Global Perspective on public sector governance

Transcription

1 Global Perspective on public sector governance The Governance Continuum as a dynamic tool Maryantonett Flumian, President

2 About the Institute on Governance Canadian, independent, not-for-profit Mission: Advancing better governance in the public interest Explore, develop and promote good governance in the public sphere, both in Canada and abroad Collaborate with governments foreign and domestic, aboriginal peoples and organizations, and the nongovernmental and volunteer sectors in Canada and internationally For the IOG, governance describes the relationships that determine who has power, who makes decisions, how other players make their voice heard and how account is rendered 2

3 Public sector governance describes relationships that Underpin and create dialogue among institutions Define level and expression of accountability Set stage for operational management and performance Encompass Public Legislatures, their executives, and central agencies Ministers Core ministries Arm s length organizations 3

4 The Institute on Governance s Public Governance Exchange (PGEx) An applied research-action learning program for all levels of government in Canada, initiated by IOG in 2010 Premise: without good governance governments will be unable to address intractable and vexing problems of the present and future, and may be equally unable to seize opportunities Seeks to understand the evolving public sector by assessing models of governance in the face of challenges of the 21 st century Works with a public sector network to develop a common vocabulary, a set of indicators and assessment tools 4

5 The New Reality of Distributed Governance Governments have been transforming to accommodate the realities of a faster paced, networked and globalized world Redistribution of the functions of government from traditional command-and-control core bureaucracies to public models of governance distributed across a variety of actors based on performance Significant shift in the organizational design of public institutions and a significant increase in the number, size and significance of organizations along a much longer governance continuum 5

6 Meta-trends Governments demonstrate a more aggressive use of existing tools: an increasing reliance on a series of bodies that have distributed authority and accountability across a broad spectrum of institutions Cross-cutting challenges often respect no institutional or operational divisions and raise issues of policy alignment Traditional accountability mechanisms focus on traditional institutions Common institutional forms for most policy functions except operational service 6

7 Governance impacts Intended Devolution Increase in distributed governance Deregulation Re-centralization Redefined relationships Clarified mandates/performance targets Effectiveness? Unintended Less direct relationship with citizens Role confusion/mandate diffusion Decreased accountability capacity Who s got the ball? Indirect accountability Increased importance of departmental silos Effectiveness? 7

8 Size and scope of distributed governance in Canada Distributed governance expenditure as a percentage of jurisdictional expenditures Yukon Saskatchewan Quebec Prince Edward Island Ontario Nunavut Nova Scotia Northwest Territories Newfoundland New Brunswick Manitoba British Columbia Alberta Provincial Federal Total Distributed Governance Expenditures = GBE Expenditures + SUCH Sector Expenditures + Other DGO Expenditures, calculated from Stats Can and Public Accounts data) 8

9 Governments view of State Owned Enterprises While State Owned Enterprises operate at arm s length from the government, as public institutions, they are ultimately accountable to the government State Owned Enterprises are an instrument to deliver on specific public policy directions 9

10 Genesis of the IOG Governance Continuum Shifts in roles of traditional governance relationships Growth in long-standing public sector use of alternative organizations to achieve policy objectives Significant public expenditures are arms length Institutional arrangements vary Understanding the relationships between and among entities along the continuum is valuable Need for a conceptual model to capture and map organizational independence and institutional control across the public sector spectrum, from the centre to the most autonomous organizations 10

11 Hierarchical view Public Legislature Executive Minister Department Agency traditional 11

12 Horizontal view Department Advisory Regulatory Operational Service Operational Enterprise Supervisory Trust arm s length bodies that are populating more and more government 12

13 A continuum explains both hierarchy Public Legislature Executive Minister Department 13

14 and function Advisory Regulatory Adjudicative Supervisory Trust Operational Service Organizational Autonomy Institutional Control Function Direction/Account ability Relationship 14

15 as well as relationships 15

16 Functions place organizations along the Continuum Public Legislature Executive Minister Department Advisory Regulatory Adjudicative Supervisory Trust Policy function Direction/ Accountability Relationship Institutional Control Operational Service Operational Enterprise Organizational Autonomy Department Department of Infrastructur e and Transport Advisory National Archives of Australia Advisory Council Regulatory Therapeutic Goods Administration Adjudicative Australia Human Rights Commission Operational enterprise Australian Government Solicitor Operational service Australia Broadcasting Corporation Supervisory Australian Securities and Investment Commission Trust Natural Heritage Trust 16

17 IOG s taxonomy delineates institutional functions 1 Department 2 Advisory 3 Regulatory 4 Adjudicative 5 Operational Enterprise 6 Operational Service 7 Supervisory 8 Trust 17

18 The factors we measured for the functions are: Policy autonomy Management flexibility Terms of appointment Specific statute Separate legal personality Governing board Decision review process Accountability and reporting 18

19 Policy alignment across the Continuum 19

20 Examples of cutting edge governance Toronto 211 Joint Solutions Procurement in British Columbia and P3s Apps for Democracy, Washington D.C.: Using Application Process Interface (API) technology Open Method of Coordination in the European Union Super Agencies in New South Wales, Australia 20

21 The IOG Governance Scorecard As a companion piece to the Governance Continuum, the IOG created a Governance Scorecard: To assess and inform governance within developed countries (starting with Canada) To express the elements of good governance in an assessment framework To inform a public conversation about good governance by creating the space and the information necessary for dialogue; and To inform the evolutionary process of achieving good governance by assessing public institutions against the necessary elements of good governance 21

22 Ibrahim Foundation: Index of African Governance 22

23 World Bank: World Governance Indicators 23

24 Bertelsmann: Sustainable Governance Indicators 24

25 The Scorecard uses an outcomes diagnostic cascade Outcomes Enterprise governance enables the achievement of outcomes that maximize public well-being. Driver 1 Public Policy Linkages The enterprise has strong public policy linkages to the policy authority Driver 2 Decision-Making Capacity The enterprise has strong decision making capabilities Driver 3 Institutional Adaptability and Resilience The enterprise monitors whether its institutional arrangements are appropriate Driver 4 Accountability and Transparency Non-enterprise actors have the information needed evaluate enterprise policies, decisions and performance 25

26 Scorecard Complete Framework PGEx Learning Event: Institute on Governance 26

27 In Conclusion: The Continuum as a tool to manage transformation in tough fiscal times Describe the current state Self-assess governance Initiate a governance conversation Analyse options Change the way organizations are aligned 27

28 In Conclusion: The Governance Scorecard Will reinforce all the aspects of the Continuum as a dynamic tool Will help engage the conversation in a public fora Over time, it will help to improve the relationship between governance and outcomes 28

29 YOU! Maryantonett Flumian