its implications to enthuse and inspire delivery partners?

Working across Ministries

Is the goal sufficiently prioritised and linked to other strategies and objectives in relevant Ministries?

Is there a structure (Board) and clear accountability for delivery among Ministries?

s there strong co-operation and teamwork among officials at all levels in Ministries to drive delivery?

Is there shared commitment to take difficult decisions and capability to actively remove barriers to delivery?

The delivery system

Is there a shared and clear understanding of the delivery network including what works, levers, responsibilities and capabilities?

Are delivery partners clear about and agree to their role in delivering the ambition?

Are delivery partners capable and empowered to deliver local initiatives and share good practices?

Is there active engagement with citizens to understand what works and what they want?

Performance and Programme Management

Is there effective plan of action, programme and risk management across the delivery system?

Is there high-quality and timely performance information, supported by analytical capability, which informs local and strategic decisions?

Is there robust alignment between incentives and delivery, and between corrective action and non-performance?

Are the right skills, resources and structures in place to drive delivery?


DISCUSS

20

1.Using one of the policy areas you identified earlier, agree with your partner/group a key government priority for delivery.

2.Consider each quadrant in turn by asking:• What information would I need to evaluate

preparedness?• How would I collect the information?

21

Vision and leadership

Is there a clear, compelling and coherent vision of what success looks like and why it is important?

Is there leadership at national and local level and is it committed to driving delivery?

Is there a clarity of who is responsible within the Ministry for the delivery of the vision and outcomes- and do they demonstrate effective leadership?

Is there regular communication of the vision and its implications to enthuse and inspire delivery partners?

Working across Ministries

Is the goal sufficiently prioritised and linked to other strategies and objectives in relevant Ministries?

Is there a structure (Board) and clear accountability for delivery among Ministries?

s there strong co-operation and teamwork among officials at all levels in Ministries to drive delivery?

Is there shared commitment to take difficult decisions and capability to actively remove barriers to delivery?

The delivery system

Is there a shared and clear understanding of the delivery network including what works, levers, responsibilities and capabilities?

Are delivery partners clear about and agree to their role in delivering the ambition?

Are delivery partners capable and empowered to deliver local initiatives and share good practices?

Is there active engagement with citizens to understand what works and what they want?

Performance and Programme Management

Is there effective plan of action, programme and risk management across the delivery system?

Is there high-quality and timely performance information, supported by analytical capability, which informs local and strategic decisions?

Is there robust alignment between incentives and delivery, and between corrective action and non-performance?

Are the right skills, resources and structures in place to drive delivery?


Cross Ministry representationCross Ministry representation

Stakeholder managementStakeholder management

Specific Ministry resources

Specific Ministry resources

Overall allocation of resources

Overall allocation of resources

Data, baselining, trajectories

Data, baselining, trajectories

PPM and Risk managementPPM and Risk management

How Ministries work with the

system

How Ministries work with the

system

Capability of the system itself

Capability of the system itself

Links to other work

Links to other work

Joint teams and shared burdensJoint teams and shared burdens

Understanding evidence and

sharing what works

Understanding evidence and

sharing what works

User engagement in planning

User engagement in planning

Role and skills of policy and

delivery teams

Role and skills of policy and

delivery teams

Availability of performance interventions

Availability of performance interventions

Officials understand consequences of non-

delivery

Officials understand consequences of non-

delivery

Shared incentives

Shared incentives

Delivery through regional, local,

private and voluntary sectors

Delivery through regional, local,

private and voluntary sectors

Leadership Leadership Clarity of visionClarity of vision

Ministerial commitmentMinisterial

commitment

Inspiring communication

Inspiring communication

Clarity of delivery agreement

Clarity of delivery agreement

What success looks like

What success looks like

Quality of planningQuality of planning

Overview

22

Fieldwork

Document Analysis


Workshops


Fieldwork

Document Analysis


Workshops



Analysisand

Recommendations

Analysisand

Recommendations

Report and

Action

Build a Review Team

Fieldwork – Hypothesis Led Analysis

Overview

24

Fieldwork

Document Analysis


Workshops


Fieldwork

Document Analysis


Workshops



Analysisand

Recommendations

Analysisand

Recommendations

Report and

Action

Report and

Action

Build a Review Team

Recommendations and Actions

25

Have sufficient impact to address the key issues

Be proportionate to the scale of the issues

Be specific and clear

Track clearly from issue to action to forward plan to measurable improvement

Have clear ownership and accountability

Be sustainable leading to long-term improvement not quick fixes

Recommendations and Actions

DISCUSS

26

1.Consider the process.

2.What relevance does it have for your country?

3.Are there particular Ministries where this

would be helpful?

4.Identify how you might apply the approach.

Understanding a Delivery System

27

Understanding and Improving Delivery Systems

28

OBJECTIVE: to develop an understanding of the roles, responsibilities and motivations of a delivery system – and how Government can intervene to enhance delivery of its priorities

WHAT IS REQUIRED:

An approach to mapping a delivery systemAn approach to analysing its componentsAn approach to gathering evidenceAn agreement on reportingA strategy for intervention

Audit Commission Delivery chain workshop

29

What is a delivery system?

A delivery system is a network of organisations, that need to work together to achieve improved outcomes for local people.

This includes central and local government, other public sector partners and partners from the third and private sectors

Some key questions on delivery systems

What may be preventing them from

contributing to my goal?

What may be preventing them from

contributing to my goal?

Which organisations have a role in delivering my

goal?

Which organisations have a role in delivering my

goal?

How can I improve the

prospects for delivery?

Are all these organisations

effectively contributing to

my goal?

Are all these organisations

effectively contributing to

my goal?

UNDERSTANDING THE DELIVERY

SYSTEM

Intervene

Stage 2

Analyse the delivery system

Stage 1

Map thedelivery system

Stage 3

Identify who needs to do something to deliver the ambition

Group actors

Identify what each actor needs to do

Identify gaps in your understanding of the chain

Undertake fieldwork

Carry out the ‘links analysis’ to fill knowledge gaps

Communicate and address identified weaknesses

A Three Stage Approach

• How you will achieve the governments ambition• How the money follows the critical path• The nature of the relationships (accountability, common

purpose etc) between the various organisations involved • The synergies and conflicts which help or hinder their

ability to work together• How the system interacts with the citizen• Opportunities for improving efficiency and effectiveness

A Delivery System Map

33

Ministry

Regional Government

Local Government

Service provider

Citizen

Moving from a delivery ‘chain’….

DISCUSS

With your partner/group draw a delivery chain for your chosen government priority.

Restricted

… to a ‘delivery system’

Local Authority

Primary Care Trust

SchoolSchool Hospital

CitizenFamily

EDUCATION HEALTHSPORT

Youth Sport Trust

Government Office

Health Authority

School Sport Partnerships

Delivery System for PSA 18 – Better Health For All – DH strand

36

National Regional Agencies

Strategic Health

Authorities

Local Community

Key :

Delivery Agencies Delivery mechanisms

Performance Management


of delivery agreements

Influence

GPs & Practices

Patients, People who

need and use

social care, Citizens, Socially

Excluded / Disadvantaged

Groups, Carers….

Equ

itabl

e ou

tcom

es

LAA

s, L

SP

s

= Working jointly and in partnership

Funding, LDPs

Acute / MH Trusts and FTs

Specialist Units / Trusts

join

t co

mm

issi

onin

g

= Department / Agency = national levers and covers HCC, CSCI, NICE, Audit Commission and wider agencies e.g. CQC etc including ‘clinicians’ e.g. GMC, NMC, HPC, etc

= joint local working relationship

Cho

ice

& V

oice

influ

enci

ng p

rovi

sion

and

com

mis

sion

ing

e.g.

LIN

ks

Footnote 1, 07/8 programme to co-locate public health and social care presence in the regions. Footnote 2, consider in light of wider regulatory review.

Competition, pricing, vfm

DH

Workforce advertising, influencing recruitment & retention; NSFs

Legislation (incs EU legislation); health prevention & promotion advertising

Public Health Observatories

provides support

Primary Care Trusts (inc

PBC)

JSN

A

Better Health For All

Delivery System for PSA 18 – Better Health For All – DH/CLG strand

37

National

DCLG

Regional Agencies

Strategic Health

Authorities

Local Community

Key :


Government Offices (incs

PH1)




Influence

GPs & Practices


need and use



Groups, Carers….

Equ

itabl

e ou

tcom

es

Performance Management,

funding

LAA

s, L

SP

s


Funding, LDPs


LA Teams and Specialist LA Units


Social Care providers

Independent providers e.g. ISTCs

Voluntary providersC

omm

issi

onin

g in

cs

jo

int

com

mis

sion

ing

= Department / Agency

Regulators & Inspectorates2

= national levers and covers HCC, CSCI, NICE, Audit Commission and wider agencies e.g. CQC etc including ‘clinicians’ e.g. GMC, NMC, HPC, etc


Cho

ice

& V

oice

influ

enci

ng p

rovi

sion

and

com

mis

sion

ing

e.g.

LIN

ks

Inspect, Reviews & Reports






provides support

environment, housing, roads, schools, benefits, etc


PBC)

Local Authorities inc OSCs

JSN

A

DH


Delivery System for PSA 18 – Better Health For All – Complete system

38

National

DCLG

Regional Agencies

Strategic Health

Authorities

Local Community

Key :


Government Offices (incs

PH1)




Influence

GPs & Practices


need and use



Groups, Carers, etc

Equ

itabl

e ou

tcom

es

DCSF

DWPPerformance Management,

funding

LAA

s, L

SP

s


Funding, LDPs


LA Teams and Specialist LA Units


Social Care providers

Independent providers e.g. ISTCs

Voluntary providersC

omm

issi

onin

g in

cs

jo

int

com

mis

sion

ing

= Department / Agency

Regulators & Inspectorates2

= national levers and covers HCC, CSCI, NICE, Audit Commission and wider agencies e.g. CQC etc including ‘clinicians’ e.g. GMC, NMC, HPC, etc


Cho

ice

& V

oice

influ

enci

ng p

rovi

sion

and

com

mis

sion

ing

e.g.

LIN

ks

HO

Inspect, Reviews & Reports

DCMS



DH

Defra

DIUS

DfT

Cro

ss-g

over

nmen

t w

orki

ng



influence

RDAs, Regional Assemblies, etc

OGD influence


provides support

environment, housing, roads, schools, benefits, etc

OGD influence

regeneration

influ

ence


PBC)

Local Authorities inc OSCs

Business community

JSN

A


What is a delivery chain and what is it for?Components of the best……

1. The outcomes

2. the customer groups

3. The delivery partners

4. The type and nature of the links between the customer groups and delivery partners and how effectively these are driving performance.

5. The flow of funding

Linkage Lines = direct accountability = contract/regulatory = common purpose = wider influence

CLG

3rd Sector

Ofgem

Businesses

Public sector organisation(s)

Development of curriculum;

assessment; and qualificatons

Regulation or inspection organisation(s)

Private sector organisation(s)

3rd sector/voluntary organisations

Description of function

Groupings of similar organisations

Citizens Users of service

A complete version includes……

Business Innovation and Skills

Department for

Education

Department for Work

and Pensions

JCP district offices

JCP local offices

16-18 year olds

Parents/carers/peers

OfstedInspect schools and

colleges; identify and share best practice

Young Persons Learning Agency

16-19 funding; EMA; support for

LA Commissioning

Local Authorities

Commissioning; funding; performance

management of schools and training providers

Government Offices

Agree targets and performance manage LAs

Education and

Training

FE

Apprenticeships

School sixth form

Skills Funding Agency/National Apprenticeship

ServiceApprenticeship

funding; contract management

Businesses

Jobs with and without training

Information Advice and Guidance

LA children’s services

Connexions

Work placements; expertise and innovation to EET; targeted provision

Voluntary sector organisations

Education providersBusinesses

Third sector

NCSL, AoCTraining and development for school and college leaders

14-19 development

Qualifications and curriculum; capital

National Regional Local

Work Based Learning

Education, Training and Employment 16 - 18

Crime Reduction

Community Safety

Partnerships(340)

MoJ

Home Office

CLG

DfE

DoH

BIS

NPIA

National Policing Improvement

Agency ACPOProfessional

association of chief police

officers

HM Court Service

NOMS

10 Govt OfficesRegional

representation of Government

Audit Commission

Audit local authorities

(including police)

NHS

10 SHAEnacting

directives and implementing

policy

43 Police Authorities

Hold the police to account on behalf of

communities

5 CJS Inspectorates

Regulate and inspect CJS in England and

Wales

10 DOMS

Directors of Offender

Management

152 Local Authority

152 Primary Care Trusts

63 Fire Brigades

22,728 Schools

1,121 Hospitals

Health Providers

Landlords

(Also includes police forces, probation areas and Youth Offending Teams)

152 YOT

As probation, for under 18s.

43 Probation Areas

Ensuring provision of interventions to reduce offending

43 Police forces

Responsible for front-line policing

Voluntary Sector Providers

Provision of services in many

CJS areas

Manufacturers

Production of crime-proof

products

Neighbourhood Watch

Witnesses

Victims

Offenders

Family/Peers

Local Criminal Justice

Boards (42)

42 CPS

140 Prisons

626 Courts

(Also includes police forces, probation areas and Youth Offending Teams)

National Regional Local

DISCUSS

With your partner/group convert your delivery chain into a delivery system map by identifying:

• Other Ministry interests• Other regional or local actors• Potential synergies or confusion

Fieldwork – Hypothesis Led Analysis

Checking the Analysis

Issue Rating

Is the outcome clearly defined and understood by all?

-10

+1

The outcome is vagueThe outcome is clear but partners not signed upThe outcome is clear, understood and agreed

Is there sufficient capacity, including resources, to deliver?

-10

+1

No resource assessmentAssessment of resource need undertakenResources are in place

Are roles, responsibilities and accountabilities clear?

-10

+1

People are not clear on their contributionThere are outlines but not agreedPeople know and agree where they fit in

Are staff committed to achieving the goal?

-10

+1

Motivation to achieve the goal is lowThere are too many goalsThe goal is a high priority for everyone

Does the system use robust and timely data on performance?

-10

+1

The goal is hard to measureIndicators are not entirely accurateRegular monitoring and action taken

Are levers and incentives fit for purpose

-10

+1

Few levers or incentives in placeSome incentives in place but not agreedLevers are based on context and ability

DISCUSS

46

1.Consider the process.

2.What relevance does it have for your country?

3.Are there particular priorities where this would

be helpful?

4.Identify how you might apply the approach.

Delivery from a Citizen Perspective

47

Customer Journeys

48

Customer Journey Mapping

Improves Performance

By showing that different groups have different requirements

By revealing pressure points using journey maps

By identifying key issues in current delivery

By prioritising next steps for action


49

OBJECTIVE: To understand what public services are like from a citizen’s perspective. And to analytically track the experience in order to improve efficiency and delivery of outcomes.

WHAT IS REQUIRED:

An approach to mapping contact with citizensAn approach to gathering experienceAn approach to analysing its componentsAn approach to reportingA strategy for intervention


Customer Journey Mapping is the process of tracking and describing the experiences that customers have as they interact with a service(s)

Customer Journey Mapping is the process of tracking and describing the experiences that customers have as they interact with a service(s)

8

Customer experienceThis focuses on the emotional insight of the actual customer who tells the story of their journey. The system (process mapping)Creates a graphic showing the steps, actions, interactions and decisions points as customers interacts with public services Measuring the experienceTo determine how well an experience is being delivered.

Customer experienceThis focuses on the emotional insight of the actual customer who tells the story of their journey. The system (process mapping)Creates a graphic showing the steps, actions, interactions and decisions points as customers interacts with public services Measuring the experienceTo determine how well an experience is being delivered.

Customer segmentation

Attitudes/emotionsAttitudes/emotions

Needs/experiencesNeeds/experiences

Loves & hates, attitudes, beliefs, motivations, strongly held viewsLoves & hates, attitudes, beliefs, motivations, strongly held views

What needs people experience when using a product or serviceWhat needs people experience when using a product or service

HOWPEOPLE THINK &

FEEL

HOWPEOPLE THINK &

FEEL

DIMENSION FOCUS WHAT IT IS

CombinationCombination Combination of who they are, what they do, how they think and feelCombination of who they are, what they do, how they think and feel

MULTI-DIMENSIONAL

MULTI-DIMENSIONAL

ValueValue

BehaviouralBehavioural

Occasion-basedOccasion-based

WHAT PEOPLE

DO

WHAT PEOPLE

DO Situation or occasion people are experiencing, e.g. when they use a service (type of use, length of use)

Situation or occasion people are experiencing, e.g. when they use a service (type of use, length of use)

The way people live, what people do; e.g. how they use a serviceThe way people live, what people do; e.g. how they use a service

How much people spend, or how much they cost to serveHow much people spend, or how much they cost to serve

DemographicDemographic

GeographicGeographic

Age, sex, income, family, social classAge, sex, income, family, social class

Where people live, housing typeWhere people live, housing type

WHO PEOPLE

ARE

WHO PEOPLE

ARE

USED FOR THINGS LIKE…

Developing different policies for advocates and blockersDeveloping different policies for advocates and blockers

Distinguishing between high and low dependency patientsDistinguishing between high and low dependency patients

Identifying high risk groups like older smokers who don’t think much about their health

Identifying high risk groups like older smokers who don’t think much about their health

Offering different anti-smoking measures according to when people smoke

Offering different anti-smoking measures according to when people smoke

Targeting policy interventions at people who drive most dangerously

Targeting policy interventions at people who drive most dangerously

Focusing customer service help on people who make most mistakes

Focusing customer service help on people who make most mistakes

Targeting pension messages at those over a certain ageTargeting pension messages at those over a certain age

Targeting Local initiatives by wardTargeting Local initiatives by ward

Action to prevent repossessions – Customer Journeys 2 – ‘Facing repossession / court’

Objective: Mapping the end-to-end journey for individuals eligible for Government mortgage support schemes Segment: ‘Chris and Natalie’ brought their ex-council home in Leeds in 2006, and have a young son. Chris has been out of work for 10 months since injuring his arm on a building site, Natalie works part time in a supermarket

Key steps on the journey:

Local Authority

Citizen’s Advice Bureau

Shelter

Mortgage lender

Awareness Acceptance Investigation Engagement Review Decision Response Progression

Del

iver

y p

artn

ers

and

act

ors

on

the

jou

rney

DirectGov

Commercial loan providers

Registered Social Landlord

Community care centres

Jobcentre Plus

Version: 1.1

National Debt Hotline

Legal Advice

Action 4 Employment

Nominated Financial Advisor

Commercial Debt Advisor

Rogue Websites

Debt Collection Agencies

County Court

Money Advisory Sites

Media and Press Advertising

a

Experience Summary

Awareness building for vulnerable groups Consistency of lender advice Advisor congestion LA / RSL Handoff

Key pressure points:

Key support experiences:(a) Moment of truth when made aware of support potential

(a) Lack of early awareness, particularly amongst those highly vulnerable delays intervention

(b) The most eligible groups ‘bury their heads’ such that agencies, lenders receive at the last minute

(c) Lender response at point of need varies from highly supportive to aggressively dismissive

(b) Case worker support and guidance throughout the process

(c) For MRS – level of tenancy support from RSLs

ll

e

(d) Advisor congestion, even for those prepared to wait can delay delivery considerably

(e) For MRS cases, the L/A – RSL handoff features assessment rework and some friction

Weight of lender messaging

b

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The RSL approaches the lender to

confirm financial status but does not have written approval –

they have to revert to the

local authority, who call

Natalie back to sign the form

A valuation is arranged, but an

appointment takes 2 weeks to agree – “it was a little frustrating, but they came

soon enough” A second visit

secures a survey so that the RSL

can move to offer

Having agreed a provisional position with the RSL board,

the lender is approached to

confirm the redemption statement –

however Natalie and Chris’ arrears

have mounted, and an agreement is delayed – Chris

begins to worry that the deal might fall through – “every delay makes you worry you will be

back in court”

The RSL case worker calls Natalie to tell her that they are prepared to make an offer – “it was such a

weight off my shoulders –I was in tears” – they

commence the cooling off period and approach an IFA for advice; and they

accept the offer. “We were surprised by the 3%

reduction, but at the end of the day, staying in your home means everything”

Both their RSL and LA case workers reassure them that

they are pursuing a solution –“I can’t thank them enough

for their help”Natalie is asked to

appoint a solicitor to handle the

conveyencing by her RSL – “I was worried

because we didn’t have the money” –

however she is reassured that the

scheme will cover the cost

Finally, the deal is done – “on the day we exchanged contracts, it was a new beginning

for us; Dylan has started nursery, and he

can stay with his friends”

Conveyencing proves a drawn out process

– “I found myself receiving calls from my solicitor asking me what to do!”,

meanwhile letters from their lender

continue to arrive – “I wish we could have frozen everything

with the bank – it was so worrying” – the

tenancy contract also proves a concern – “I just wanted to know what would happen

to us when it expires”

Jobcentre Plus continue to support Chris; and with the

worry of mortgage payments gone, he can focus on the

future – “before I couldn’t see how we could get out, it

consumed all my time, now I have a chance again”

The family receive a visit on the day of exchange from their tenancy officer – “he

was very friendly, and promised to come back

regularly”

Panicking, she goes returns to the council the day before the hearing,

asking for help – “The authority was my only hope – I went to see them about getting a flat to protect

my kids”

Recognising the urgency of her case, she begins a diagnostic to understand

Natalie and Chris’circumstances – “It was

the most incredible relief –to hear someone say ‘I

can help you’”

The following day a Local Authority representative accompanies Natalie

to court – despite her fears, the judge requests time to allow her to

explore options, and asks her lender to apply the pre-action protocol “I

was frightened, but having someone to support you really helped”

Their lender agrees to the court’s request, and litigation letters are

suspended, but demands for repayment continue from automated systems – “We knew that they were

supporting the process, but the letters still came – it’s like being on

the edge of a cliff”

Natalie’s case worker at the local authority thinks that she and Chris may

be eligible for the mortgage rescue

scheme. There is a delay of 10 days to see a money advisor, but

Natalie is happy to wait –“I didn’t want to go back to renting, ideally, but it’s the second best thing to owning your home, and you don’t have to leave

everything behind”

The Financial advice

confirms that the couple are eligible, and

agrees to pass their case to

the local registered

social landlord

On receiving the file, the RSL assigns a case worker, who calls

Chris to tell him what is happening –“They were really helpful too then, telling us that they were looking at

our case”

Chris and Natalie are a low income family – Natalie works part time to care for their son,

Dylan, while Chris is unemployed following an accident at work. They brought their ex council

house in 2006 before Chris lost his job, toward the height of the market, on an interest only basis

With Natalie’s income not enough to cover their mortgage, bills and loan repayments, they examine

advertised websites “We felt forced into a corner – we didn’t

know where to go”

Natalie visits local community

centres regularly with Dylan, and

the council drop in centre to make

monthly payments – however available

mortgage support doesn’t register -“I’m used to going

there, but don’t recall seeing any

publicity”

They have borrowed several times in the past few years, to do

work on the house, and cover shortfall in bills when Chris was first injured.

Chris claims incapacity benefit, but a struggle for

monthly payments are a way of life –

“we’re always juggling – trading one bill off against

another”

When a secondary loan is called in, they miss a monthly payment. It isn’t the first time; they have been in and out of arrears for several

months – “our mortgage terms changed and we didn’t know how to keep up; letters keep

arriving but you hope they will go away”

Their lender runs out of patience and seeks a court

order; “we approached them, but had no support;

no advice”

Natalie is at her wits end as the court approaches “We thought it was the end – that we would lose

our home, and have to move –imagine having to leave your

friends like that, and move your children”

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Customer experience monitor:

Homeowners ‘burying their head in the sand’

Conveyencing delays

(e) For MRS cases, the L/A – RSL handoff features assessment rework and some friction

Detailed Journey Maps

Action to prevent repossessions – Customer Journeys 1 - ‘Newly Indebted’

Objective: Mapping the end-to-end journey for individuals eligible for Government mortgage support schemes Segment: ‘David and Lucy’ - Newly indebted. David was a security supervisor until being made redundant in January. Lucy works full time as a classroom assistant, but on reduced income they have fallen into mortgage arrears


Local Authority


Shelter

Mortgage lender


Del

iver

y p

artn

ers

and

act

ors

on

the

jou

rney

DirectGov




Jobcentre Plus

Version: 1.1



Legal Advice

Action 4 Employment



Rogue Websites


County Court



a

c

h

Experience Summary

Variable online scheme information Reliance on walk in



Key support experiences:(a) Provision of informed advice by front line groups – e.g. CAB

(a) Lack of early awareness and acceptance on the part of the homeowner

(b) Conflicting advice on initial search, particularly online and through television media

(c) Constraint on money advisors leading to delivery delays and increased risk of lender action

(b) Single person case support at local authority and advisory level

(c) Relief at point of rescue; availability of options

b

d

l l l

David and Lucy were both in full time employment, with little

secondary debt, but they borrowed heavily in 2006 to

buy their first home

Shortly after, David’s employer loses a contract and he is made

redundant; Lucy’s wage and savings cover the monthly

payment, but finances are tight. “It was difficult, but I thought that we

could get by”

David remembers seeing press reports in January talking about government

mortgage support – “It seemed like a good idea, but I didn’t know what it really meant at the time”

The savings don’t last however, and David can’t find the job he was

hoping for – the couple miss two monthly payments; letters start

arriving from their bank requesting payment – “I felt so anxious, I could hardly sleep for worry”

Remembering the press report, David searches the web for mortgage support

but can only find independent debt advice –

he doesn’t know the names of the schemes

and is confused – “There are lots of independents out there offering to buy your home and lease it back – but at a big cost”

l l l

t

j

e

David is looking for work, and reluctantly visits his local jobcentre, but he

doesn’t want to sign on –“benefits felt like the option of last resort”

e

David accepts a telephone call from his bank – they agree to suspend action for one month, but the

“lender suggested that we seek support”

Meanwhile the bank notices are building up.

They are now three months in arrears and the letters start to arrive from the litigation team – “it felt excruciating; sheer panic”

f

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l l l

t

t

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k

l

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n

o

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q

r

s

David attends a meeting with a case advisor at the

local authority – he advises a combined package of

benefits support, to include Support for Mortgage Interest and Married

Couples Allowance. The Homeowner Mortgage

Support is considered, but the advisor prefers to follow

“tried and tested options”

Accepting benefits is a tough decision –“I felt ashamed to admit that I couldn’t do this for myself”; but the package is enough, combined with Lucy’s income to enable a repayment plan with the

bank – “you are so relieved that someone is there to support you, after so much heartache and worry” – David

agrees to sign onDWP sent an MI12 form to David’s lender

informing them of SMI support – the volume inbound is high however, and the lender takes time to acknowledge acceptance – “any delay can feel like a lifetime, though you accept that process must be followed”; lenders highlight that early warning and involvement can help

improve speed of response

The couple’s case worker in the housing team is following the situation closely, and keeps in

touch with the bank to ensure the agree package of repayments and move to an interest only mortgage is progressed –“having just one person, who you could

always call with a problem, and who was looking out for you, was a godsend”

A package agreed, the lender calls off court action, and provides advisory support over the

following months. David continues to work with his Jobcentre Plus and employment

agency teams to find new work

t

19 20

21 20

20

David doesn’t feel comfortable going to

an office, so calls several agencies –

“I received conflicting

messages, but people were helpful,

eventually CAB particularly told me

to come in”

After more searching, he finds a link to HMS on the treasury

website – “I thought that I was eligible, but I couldn’t tell where to

go next”. Finally on a forum he sees advice telling him to speak to a money advisor. Meanwhile, his bank call and writing ever more

often – “ there were letters every day, I didn’t want to open them”

David and Lucy make an

appointment to see a Money Advisor,

but the wait at their local centre is 3 weeks. In the

meantime, they can only make a part payment, and the

bank is losing patience – “it had

only been a couple of months, but we

received a final notice”

Panicked Lucy approaches a loan provider she finds online – the deal has high interest rates attached, but “at that

stage, when you face losing your home, you are prepared

to do anything to stay”

They decide to hold the appointment before

opting for the loan, and meet a CAB advisor.

“He was brilliant –explained our options,

and gave us materials”.The advisor calls their lender, and agrees a

further delay of proceedings while the couple are assessed

Completing a financial statement takes two more visits, but their

advisor makes time for them and once

complete, is able to assess their case and refer them to the local authority housing team

While the couple wait to speak to their local authority, letters from their lender still arrive, despite agreeing to

forestall proceedings –“Phone calls stopped, but

letters piled up”

11

12

l l t

16

l l

14 15

171

10

8

2

4

3

9

5

76

(d) Misalignment of communications such that actions (e.g. lender forbearance) and messages conflict

(e) Reliance on face to face engagement; telephone queries meeting mixed response

Advisor congestion

v 13

v 18

Limited customer and delivery partner feedback on Homeowner Mortgage Support (HMSS) means it has not been possible at this stage to qualify the delivery journey fully.

The example shown here reflects local authority feedback of similar cases, but requires qualification through further engagement.

Action to prevent repossessions – Customer Journeys 1 - ‘Newly Indebted’

Objective: Mapping the end-to-end journey for individuals eligible for Government mortgage support schemes Segment: ‘David and Lucy’ - Newly indebted. David was a security supervisor until being made redundant in January. Lucy works full time as a classroom assistant, but on reduced income they have fallen into mortgage arrears


Local Authority


Shelter

Mortgage lender


Del

iver

y p

artn

ers

and

act

ors

on

the

jou

rney

DirectGov




Jobcentre Plus

Version: 1.1



Legal Advice

Action 4 Employment



Rogue Websites


County Court



a

c

h

Experience Summary

Variable online scheme information Reliance on walk in



Key support experiences:(a) Provision of informed advice by front line groups – e.g. CAB

(a) Lack of early awareness and acceptance on the part of the homeowner

(b) Conflicting advice on initial search, particularly online and through television media

(c) Constraint on money advisors leading to delivery delays and increased risk of lender action

(b) Single person case support at local authority and advisory level

(c) Relief at point of rescue; availability of options

b

d

l l l

David and Lucy were both in full time employment, with little

secondary debt, but they borrowed heavily in 2006 to

buy their first home

Shortly after, David’s employer loses a contract and he is made

redundant; Lucy’s wage and savings cover the monthly

payment, but finances are tight. “It was difficult, but I thought that we

could get by”

David remembers seeing press reports in January talking about government

mortgage support – “It seemed like a good idea, but I didn’t know what it really meant at the time”

The savings don’t last however, and David can’t find the job he was

hoping for – the couple miss two monthly payments; letters start

arriving from their bank requesting payment – “I felt so anxious, I could hardly sleep for worry”

Remembering the press report, David searches the web for mortgage support

but can only find independent debt advice –

he doesn’t know the names of the schemes

and is confused – “There are lots of independents out there offering to buy your home and lease it back – but at a big cost”

l l l

t

j

e

David is looking for work, and reluctantly visits his local jobcentre, but he

doesn’t want to sign on –“benefits felt like the option of last resort”

e

David accepts a telephone call from his bank – they agree to suspend action for one month, but the

“lender suggested that we seek support”

Meanwhile the bank notices are building up.

They are now three months in arrears and the letters start to arrive from the litigation team – “it felt excruciating; sheer panic”

f

g

l l l

t

t

i

k

l

m

n

o

p

q

r

s

David attends a meeting with a case advisor at the

local authority – he advises a combined package of

benefits support, to include Support for Mortgage Interest and Married

Couples Allowance. The Homeowner Mortgage

Support is considered, but the advisor prefers to follow

“tried and tested options”

Accepting benefits is a tough decision –“I felt ashamed to admit that I couldn’t do this for myself”; but the package is enough, combined with Lucy’s income to enable a repayment plan with the

bank – “you are so relieved that someone is there to support you, after so much heartache and worry” – David

agrees to sign onDWP sent an MI12 form to David’s lender

informing them of SMI support – the volume inbound is high however, and the lender takes time to acknowledge acceptance – “any delay can feel like a lifetime, though you accept that process must be followed”; lenders highlight that early warning and involvement can help

improve speed of response

The couple’s case worker in the housing team is following the situation closely, and keeps in

touch with the bank to ensure the agree package of repayments and move to an interest only mortgage is progressed –“having just one person, who you could

always call with a problem, and who was looking out for you, was a godsend”

A package agreed, the lender calls off court action, and provides advisory support over the

following months. David continues to work with his Jobcentre Plus and employment

agency teams to find new work

t

19 20

21 20

20

David doesn’t feel comfortable going to

an office, so calls several agencies –

“I received conflicting

messages, but people were helpful,

eventually CAB particularly told me

to come in”

After more searching, he finds a link to HMS on the treasury

website – “I thought that I was eligible, but I couldn’t tell where to

go next”. Finally on a forum he sees advice telling him to speak to a money advisor. Meanwhile, his bank call and writing ever more

often – “ there were letters every day, I didn’t want to open them”

David and Lucy make an

appointment to see a Money Advisor,

but the wait at their local centre is 3 weeks. In the

meantime, they can only make a part payment, and the

bank is losing patience – “it had

only been a couple of months, but we

received a final notice”

Panicked Lucy approaches a loan provider she finds online – the deal has high interest rates attached, but “at that

stage, when you face losing your home, you are prepared

to do anything to stay”

They decide to hold the appointment before

opting for the loan, and meet a CAB advisor.

“He was brilliant –explained our options,

and gave us materials”.The advisor calls their lender, and agrees a

further delay of proceedings while the couple are assessed

Completing a financial statement takes two more visits, but their

advisor makes time for them and once

complete, is able to assess their case and refer them to the local authority housing team

While the couple wait to speak to their local authority, letters from their lender still arrive, despite agreeing to

forestall proceedings –“Phone calls stopped, but

letters piled up”

11

12

l l t

16

l l

14 15

171

10

8

2

4

3

9

5

76

(d) Misalignment of communications such that actions (e.g. lender forbearance) and messages conflict

(e) Reliance on face to face engagement; telephone queries meeting mixed response

Advisor congestion

v 13

v 18

Limited customer and delivery partner feedback on Homeowner Mortgage Support (HMSS) means it has not been possible at this stage to qualify the delivery journey fully.

The example shown here reflects local authority feedback of similar cases, but requires qualification through further engagement.

Making it happen……

End-to-End Customer View

55

I know that I have financial

difficulties

I recognise my home could be

repossessed

I need to find out where I can get help and advice

I am receiving support and

guidance

My case is under review by

relevant parties

I am receiving appropriate support

I am proceeding through court proceedings

Awareness Acceptance Investigation Engagement

Review Decision

I understand what my options

are for help

My decision is now being put into action

Response Progression

Discuss

56

• Think of a service• How easy would you find it accessing your service? • Where are there blockages in the provision of services – from a

citizens point of view?• How often do you, and delivery partners get feedback from

citizens?• To what extent are services personalised to meet the needs of

individuals?• How often do you get out to see the impact of policy on practice?

Some final observations

• Outcomes Matter

• The skills and dynamics of delivery can be analysed and

understood

• The basics of good delivery are key

• Consistency and alignment enhances outcomes

• Systematic intervention can improve systems and outcomes

• Collaboration pays dividends at all levels

• Citizens can co-produce services

Continuing the dialogue…..

Ray Shostak, CBE

[email protected]

Documents

1 An Introduction to Practical Tools to Support Delivery VII CONFERENCE OF THE MONITORING & EVALUTATION NETWORK IN LATIN AMERICA AND THE CARIBBEAN November