An Introduction to Practical Tools to
Support Delivery
VII CONFERENCE OF THE MONITORING & EVALUTATION NETWORK IN LATIN AMERICA
AND THE CARIBBEAN
November 2011
Ray Shostak, CBE
1
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
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
3
Context…….
Individually, think of a policy area
that is a government priority for
delivery………
?
• Identify the outcomes desired
• Identify your role in delivery
4
Outcomes Driven Performance
ACCOUNTABILITY
with
consequences
Government Strategy
Goals/Ambitions
For parliamentary period
To Parliament
Set Whole of Government
PRIORITIES
To
President/Prime
Minister
(for Years1/2/3)
Non
Government
By Institution
By Individual
by and across Ministry
Aligned as Government Plan
Delivery Partners
By Institution
By Individual
CULTURE
•
•
•
•
Government
Policy, Objectives and
Targets
MONITORING,
CAPACITY
BUILDING and
INTERVENTION
BUDGETING FOR
RESULTS
(multiple years)
Programme
budgets against
results
Unit costing
Monitoring
Efficiency
Joint procurement
…….
Programmes, Objectives, Milestones,
Deliverables
Institutions and Individuals
Outcomes for and with citizens
Outcomes focus
Data rich
Can do
Real time
monitoring
• Reform
SKILLS
• Problem solving
• Cost benefit
analysis
• Engagement
• Evaluation
ACTION
When off track
Key Lessons on Delivery
Leadership, focus,
capacity and clarity
Ministries committed to
working together to focus
on agreed outcomes
Shared and clear strategic vision
Sound governance and accountability
arrangements
Prioritising key programmes
Guiding coalition
Taking a citizen centred perspective
Staff knowing it’s ‘the day job’
Understanding
what works and engaging
the delivery system
Knowing what motivates and stimulates
delivery in each part of the delivery system
Understanding the strengths/weaknesses of
general and specific interventions
Citizen insight
Effective performance
management and good
data
Good metrics
Understanding what drives contributing
partners
Good feedback loops – that are used
6
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
Key
characteristics
Clarity about vision
and outcomes
Sets out priority
actions to deliver
the outcomes
Clarity on
incentives,
resources, roles
and responsibilities
throughout the
delivery chain
WHAT NEEDS TO BE IN PLACE
• 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
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
• 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
• 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
• 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
• 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
8
Features of a Delivery Plan/2
Key
characteristics
Effective delivery
partner and
stakeholder
engagement
WHAT NEEDS TO BE IN PLACE
• 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
PITFALLS TO AVOID
• No analysis of delivery partners and stakeholders and how
to influence their expectations and attitudes
• Engagement and communication plans are incomplete or illdefined
• 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
Effective
governance
arrangements
• 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
• 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
Effective
performance,
programme and risk
management
• 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
• 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
9
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
Excellence
and Equity
Front Line
Professionalism
Government enabling
changes through incentives
and support without micromanaging
Strategic
Leadership
An approach to Delivery
Policy Delivery: trajectories
Long Term
Strategic Goal
Mid term Delivery
Contract Goal
95
90
Intermediate progress
indicators or milestones
85
80
75
70
65
Historical performance
60
Policy
Step
A
55
Policy
Step
B
Policy
Step
C
Delivery Indicator
Low Trajectory (policy has a lagged impact)
Mid trajectory
High Trajectory (policy has an immediate impact)
50
1996
1997
1998
Project Plan Streams
Project Plan Streams
1999
2000
2001
2002
2003
2004
2005
2006
2007
2008
2009
2010
The importance of systematic intervention
Performance
Policy (ie.
Performance
Framework,
Excellence, cross
departmental working)
INTERVENTION
WHEN
PROGRESS IS
NOT MEETING
AMBITIONS
Unblocking Delivery
Obstacles
(ie. progress reviews, problem
solving, follow-up work with and
brokering between departments)
Capacity
Building &
Cross Govt
Learning on
Delivery (ie.
knowledge mgmt,
deptl delivery units,
networks & training)
Performance
Monitoring
(ie. Data tracking and
reporting)
Delivery Unit Patterns
‘Go live’
Planning Phase
Activity:
Year 1
• 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*
*Conducted as neccesary
Delivery Phase
Year 2
Year 3
Year 4
Delivery Tools
Scope
Research
of
problem
to solve
Techniques – fieldwork,
desk research,
interviews, workshops
Analysis
Techniques – issue
trees, value chains,
funding flows, value
chains
Specific new
knowledge
captured in clear
presentation
Product
Preparing for Delivery
16
Preparing Ministries for Delivering Performance
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 development
 An approach to collecting evidence of preparedness
 An approach to synthesising the evidence
 An agreement on reporting
17
Overview
Fieldwork
Build a Review Team
Analysis
and
Recommendations
Document Analysis
Interviews and visits
Workshops
Self Assessment
•
•
•
•
Cross Ministry
With officials
With stakeholders
With providers
Report
and
Action
18
Preparing for Delivery
Vision and leadership
Working across Ministries
 Is there a clear, compelling and coherent vision of
what success looks like and why it is important?
 Is the goal sufficiently prioritised and linked to other
strategies and objectives in relevant Ministries?
 Is there leadership at national and local level and is it
committed to driving delivery?
Is there a structure (Board) and clear accountability for
delivery among Ministries?
 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?
s there strong co-operation and teamwork among
officials at all levels in Ministries to drive delivery?
 Is there regular communication of the vision and its
implications to enthuse and inspire delivery partners?
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?
 Is there shared commitment to take difficult decisions
and capability to actively remove barriers to delivery?
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 nonperformance?
 Are the right skills, resources and structures in place
to drive delivery?
DISCUSS
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?
20
Preparing for Delivery
Working across Ministries
Vision and leadership
 Is there a clear, compelling and coherent vision of
whatLeadership
success looks like and why it is important?
Clarity of vision
 Is the goal sufficiently prioritised and linked to other
Joint teams and
Cross and
Ministry
strategies
objectives in relevant Ministries?
 Is there leadership at national and local level and is it
committed to driving delivery?
Is there a structure (Board) and clear accountability for
delivery among Ministries?
Links to other
Shared
Clarity of delivery
Ministerial
agreement
 Is there a clarity
of who is responsible
within the
commitment
Ministry for the delivery of the vision and outcomes- and
do they demonstrate effective leadership?
Inspiring
What success looks
communication
 Is there
regular communication of the
vision and its
like
representation
shared burdens
work
s there strong co-operation
and teamworkincentives
among
officialsOfficials
at all levels
in
Ministries
to
drive
delivery?
understand
consequences
of non Is there
shared commitment
to takeSpecific
difficult Ministry
decisions
resources
delivery
and capability to actively remove barriers to delivery?
implications to enthuse and inspire delivery partners?
The delivery system
Performance and Programme Management
 Is there
a shared and clear understanding of the
Stakeholder
User engagement
delivery
network
including what works,
levers,
management
in planning
responsibilities and capabilities?
 Are delivery
partners clear about andHow
agree
to their
Understanding
Ministries
evidence
work with the
role in delivering
theand
ambition?
sharing what works
system
 Are delivery partners capable and empowered to
deliver local initiatives and share good practices?
 Is there effective plan of action, programme and risk
Role and skills of
Overall allocation
management
across the delivery system?
policy and
of resources
teams
Isdelivery
there high-quality
and timely performance
information, supported by analytical capability, which
Data,and
baselining,
Availability of
informs local
strategic decisions?
trajectories
performance
Delivery through
Is there robust alignment between interventions
incentives and
delivery, and between corrective action and nonperformance?
Quality of
voluntary sectors
planning
 Are
the right skills, resources andmanagement
structures in place
to drive delivery?
Capability
of the
Is there active engagement with citizens
to understand
regional, local,
system
itself
what works and
what they want?
private and
PPM and Risk
21
Overview
Fieldwork
Build a Review Team
Analysis
and
Recommendations
Document Analysis
Interviews and visits
Workshops
Self Assessment
•
•
•
•
Cross Ministry
With officials
With stakeholders
With providers
Report
and
Action
22
Fieldwork – Hypothesis Led Analysis
Lines of
Enquiry
•
•
•
•
Desk Research
Analyse Data Set and Build and Issues Tree
Stakeholder Workshop
Develop Preliminary Lines of Enquiry
•
•
Main
•
Obstacles •
Criteria led Site visits
Stakeholder, official and citizen workshops
Interviews
Front line observation
•
•
Judgement •
•
Revise Issues Tree
Review Team Workshop
Test Results and Recommendations
Calibrate Actions
Overview
Fieldwork
Build a Review Team
Analysis
and
Recommendations
Document Analysis
Interviews and visits
Workshops
Self Assessment
•
•
•
•
Cross Ministry
With officials
With stakeholders
With providers
Report
and
Action
24
Recommendations
Actions
Recommendations and
and Actions
 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
25
DISCUSS
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.
26
Understanding a Delivery System
27
Understanding and Improving Delivery Systems
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 system
An approach to analysing its components
An approach to gathering evidence
An agreement on reporting
A strategy for intervention
28
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
29
Audit Commission Delivery
chain workshop
Some key questions on delivery systems
Which
organisations
have a role in
delivering my
goal?
What may be
preventing
them from
contributing to
my goal?
UNDERSTANDING
THE DELIVERY
SYSTEM
Are all these
organisations
effectively
contributing to
my goal?
How can I
improve the
prospects for
delivery?
A Three Stage Approach
Stage 1
Map the
delivery
system
Stage 2
Analyse the
delivery
system
 Identify who needs to do
something to deliver the
ambition
 Identify gaps in your
understanding of the
chain
 Group actors
 Undertake fieldwork
 Identify what each actor
needs to do
 Carry out the ‘links
analysis’ to fill
knowledge gaps
Stage 3
Intervene
 Communicate and
address identified
weaknesses
A Delivery System Map
• 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
Moving from a delivery ‘chain’….
Ministry
Regional Government
Local Government
Service provider
Citizen
33
DISCUSS
With your partner/group draw a delivery chain
for your chosen government priority.
Restricted
… to a ‘delivery system’
EDUCATION
SPORT
HEALTH
Youth Sport
Trust
School Sport
Partnerships
School
Family
Government
Office
Health
Authority
Local
Authority
Primary
Care Trust
School
Hospital
Citizen
Delivery System for PSA 18 – Better Health For All – DH
strand
Better Health For All
Legislation (incs EU legislation); health prevention & promotion advertising
Funding, LDPs
National
Key :
Regional Agencies
= Department / Agency
= Working jointly and in partnership
Performance
Management
of delivery
agreements
Delivery Agencies
joint commissioning
Influence
Strategic
Health
Authorities
JSNA
Performance
Management
LAAs, LSPs
DH
Competition, pricing,
vfm
Primary Care
Trusts (inc
PBC)
Acute / MH Trusts
and FTs
GPs & Practices
Specialist Units /
Trusts
Delivery mechanisms
Patients,
People who
need
and use
social care,
Citizens,
Socially
Excluded /
Disadvantaged
Groups,
Carers….
Equitable outcomes
Workforce advertising, influencing recruitment & retention; NSFs
and commissioning e.g. LINks
provides support
Choice & Voice influencing provision
Public Health
Observatories
Local Community
= 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
Footnote 1, 07/8 programme to co-locate public health and social care presence
36
in the regions. Footnote 2, consider in light of wider regulatory review.
Delivery System for PSA 18 – Better Health For All – DH/CLG
strand
Better Health For All
Legislation (incs EU legislation); health prevention & promotion advertising
Funding, LDPs
joint commissioning
Local
Authorities
inc OSCs
environment, housing, roads,
schools, benefits, etc
Commissioning incs
Performance
Management,
funding
Government
Offices (incs
PH1)
Performance
Management
of delivery
agreements
JSNA
Influence
DCLG
Strategic
Health
Authorities
LAAs, LSPs
Performance
Management
DH
Competition, pricing,
vfm
Primary Care
Trusts (inc
PBC)
Acute / MH Trusts
and FTs
GPs & Practices
Specialist Units /
Trusts
LA Teams and
Specialist LA Units
Social Care providers
Independent providers
e.g. ISTCs
Patients,
People who
need
and use
social care,
Citizens,
Socially
Excluded /
Disadvantaged
Groups,
Carers….
Equitable outcomes
Workforce advertising, influencing recruitment & retention; NSFs
and commissioning e.g. LINks
provides support
Choice & Voice influencing provision
Public Health
Observatories
Voluntary providers
Regulators &
Inspectorates2
National
Key :
Inspect, Reviews & Reports
Regional Agencies
= Department / Agency
= Working jointly and in partnership
Delivery Agencies
Delivery mechanisms
Local Community
= 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
Footnote 1, 07/8 programme to co-locate public health and social care presence
37
in the regions. Footnote 2, consider in light of wider regulatory review.
Delivery System for PSA 18 – Better Health For All –
Complete
system For All
Better Health
Legislation (incs EU legislation); health prevention & promotion advertising
Funding, LDPs
DCSF
Performance
Management,
funding
HO
influence
DCMS
Defra
OGD
influence
RDAs, Regional
Assemblies, etc
DIUS
OGD influence
DfT
Local
Authorities
inc OSCs
influence
DWP
Government
Offices (incs
PH1)
environment, housing, roads,
schools, benefits, etc
regeneration
Business
community
Regulators &
Inspectorates2
National
Key :
joint commissioning
Performance
Management
of delivery
agreements
Commissioning incs
Cross-government working
DCLG
JSNA
Influence
Strategic
Health
Authorities
LAAs, LSPs
Performance
Management
DH
Competition, pricing,
vfm
Primary Care
Trusts (inc
PBC)
Acute / MH Trusts
and FTs
GPs & Practices
Specialist Units /
Trusts
LA Teams and
Specialist LA Units
Social Care providers
Independent providers
e.g. ISTCs
Patients,
People who
need
and use
social care,
Citizens,
Socially
Excluded /
Disadvantaged
Groups,
Carers, etc
Equitable outcomes
Workforce advertising, influencing recruitment & retention; NSFs
and commissioning e.g. LINks
provides support
Choice & Voice influencing provision
Public Health
Observatories
Voluntary providers
Inspect, Reviews & Reports
Regional Agencies
= Department / Agency
= Working jointly and in partnership
Delivery Agencies
Delivery mechanisms
Local Community
= 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
Footnote 1, 07/8 programme to co-locate public health and social care presence
38
in the regions. Footnote 2, consider in light of wider regulatory review.
Components of the best……
What is a delivery chain and what is it for?
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
A complete version includes……
CLG
Ofgem
Businesses
3rd Sector
Citizens
Development of
curriculum;
assessment; and
qualificatons
Public sector organisation(s)
Regulation or inspection organisation(s)
Private sector organisation(s)
3rd sector/voluntary organisations
Users of service
Description of function
Groupings of similar organisations
Linkage Lines
=
=
=
=
direct accountability
contract/regulatory
common purpose
wider influence
Education, Training and Employment 16 - 18
Regional
National
Local
Ofsted
Businesses
Inspect schools and
colleges; identify and
share best practice
Voluntary sector
organisations
Education providers
Work placements; expertise and innovation to EET;
targeted provision
Parents/
carers/peers
NCSL, AoC
Training and
development
for school and
college leaders
Business
Innovation
and Skills
Education
and
Training
Skills Funding
Agency/National
Apprenticeship
Service
Apprenticeship
funding; contract
management
Local Authorities
Commissioning;
funding; performance
management of schools
and training providers
Young Persons
Learning Agency
16-19 funding;
EMA; support for
LA Commissioning
Department
for
Education
Information
Advice and
Guidance
Connexions
LA
children’s
services
Third sector
Businesses
Government Offices
14-19 development
Qualifications and
curriculum; capital
Department
for Work
and
Pensions
School sixth form
FE
Work Based Learning
Apprenticeships
Jobs with and without training
Agree targets and
performance
manage LAs
JCP district
offices
JCP local
offices
16-18
year
olds
Crime Reduction
National
Regional
HM Court
Service
MoJ
10 DOMS
NOMS
Home Office
5 CJS
Inspectorates
NPIA
CLG
National Policing
Improvement
Agency
10 Govt
Offices
DfE
Directors of
Offender
Management
Regional
representation of
Government
Audit
Commission
Audit local
authorities
(including police)
Regulate and
inspect CJS in
England and
Wales
ACPO
Professional
association of
chief police
officers
43 Police
Authorities
Hold the police to
account on
behalf of
communities
10 SHA
BIS
Local
Criminal
Justice
Boards (42)
42 CPS
140 Prisons
626 Courts
Witnesses
(Also includes police forces, probation
areas and Youth Offending Teams)
43 Probation
Areas
Neighbourhood
Watch
Ensuring provision
of interventions to
reduce offending
152 YOT
DoH
NHS
Local
Enacting
directives and
implementing
policy
As probation, for
under 18s.
43 Police
forces
Voluntary Sector
Providers
Victims
Provision of
services in many
CJS areas
Responsible for
front-line policing
152 Local Authority
152 Primary Care Trusts
Community
63 Fire Brigades
Safety
22,728 Schools
Partnerships
1,121 Hospitals
(340)
Health Providers
Landlords
(Also includes police forces, probation
areas and Youth Offending Teams)
Offenders
Family/Peers
Manufacturers
Production of
crime-proof
products
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
Lines of
Enquiry
•
•
•
•
Desk Research
Analyse Data Set and Build and Issues Tree
Stakeholder Workshop
Develop Preliminary Lines of Enquiry
•
•
Main
•
Obstacles •
Criteria led Site visits
Stakeholder, official and citizen workshops
Interviews
Front line observation
•
•
Judgement •
•
Revise Issues Tree
Review Team Workshop
Test Results and Recommendations
Calibrate Actions
Checking the Analysis
Issue
Rating
Is the outcome clearly
defined and understood
by all?
-1 The outcome is vague
0 The outcome is clear but partners not signed up
+1 The outcome is clear, understood and agreed
Is there sufficient
capacity, including
resources, to deliver?
-1 No resource assessment
0 Assessment of resource need undertaken
+1 Resources are in place
Are roles,
responsibilities and
accountabilities clear?
-1 People are not clear on their contribution
0 There are outlines but not agreed
+1 People know and agree where they fit in
Are staff committed to
achieving the goal?
-1 Motivation to achieve the goal is low
0 There are too many goals
+1 The goal is a high priority for everyone
Does the system use
robust and timely data
on performance?
-1 The goal is hard to measure
0 Indicators are not entirely accurate
+1 Regular monitoring and action taken
Are levers and
incentives fit for purpose
-1 Few levers or incentives in place
0 Some incentives in place but not agreed
+1 Levers are based on context and ability
DISCUSS
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.
46
Delivery from a Citizen Perspective
47
Customer Journeys
By showing that different groups
have different requirements
Customer Journey
Mapping
Improves Performance
By revealing pressure points
using journey maps
By identifying key issues in
current delivery
By prioritising next steps for
action
48
Customer Journey Mapping
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 citizens
An approach to gathering experience
An approach to analysing its components
An approach to reporting
A strategy for intervention
49
Customer Journey Mapping
Customer Journey Mapping is the process of tracking
and describing the experiences that customers have as
they interact with a service(s)
Customer experience
This 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 experience
To determine how well an experience is being delivered.
8
Customer segmentation
DIMENSION
WHO
PEOPLE
ARE
WHAT
PEOPLE
DO
FOCUS
Age, sex, income, family,
social class
Targeting pension messages
at those over a certain age
Geographic
Where people live, housing type
Targeting Local initiatives by
ward
Value
How much people spend, or how
much they cost to serve
Demographic
Behavioural
Occasion-based
HOW
PEOPLE
THINK &
FEEL
MULTIDIMENSIONAL
WHAT IT IS
USED FOR THINGS
LIKE…
Focusing customer service
help on people who make
most mistakes
Targeting policy interventions
The way people live, what people at people who drive most
do; e.g. how they use a service
dangerously
Situation or occasion people are
Offering different antiexperiencing, e.g. when they use a smoking measures according
service (type of use, length of use) to when people smoke
Attitudes/emotions
Loves & hates, attitudes, beliefs,
motivations, strongly held views
Developing different policies
for advocates and blockers
Needs/experiences
What needs people experience
when using a product or service
Distinguishing between high
and low dependency patients
Combination
Identifying high risk groups
Combination of who they are, what
like older smokers who don’t
they do, how they think and feel
think much about their health
Detailed Journey Maps
Action to prevent repossessions – Customer Journeys
1 - ‘Newly Indebted’
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
Objective: Mapping the end-to-end journey for individuals eligible for Government mortgage support schemes
Key steps on the journey:
Awareness
Acceptance
Local Authority
b
Citizen’s Advice Bureau
Delivery partners and actors on the journey
Shelter
DirectGov
Media and Press Advertising
h
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”
2
National Debt Hotline
c
Money Advisory Sites
e
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”
Legal Advice
County Court
Community care centres
Jobcentre Plus
5
Debt Collection Agencies
Commercial loan providers
Commercial Debt Advisor
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”
d
a
Registered Social Landlord
t
t
g
10
9
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”
14
Review
15
16
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
k
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
l
Variable online scheme information
Experience Summary
Key pressure points:
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”
s
(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
p
(c) Constraint on money advisors
leading to delivery delays and
increased risk of lender action
19
t
12
David accepts a
telephone call from his
bank – they agree to
suspend action for
one month, but the
“lender suggested that
we seek support”
Version: 1.1
Progression
20
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”
o
17 l l
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”
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”
(d) Misalignment of communications
such that actions (e.g. lender
forbearance) and messages conflict
20
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 on
i
l l
Response
v 18
Advisor congestion
Customer experience
monitor:
Decision
m
l l l
7
v 13
11
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”
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”
j
f
l l l e 6
4 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
Nominated Financial Advisor
t
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”
3
Engagement
n
8
Rogue Websites
1
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”
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”
Action 4 Employment
Mortgage lender
Investigation
21
q
r
(e) Reliance on face to face
engagement; telephone queries
meeting mixed response
20
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
DWP 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
Key support experiences:
(a) Provision of informed advice by
front line groups – e.g. CAB
t
(b) Single person case support at
local authority and advisory level
Weight of lender messaging
Reliance on walk in
(c) Relief at point of rescue;
availability of options
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
2 – ‘Facing repossession / court’
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
Objective: Mapping the end-to-end journey for individuals eligible for Government mortgage support schemes
Key steps on the journey:
Awareness
Local Authority
h
Delivery partners and actors on the journey
Media and Press Advertising
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”
National Debt Hotline
Money Advisory Sites
Legal Advice
County Court
Community care centres
Jobcentre Plus
Action 4 Employment
Rogue Websites
Debt Collection Agencies
Nominated Financial Advisor
Commercial Debt Advisor
Registered Social Landlord
Customer experience
monitor:
9
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”
Shelter
DirectGov
Commercial loan providers
Investigation
v
Citizen’s Advice Bureau
Mortgage lender
Acceptance
b
c
8
e
6
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”
2
5 l
l l
t t l
7
4
d
a
11
m
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
f
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”
12 l l l 13
n
l
l
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”
15
16 l l
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
Response
workers reassure them that
they are pursuing a solution –
“I can’t thank them enough
for their help”
r
Advisor congestion
Experience Summary
q
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”
18
t
22
(a) Lack of early awareness,
particularly amongst those highly
vulnerable delays intervention
u
18
l l
l
21
23
Conveyencing delays
(b) The most eligible groups ‘bury
their heads’ such that agencies,
lenders receive at the last minute
w
24
s
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”
20
LA / RSL Handoff
Key pressure points:
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
Weight of lender messaging
Consistency of lender advice
Version: 1.1
Progression
19 Both their RSL and LA case
o
l
k
Homeowners ‘burying their head in the sand’
Awareness building for vulnerable groups
15
17
The Financial
advice
confirms that
the couple are
eligible, and
agrees to pass
their case to
the local
registered
social landlord
Decision
p
Their lender runs out of
patience and seeks a court
order; “we approached
them, but had no support;
no advice”
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”
16
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”
j
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”
Review
14
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’”
i
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”
3
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
10 Recognising the urgency
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”
g
v
1
Engagement
26
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
25 so worrying” – the 27
tenancy contract also
proves a concern – “I
just wanted to know
what would happen
to us when it expires”
29
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”
v
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”
28
(c) Lender response at point of
need varies from highly supportive
to aggressively dismissive
(d) Advisor congestion, even for
those prepared to wait can delay
delivery considerably
x
The family receive a visit on
the day of exchange from
their tenancy officer – “he
was very friendly, and
promised to come back
regularly”
30
(e) For MRS cases, the L/A – RSL
handoff features assessment
rework and some friction
(e) For MRS cases, the L/A – RSL
handoff features assessment
rework and some friction
Key support experiences:
(a) Moment of truth when made
aware of support potential
(b) Case worker support and
guidance throughout the process
(c) For MRS – level of
tenancy support from RSLs
Action to prevent repossessions – Customer Journeys
1 - ‘Newly Indebted’
Segment: ‘David and Lucy’ - New
Objective: Mapping the end-to-end journey for individuals eligible for Government mortgage support schemes
Key steps on the journey:
Awareness
Acceptance
Local Authority
b
Citizen’s Advice Bureau
Delivery partners and actors on the journey
Shelter
DirectGov
Media and Press Advertising
h
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”
2
National Debt Hotline
c
Money Advisory Sites
e
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”
Legal Advice
County Court
Community care centres
5
Rogue Websites
Debt Collection Agencies
Commercial loan providers
Nominated Financial Advisor
Commercial Debt Advisor
Registered Social Landlord
Customer experience
monitor:
4 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
a
d
t
t
f
l l l e 6
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”
g
10
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”
7
9
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”
l l l
v 13
11
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”
j
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”
Action 4 Employment
1
t
8
3
Mortgage lender
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”
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”
Jobcentre Plus
Investigation
k
i
l l
12
David accepts a
telephone call from his
bank – they agree to
suspend action for
one month, but the
“lender suggested that
we seek support”
l
Advisor congestion
Variable online scheme information
Reliance on walk in
Pan
loan
– th
rat
stag
your
t
Making it happen……
Map the Delivery
System and
Segment the
Customer Group
• Map the delivery system
• Identify the similarities and
differences of citizens
Build End to End
Process
• From a process perspective
• From a citizen perspective
• From a quality/outcome
perspective
Fieldwork and
Analysis
•
•
•
•
Talk to citizens and focus groups
Sit in on interactions
Mystery shopping
Workshops with stakeholders and
providers
End-to-End Customer View
Awareness
I know that I
have
financial
difficulties
Review
My case is
under review
by relevant
parties
Acceptance
I recognise my
home could be
repossessed
Decision
I understand
what my
options are
for help
Investigation
I need to find
out where I
can get help
and advice
Response
My decision is
now being put
into action
Engagement
I am receiving
support and
guidance
Progression
I am receiving
appropriate support
I am proceeding through
court proceedings
55
Discuss
• 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?
56
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
ray@shostak.uk.com