Balanced scorecard in the Nordic countries - public sector experiences Dr. Nils-Göran Olve www.cepro.se; www.ida.liu.se/labs/eis/people/ngolve.html ”The Nordic countries”? 2002 © ConcoursCepro. All Rights Reserved. 1 The Concours Group Concours (kôn’körs’,-körs’) n. the act of moving or flowing together … from the Middle English and Old French … to assemble. Founded in 1997 • Independent • Growing Successfully Distributed Offices across North America and Europe and in Sydney, Australia Stockholm office, CEPRO, founded in 1968 as a separate company. 2002 © ConcoursCepro. All Rights Reserved. 2 Offering three integrated services Research Education Consulting 2002 © ConcoursCepro. All Rights Reserved. 3 First published in 1997, revised in 1999 (Also in Finnish 1998) Wiley 1999; now translated also into Spanish, Japanese, Korean, Portuguese and Dutch Capstone 2002 2002 © ConcoursCepro. All Rights Reserved. Agenda • Why scorecards became popular in the Nordic countries • Scorecard use in the public sector • Some ideas for scorecard implementation and use 2002 © ConcoursCepro. All Rights Reserved. 5 Why scorecards became popular in the Nordic countries 2002 © ConcoursCepro. All Rights Reserved. 6 350 SEK (bill.) Assets 250 (=”Intellectual Capital”?) ”Market Cap”, shareholder value Premium During the past four years ”Unseen wealth”?- Ericsson’s value Equity Liabilities 2002 © ConcoursCepro. All Rights Reserved. 7 The Balanced Scorecard Financial Perspective Goals Internal Process Perspective Customer Perspective Goals Yesterday Measures Measures Vision Goals Measures Today Learning and Growth Perspective Goals Measures Tomorrow Kaplan & Norton (1992, 1996, 2000) 2002 © ConcoursCepro. All Rights Reserved. From vision to action -- responsible: __________________ Vision:…... Critical Success Factors Metrics and targets Action plans Development & renewal Processes / Internal efficiency Customers Financial / Owners / Management Strategic aims 2002 © ConcoursCepro. All Rights Reserved. 9 The Balanced Scorecard Strategy Map (Robert Kaplan, 2000) Improve Shareholder Value Financial Perspective Shareholder Value ROCE Revenue Growth Strategy Build the Franchise Increase Customer Value New Revenue Services Improve Cost Structure Customer Profitability Customer Acquisition Productivity Strategy Cost per Unit Improve Asset Utilization Asset Utilization Customer Retention Product Leadership Customer Intimacy Customer Perspective Customer Value Proposition Product/Service Attributes Price Quality Time Learning & Growth Perspective Relationship Function Service Image Relations Brand Customer Satisfaction “Build the Franchise” Internal Perspective Operational Excellence “Increase Customer Value” “Operational Excellence” (Customer Management Processes) (Operations & Logistics Processes) (Innovation Processes) “Good Neighbor” (Regulatory & Environmental Processes) A Motivated and Prepared Workforce Strategic Competencies 2002 © ConcoursCepro. All Rights Reserved. Strategic Technologies Climate for Action 10 Where we are now: reflections on the current state of BSC projects • Great interest: – 27% of BUs in large Nordic firms in 1999, 61% ”within 2 years” – One Swede in 600 bought the book, plus other books – ”Gartner estimates that 40% of the Fortune 1000 companies will have a Balanced Scorecard in place by the end of 2000” • But: Disappointments not uncommon: – just an empty shell and CEO rhetoric – just one more software package – just additional key ratios • How it was meant: a communication tool to… – agree on tasks – communicate experiences – celebrate success and learn from it 2002 © ConcoursCepro. All Rights Reserved. Down to individual employees • A format for discussing expectations and achievements, and creating trust and motivation • Empowered employees cannot be programmed. They need to share the vision • Companies increasingly ask employees to share in building future capabilities ”on speculation”: – building customer relations – developing new skills and ways of operating – documenting for the future – …... People need guidance and motivation for this! 2002 © ConcoursCepro. All Rights Reserved. 12 To tell the story of our vision • …to our employees • …to customers, partners and others whom we engage in our ”imaginary organization” • …to the market for new talents • …to our owners and banks • …to society at large Not a static value, but a convincing and dynamic logical case why our way of preparing for the future will be rewarded! 2002 © ConcoursCepro. All Rights Reserved. 13 Scorecard use in the public sector 2002 © ConcoursCepro. All Rights Reserved. 14 The public sector in Sweden • 289 primary local authorities (municipalities; ”communes”) – roads, schools, welfare… • 21 counties (”secondary communes”) – health services, public transit etc • >300 government authorities, boards, committees etc – Post, railroad etc are state-owned companies which are gradually being deregulated and opened to competition – Tradition of greater independence from government than in most countries 2002 © ConcoursCepro. All Rights Reserved. 15 Books and booklets have been produced, and sometimes distributed free of charge, by organizations like the Association of local authorities and the National Financial Management Authority 2002 © ConcoursCepro. All Rights Reserved. 16 State level: the Swedish government • Several attempts, but no major examples • The ”Legal, Financial and Administrative Services Agency” a pioneer • Mostly on local level – and some cases where existing metrics have been restructured according to four (or five) scorecard perspectives • Encouragement from the Swedish National Financial Management Authority: book, conferences, community 2002 © ConcoursCepro. All Rights Reserved. 17 The Swedish Police • National Police Board + 21 county Police authorities • Scorecard projects in several counties: – Voluntary; encouraged from the national level – Participation a central theme – Often very down-to-earth and concrete, starting on operative level – No coherence and still after several years no unifying project. But local scorecard activities persist 2002 © ConcoursCepro. All Rights Reserved. 18 A Finnish state example • Third stage of development program for the management of the Road, railroad and maritime administration • Proposes BSC-like model • Indicators: 1) describe current situation, 2) monitor development • Used in connection with budgetary planning. Measures to be reported in March and November each year. • Ministry of communication to develop method for tracking the situation continuously for all transportation in Finland, beginning in 2001 2002 © ConcoursCepro. All Rights Reserved. 19 Department of Internal Medicine Hospital of Hoegland County level: Jönköping one of the leaders Department of internal medicine, Högland hospital Further traing staff (5 days/year) Net budget 100% Objectives in percent Personnel costs Results in percent 80% Further training doctors (10 days/year) Medicine costs 60% 40% Colleague discourse Laboratory costs (incl X-ray + MRI) 20% 0% Work satisfaction Discharge letter (from discharge to sending) Patient's satisfaction w ith care Care guarantee 3 months Care guarantee 1 month 2002 © ConcoursCepro. All Rights Reserved. Medical variables Hospital stay in percent of beds available Number of patient occasions 20 Hospitals in the Stockholm region ”4 P”: • Patients • ”Personal” = employees • ”Pengar” = money • Processes Patients Employees Processes Money 2002 © ConcoursCepro. All Rights Reserved. 21 Aiming for virtuous circles Patients Will attract competent staff Employees Processes Will attract contracts from purchasing authorities Money 2002 © ConcoursCepro. All Rights Reserved. 22 Finnish public servants to be measured with BSC • Decision in 2000 to develop a model based on ”useful and valid multidimensional (BSC) systems for evaluating and informing about the results of local government activities, to support strategic activities and personnel leadership”. Factors to take into account: – Service effectiveness (available, adapted to needs) – Service quality – Customer satisfaction – Productivity – Profitability – Agility of service processes – Employee ability 2002 © ConcoursCepro. All Rights Reserved. 23 Local government level: BSC in Swedish local authorities • At least 30 (of 289) have more extensive projects • About half of these only for city government use • Three or four are implementing complete ’balanced steering’ • Schools and welfare are the most popular areas for scorecards 2002 © ConcoursCepro. All Rights Reserved. 24 Helsingborg - 1 • Two years of education and tests • Project organization with: – Steering group with political representatives (members of city government) – Project team consisting of 14 project leaders. These answer for their areas, but grouped in new constellations (eg, environment+construction+ technology) • Scorecards on (at least) three levels, but only some metrics are aggregable • ”Without digitization scorecards will die” • Participation, dialogues – cf. Helsingør (”DW but no process), but yet they collaborate… 2002 © ConcoursCepro. All Rights Reserved. 25 Helsingborg - 2 • ”By describing activities from several perspectives knowledge about the whole increases and deepens. It becomes easier to carry on a dialogue about activities, to prioritize, follow up and evaluate. Balanced steering creates a learning process, where the emphasis is on the future and on development.” • ”All activity areas shall develop balanced scorecards, the contents of which shall be of a general nature and form the basis for comparisons within and between different units and activities over time, where possible. The scorecards shall be accessible for citizens, employees and other interested parties within accepted ethical norms. They shall be easy to understand and clear for different constituencies so that each and every one without specific pre-knowledge shall understand their contents. The information in the scorecards shall in a simple explanatory way be possible to trace to their source, in order to achieve optimal credibility.” 2002 © ConcoursCepro. All Rights Reserved. 26 Helsingborg - 3 • Began with seminars in the committees for welfare, education etc. • Don’t go too fast – important to have many involved • Not much was entirely new. Some were concerned that BSC would duplicate existing quality management projects • Important to include contractors who carry out the actual activities • Balance handbooks: Who measures? How often? How are measures organized and presented? • Politicians first informed, than involved 2002 © ConcoursCepro. All Rights Reserved. 27 Balanced Steering Subgoal 1. Scorecard proposals - 2002-03-15 Content: * Vision and activity idea / area of activity. * Four perspectives: Economy/Customer/Process/Future * Three indicators per perspective * Explanation: [ CSF-goal-how-indicator ] * Balance handbook: [ CSF-Indicators-aim-methodresponsibility-execution-frequency-perspective] 2002 © ConcoursCepro. All Rights Reserved. 28 Ex. Project organization Balanced Steering SUBPROJECTS Political steering group WELFARE PROJECT TEAM •County council representatives * Project leadership (empl) * Project leader * Subroject leaders EDUCATION TECHNOLOGY RESOURCE GROUP * Finance. * Personnel. * IT DEVELOPMENT CULTURE 2002 © ConcoursCepro. All Rights Reserved. 29 2002 © ConcoursCepro. All Rights Reserved. 30 Balanserat styrkort - Insatser för äldre Ekonomi / Finans Kommuninvånare / Brukare Framgångsfaktorer: 1. Rättssäkerhet 2. Respektfullt bemötande 3. Delta i den offentliga debatten Framgångsfaktorer: Använda ändliga resurser effektivt Indikatorer: 1. Utfall / budget 1.1 Prisutveckling utöver budget 1.2 Volymutveckling utöver budget Värde: 102 % 0,0 % 0,6 % Mål: 100 % 0% 0% Helsingborg kännetecknas av hög tillgänglighet. Bostadsområden, närservice, kollektivtrafik, vägar och gator är anpassade för att alla enkelt ska kunna ta sig fram i staden. Även de som har begränsad rörlighet kan delta i samhällslivet. Framgångsfaktorer: 1. Uppföljning av att beslut genomförs 2. Rätt kvalitet 3. God tillgänglighet 4. Attitydförändring Indikatorer: 1. Andel inkomna handlingsplaner 2 Andel inkomna kvalitetsplaner 3. Telefoniuppföljning Indikatorer: Värde: 1. Andel nöjda kunder 1.1 Antal inlämnade besvär till Länsrätten 1.2 Antal bifall i Länsrätten 0 2. Antal klagomål avseende bemötande 47 I Helsingborg tar varje invånare ansvar för sig själv. Var och en planerar för sin egen livssituation - och sin egen ålderdom. Målet är god hälsa och eget boende på egna villkor, så länge som möjligt. Vården och omsorgen i Helsingborg kan erbjuda flera alternativ. Man arbetar inte minst förebyggande, för att underlätta ett självständigt liv i eget boende. Alla kan förlita sig på att få omvårdnad när behovet finns och på att få inflytande över vårdens utformning. Värde: 9,4 % 0% - 2002 © ConcoursCepro. All Rights Reserved. Process / Arbetssätt Framgångsfaktorer: 1. Aktiva medborgare 2. Möjliggöra kvarboende i närområdet Indikatorer: Värde: 1. Antal medborgarprojekt 2 2. Andel av befolkningen över 65 år i särskilda boendeformer 5,6 % 2.1 Andel av bef över 65 år med insatser i ord boende 13,9% 2.2 Indikator kopplad till kvarboendeprojektet 31 Framtid / Utveckling Many Danish local authorities use BSC • One example: Århus, with 7000 employes (400 managers) • ”It’s also a matter of image – to show that old-age care practices modern management.” • The cornerstone is a set of values like dialogue, responsibility, trust and commitment. • Four perspectives: Political, Economic, Environmental, and Employee • 2001 goals focus on user satisfaction, complaints, employee absenteeism and contact time with users. Quarterly measures, to be publicized and benchmarked against peers and other towns like Copenhagen, Odense and Ålborg. • Precise and operational measures are essential, and that they are presented in a ”manager-friendly” way. All employees need knowledge about ideological values and targets. 2002 © ConcoursCepro. All Rights Reserved. 32 A Norwegian example: 2001 BSC prize to Stavanger • Four perspectives: Users, Processes, Employees, Financial • Surveys of citizens and employees, eg: – Childcare twice a year – Old age homes – Culture surveys among employees • Budget 2002 and business plan 2002-5 use the same structure. IT integrated with other systems. Well received 2002 © ConcoursCepro. All Rights Reserved. 33 Summary of experiences - 1 • Everyone stresses dialogues and participation • Lots of support from the employees – sometimes more difficult to convince the politicians. (Are clarity and logic antithetic to politics?) • Many reformulate the four perspectives, but most stick rather close to the original ones. Some change their order, eg: Citizens Processes Renewal Finances 2002 © ConcoursCepro. All Rights Reserved. 34 Summary of experiences - 2 • The four perspectives can also be made to parallel those of a normal business, but adapted to the non-profit character of the public sector: Owner Citizens Process Renewal • In this way, the scorecard will help in deciding: – How extensive and expensive activities are justified – To prioritize between users – Boost morale by showing how employees contribute to society. For all of these, dialogues are essential. 2002 © ConcoursCepro. All Rights Reserved. 35 Current concerns in managing the Swedish public sector • Those managing activities must be able to describe what they want • Tasks should be more stable • Need to find good ways to achieve involvement from employees, which is necessary • Responsibility and authority should match • Although money may be short, that should not lead to short-sightedness All of these make many believe that BSC is a timely idea! 2002 © ConcoursCepro. All Rights Reserved. Ideas for scorecard implementation and use 2002 © ConcoursCepro. All Rights Reserved. 37 How it is done A format for discussing expectations and achievements, and creating trust and motivation • Start with interviews and documents - to know where we are • Seminar with management team: – Strategic aims and critical success factors – The logic, ”the story of our success” • Breaking down the scorecards to lower levels • Concurrently, start developing metrics • Consolidate with business plan • Gradually: create IT support structure 2002 © ConcoursCepro. All Rights Reserved. 38 A scorecard process as a virtuous circle Management Control Systems Strategy Development IT Support and Procedures Learning Organization 2002 © ConcoursCepro. All Rights Reserved. 39 Breaking the circle Management Control Systems Strategy Development IT Support and Procedures Learning Organization 2002 © ConcoursCepro. All Rights Reserved. Vision KappAhl as the industry’s leading service company Business idea Smart-looking and good value for up-to-date people Area of focus Finance Strategic goals Increased performance per square metre Customer Employees Loyal and satisfied customers Critical success factors Measures 2002 © ConcoursCepro. All Rights Reserved. Selling and satisfied employees Process efficiency Development Goal-oriented organization Growth Action plan for one focus area (excerpts) Focus area: Customer Strategic aim: More loyal and satisfied customers Critical Success factors: 1. Expression in shop 2. Active salespeople in every shop 3. Visitors in shop Measures: 1. Customer per visit 2. Winning the company contest (customer contacts) 3. Number of visitors per year Action plan: Action 1. Simulate shopping round by second visit in shop • Design checklist together with shop personnel • Introduce way of working • Use digital camera to convey examples 2. Establish expectations • Ring all shop managers • Push for the competition in weekly newsletter 3. Joint VIP activity twice a year • Perform evaluation • Test”campaign z” in 5 shops 2002 © ConcoursCepro. All Rights Reserved. Responsible Coach NN Coach Deadline March March-June March Done April April October 42 The logic of a scorecard: a real estate company Value growth + The right customers Buy Merge Sell Financial/ Owners Current profits Customer satisfaction Admin. & IT support Property portfolio Market positioning Perspective (focus) Customers Property management Outsourced day-to-day operations Processes Partner development Corporate image IT utilization 2002 © ConcoursCepro. All Rights Reserved. Development 43 Strategy map for a graduate school within a university – initial draft University’s standing in society Linking education, research, and community Examination Academic quality Satisfied students Environment scanning, positioning, planning… Attract students and partners Create and maintain content Competence and contacts Identity and image Repertoire and routines New competence, new partners New systems, new technology 2002 © ConcoursCepro. All Rights Reserved. Trustees’ focus Economic performance Carrying out education New ways of working Customer focus Assisting students find work; alumni activities Process focus Development focus 44 The measurement model of EFQM People Management (9%) Leadership (10%) Policy and Strategy (8%) Resources (9%) People Satisfaction (9%) Processes (14%) Customer Satisfaction (20%) Business Results (15%) Impact on Society (6%) Source: Adapted and reprinted with permission from EFQM ”Self-assement Guidelines,” European Foundation for Quality Management (1998) 2002 © ConcoursCepro. All Rights Reserved. 45 Implementing scorecards Measures in scorecards need to be… 1 2 3 4 5 relevant, and logically coherent accepted and practical available and accessible perceived as important and actionable useful for learning To achieve this, you need: to build initial scorecards right cost-efficient systems and software for measuring and reporting controls and responsibilities that signal that scorecards are important 2002 © ConcoursCepro. All Rights Reserved. 46 “Measures” • Compact descriptions of observations on something, summarized in numbers or in words: – its attributes, or change during some time period – its performance (potential or actual) – using general measurement units, or a shared language – absolute, or relative to standards – scales may be nominal, ordinal, ratio – should not be confused with evaluation, although it’s built into some measures – often part of a model of causation. • So: it’s important to consider how measures will be used - who’s telling whom? • Aggregation of measurements: not always needed, but it is obviously useful if we can avoid too many different, and know how they relate! 2002 © ConcoursCepro. All Rights Reserved. 47 Scorecard projects in practice • Take time and effort, and sometimes stop at management team level. • Because of this, commitment and perseverance are necessary. • If done right, create strong commitment among employees – who understand and get involved with the drivers of long-term performance! • Start by identifying dialogues where scorecards will be useful • If there are many users, well-designed IT support will be needed. But it’s the way scorecards are used that will determine their success. • Difference between US and (North-)European approach? – US companies require specific metrics, and stress aggregation – Swedish companies encourage but do not require specific formats Econometric models vs. language for strategic conversations? 2002 © ConcoursCepro. All Rights Reserved. 48 Conclusions • A simple and elegant idea: a format to discuss any human activity? • Supports most kinds of strategic and operative discussions • Useful in practice, but success depends on how it is done • Reflects the growing role of immaterial assets, and the increasing dependence on employees who share a vision • Scorecards are essentially communication tools. They can be adapted to the different dialogues which are needed in modern organizations. This means that scorecard projects should be carefully tailored to the perceived needs. 2002 © ConcoursCepro. All Rights Reserved. 49 A more detailed look… 2002 © ConcoursCepro. All Rights Reserved. 50 Financial (Owners’) perspective • Financial consequences of actions already taken • (Other “final deliverables” requested by owners) • Growth (turnover and mix) • Revenues and return on capital • Costs and efficiency • Risk and yield 2002 © ConcoursCepro. All Rights Reserved. Customer perspective • How do we look to our customers? • Which customers do we want? • Market share, awareness, and image • Customer satisfaction and complaints • Customer attitudes and retention • Prospecting • Customer profitability • Structure (age, geography, gender, income) 2002 © ConcoursCepro. All Rights Reserved. Internal process perspective • Value chain – Primary and secondary processes - Lead-time, availability, efficiency, quality - Scope, competencies, skills • Information processes – Documentation, data bases, intranet, e-business systems… - Utilisation, quality Separate employee perspective, or not? 2002 © ConcoursCepro. All Rights Reserved. Renewal and development perspective • Development of: – – – – markets, customers, and partner relations products and new solutions competencies and processes technology and infrastructure • Scanning: – environment trends and competition, demand and supply markets 2002 © ConcoursCepro. All Rights Reserved. A separate ‘employee’ perspective? • Not in the original US model • Many Swedish firms have one • Fits with Skandia’s intellectual capital model • Aren’t people a part of all perspectives? + HR and scorecards: impact on how HR are described in all scorecards? a scorecard for the HR ‘dimension’? a scorecard for the HR function/department? 2002 © ConcoursCepro. All Rights Reserved. 55 Required for successful implementation: 1. Measures that are relevant and logically coherent - What that means will differ depending on how you want to use your scorecards! Bonus calculations Targets Benchmarking Reports from subsidiaries and business initiatives Increasingly normative Executive remuneration Reports to boards etc External reports Neutral description Internal use only 2002 © ConcoursCepro. All Rights Reserved. Publicized Increasing audience 56 Required for successful implementation: 2. Measures that are accepted and practical • Can existing measures be used? • Need for new measures: – – – – automatic machine collection record auditing (reusing data) surveys (estimates) • Definitions and measurement procedures - how, when, by whom? • Comparisons and benchmarking 2002 © ConcoursCepro. All Rights Reserved. 57 Required for successful implementation: 3. Measures that are available and accessible • How should data be made available – – – – Integrated into existing reports and “intranet news”? Who’s sender and receiver Authorization and integrity Reporting cycle and action • IS support 2002 © ConcoursCepro. All Rights Reserved. 58 Systems and software • Software for scorecards; measurement practices; presentation routines; any manual systems used temporarily etc • Links to existing administrative systems • Customized systems exist, also linked to ERP systems. A normal development path is: 1 User interface - presentation system and graphics 2 Integrate with other systems - automatic data collection, data warehouse 3 Database functionality, simulation capabilities • Software vendors have different ”roots”: – ERP; ’Business intelligence’ (DW); ”components” • Start simple! 2002 © ConcoursCepro. All Rights Reserved. 59 Software used at Ericsson (”Cockpit communicator”) 2002 © ConcoursCepro. All Rights Reserved. 60 2002 © ConcoursCepro. All Rights Reserved. 61 2002 © ConcoursCepro. All Rights Reserved. 62 Required for successful implementation: 4. Measures that are perceived as important and actionable • Measures as goals and commitments – – – – link to planning relation to other reports possible to influence relevance for bonuses and other reward systems Will the scorecard change behavior? Will scorecard control be perceived as fair (matching responsibility to action, and success to rewards)? 2002 © ConcoursCepro. All Rights Reserved. 63 Linking rewards and incentives to measures • ”Our description of the important things we do, to make it possible to discuss further improvements”, not ”their measures on us” • Which performance should be rewarded? – own unit or higher level – reward current achievements (performance drivers?) or wait for effects (outcomes?) NB: whose is the risk? • Weighted mix of metrics, or other method of combination? • Bonuses should be seen as one part of rewards. Success can be celebrated in many ways... • Remember: scorecards are tools for learning! 2002 © ConcoursCepro. All Rights Reserved. 64 Required for successful implementation: 5. Measures that are useful for learning Linking the measures to portray our business logic Value of increased customer base Attracting new customers Existing cust’s start using Marketing of service + Perspective (focus) Profits from current eBusiness Financial/ Owners Customer satisfaction Functioning of web-site Customers Low-cost operation Concept and content Technology performance Performance of partners Processes out as expected? – Learning opportunity about causation, time lags… and surprises! • Modify initiative, increase it, abandon…? Development Competences 2000 © The Concours Group. All Rights Reserved. • Learning from experiments - did it work 4 • Revise scorecard and measures e SC R e .su l ts W ork s h op 2002 © ConcoursCepro. All Rights Reserved. 65 Controls and responsibilities • Scorecard control needs to agree with other controls and rewards • Control is contingent on strategy • Responsibilities for scorecards: – – – – – Managing the activities described in a scorecard (unit management) Designing scorecards and the processes for using them (controllers) Measuring and making measurements accessible (IS function) Using scorecards in planning and control (CEO) Learning through scorecards (all) 2002 © ConcoursCepro. All Rights Reserved. 66 Dominant modes of control? (Nilsson & Olve in European Management Journal, August 2001) Corporate strategy Portfolio Management Organizational level (Low synergy potential) Activity Sharing (High Synergy Potential) Corporate BU-level Operational level 2002 © ConcoursCepro. All Rights Reserved. 67