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A GUIDE TO THE QUEENSLAND GOVERNMENT PERFORMANCE MANAGEMENT ...

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THE DEPARTMENT OF THE PREMIER AND CABINET'S GUIDE TO THE QUEENSLAND GOVERNMENT PERFORMANCE MANAGEMENT FRAMEWORK ASSISTS GOVERNMENT AGENCIES ...

    A Guide to the Queensland Government Performance Management Framework November 2011

Final Version 2.1.6

Document Details

    Security Classification PUBLIC

    Date of Review of Security November 2011

    Classification

    Authority Director-General, Department of the Premier and Cabinet

    Author Performance and Delivery Office, Department of the Premier and Cabinet

    Document Status Working draft Consultation Release Final Version

    Contact for enquiries and proposed changes

    The Performance and Delivery Office in the Department of the Premier and Cabinet (DPC) is the custodian of this guide. All inquiries regarding this document should be directed in the first instance to: Senior Director, Performance and Delivery Office pm@premiers.qld.gov.au Tel: 07 3235 4852

    Acknowledgements

    This version of the document, A Guide to the Queensland Government Performance Management Framework was

    developed and updated by the Performance Unit in the Performance and Delivery Office, Department of the Premier and Cabinet.

    Feedback was also received from staff from within the Department of the Premier and Cabinet and from various agencies. All feedback was greatly appreciated.

    Copyright

    A Guide to the Queensland Government Performance Management Framework

    Copyright ? The State of Queensland (Department of the Premier and Cabinet) 2011 Licence

A Guide to the Queensland Government Performance Management Framework is licensed under a Creative

    Commons Attribution 3.0 Australia licence. To view a copy of this licence, visit http://creativecommons.org/licenses/by/3.0/au. Permissions may be available beyond the scope of this licence. See www.qgcio.qld.gov.au.

    Information security

    This document has been classified using the Queensland Government Information Security Classification Framework (QGISCF) as PUBLIC and will be managed according to the requirements of the QGISCF.

Contents

    Introduction ........................................................................................................................................................... 5 Why performance management matters ............................................................................................................................... 5 Purpose of this guide ........................................................................................................................................................................ 6 Intended audience .............................................................................................................................................................................. 6 Scope and application ....................................................................................................................................................................... 7 Terminology .......................................................................................................................................................................................... 7 Companion PMF Requirements and Reference Guides .................................................................................................. 8 Value Chain for the Queensland Public Sector ............................................................................................. 9 The Performance Management Framework .............................................................................................. 12 How the Performance Management Framework works ............................................................................................. 12 Elements of the Performance Management Framework ............................................................................................ 12 Other Queensland Government frameworks, policies and methodologies ....................................................... 16 Governance of the Performance Management Framework .................................................................. 17 Planning ............................................................................................................................................................... 29 - Setting the whole of government direction ............................................................................................. 29 Government’s objectives for the community .................................................................................................................... 31 Charter of Fiscal Responsibility ............................................................................................................................................... 36 State Budget ........................................................................................................................................................................................ 37 Whole of government priorities and strategies ............................................................................................................... 37 Incorporating the whole of government direction in policy development processes ................................. 38 Planning ............................................................................................................................................................... 40 - Setting the agency business direction ....................................................................................................... 40 Strategic planning ............................................................................................................................................................................ 41 Agency Budget ................................................................................................................................................................................... 44 Specific purpose planning ........................................................................................................................................................... 45 Planning ............................................................................................................................................................... 47 - Agency service delivery................................................................................................................................. 47 Operational planning ..................................................................................................................................................................... 48 Creating value for clients, stakeholders and the community from service delivery .................................... 61 Annual review of service areas, service standards and targets............................................................................... 63 Planning ............................................................................................................................................................... 66 - Individual .......................................................................................................................................................... 66 Responsibility for delivery of whole of government direction ................................................................................ 66 Responsibility for delivery of agency business direction and agency service delivery .............................. 66 Individual ............................................................................................................................................................................................. 67 Measuring and monitoring results ............................................................................................................... 69

    Whole of government direction ............................................................................................................................................... 69 Agency business direction .......................................................................................................................................................... 72 Agency service delivery ................................................................................................................................................................ 76 Improving results ............................................................................................................................................................................ 77 Public reporting ................................................................................................................................................. 83 Fair and balanced reporting ....................................................................................................................................................... 83 Telling the performance story .................................................................................................................................................. 84 Whole of government direction ............................................................................................................................................... 85 Agency business direction .......................................................................................................................................................... 87 Agency service delivery ................................................................................................................................................................ 87 Independent reporting on government performance (external / scrutiny) .................................................... 88 Other independent body reports ............................................................................................................................................. 90 Appendices .......................................................................................................................................................... 93 Appendix 1 Queensland Government Business Service Classification Framework .................................. 93 Appendix 2 Glossary of Terms .............................................................................................................................................. 93 Appendix 3 References .............................................................................................................................................................. 93

Figures

    Figure 1 - Value Chain for the Queensland Public Sector ................................................................................................. 10 Figure 2 - Elements of the Performance Management Framework ........................................................................... 14 Figure 3 - Relationship between Performance Management Framework documentation ............................ 15 Figure 4 - Value Chain for the Queensland Public Sector (highlighting whole of government direction)

     .............................................................................................................................................................................................................. 30 Figure 5 - Alignment between objectives and outcomes ................................................................................................. 43 Figure 6 - Value Chain for the Queensland Public Sector (highlighting agency service delivery) .............. 47 Figure 7 - Report on Government Services - general performance indicator framework .............................. 53 Figure 8 - Measuring the efficiency and effectiveness of service delivery .............................................................. 53

Tables

    Table 1 - Principles for reviewing service areas, service standards and targets................................................. 64

Abbreviations used throughout this guide:

ABS Australian Bureau of Statistics

    ABS DQF Australian Bureau of Statistics Data Quality Framework ANAO Australian National Audit Office

    BSCF Queensland Government Business Services Classification Framework CBRC Cabinet Budget Review Committee

    CEO Chief Executive Officer

    CES Chief Executive Service

    Charter Charter of Fiscal Responsibility

    CLF Queensland Public Service Capability Leadership Framework CLT CEO Leadership Team

    COAG Council of Australian Governments

    DPC Department of the Premier and Cabinet

    DPW Department of Public Works

    Financial Accountability Act 2009 FAA

    FMF Queensland Government Financial Management Framework

    Financial and Performance Management Standard 2009 FPMS

    ICT Information and Communication Technology MFO Managing for Outcomes

    OECD Organisation for Economic Co-operation and Development OESR Office of Economic and Statistical Research

    PAF Project Assurance Framework

    PCO Portfolio Contact Officer (DPC)

    PDO Performance and Delivery Office (DPC)

PLG Performance Leadership Group

    PMF Queensland Government Performance Management Framework

    PSC Public Service Commission

    Public Sector Ethics Act 1994 PSEA

    QAO Queensland Audit Office

    QGCIO Queensland Government Chief Information Officer (DPW) R&D Research and development

    RoGS Report on Government Services

    SES Senior Executive Service

    SPP Specific Purpose Payments

    TA Treasury Analyst (Treasury)

    TDP Target Delivery Plan

    Toward Q2 Toward Q2: Tomorrow’s Queensland Treasury Queensland Treasury

    Value Chain Value Chain for the Queensland Public Sector WoG Whole of government

Introduction

    Why performance management matters

    Performance management is considered to be the system, which integrates organisational strategic management, performance information, evaluation,

    performance monitoring, assessment and performance reporting.

     (OECD, Working Definitions, 2002)

    The Queensland Government Performance Management Framework (PMF) is designed to improve the analysis and application of performance information to support accountability, inform policy development and implementation and create value for clients, stakeholders and the Queensland community. The PMF enables a clear line of sight between planning, measuring and monitoring results and public reporting.

    In August 2008, the Queensland Government approved the first version of the PMF and A Guide to

    the Queensland Government Performance Management Framework was issued in March 2009.

    This updated guide replaces the first version and reflects the continuous improvement of the Queensland public sector agencies in performance management. These improvements were recognised by the Auditor-General in 2009 (Auditor-General’s Report to Parliament No. 7 for 2009:

    Follow up on Government Owned Corporation and Budget Sector Performance Measurement and Reporting, 2009):

    “DPC addressed a significant number of recommendations made in previous reports on

    performance management and reporting for departments.”

    However, the report also cautioned:

    “While fully supporting the work of DPC in the development of the PMF, for it to be fully

    effective, accountable officers need to implement the framework in their agencies to ensure

    greater accountability and transparency of performance.

    The Auditor-General also flagged that once the PMF is fully implemented, following the publication of the 2010-11 annual reports in September 2011, it will be possible to conduct:

    “a full assessment of the implementation of the PMF under the Financial Accountability Act

    2009.

    Opportunities exist for agencies to continuously improve organisational performance to better meet the government‟s broad objectives for the community. This guide establishes the minimum A Guide to the Queensland Government Performance Management Framework Page 5

    requirements for agencies in relation to performance management. To truly deliver value to clients, stakeholders and the community, agencies need to fully embrace a performance management culture.

    Purpose of this guide

    This guide presents a practical overview of the key concepts of the PMF to facilitate improved performance management, evaluation, monitoring results and public reporting in the Queensland public sector. This guide will assist in developing a greater level of understanding of the PMF.

Future Considerations

    Shaded boxes such as this are used throughout this guide to identify issues for future consideration in relation to the PMF.

Intended audience

    This guide is intended for a broad audience both within government and for external stakeholders. In particular, it provides guidance to:

     Ministers and their staff who wish to monitor the services delivered by their portfolio and the

    effectiveness of these services in meeting the needs of their clients, stakeholders and the

    community

     accountable officers and statutory bodies who are accountable for the performance of their

    agency

     managers and staff who coordinate planning, budgeting, and/or reporting on the performance

    of their agency

     managers and staff who are responsible for the delivery of services

     project and program managers who need to deliver services through a project, a program, or a

    portfolio of work

     clients, stakeholders and the community who directly or indirectly benefit from government

    services

     the Queensland Audit Office, the Queensland Ombudsman, the Coroner, Crime and

    Misconduct Commission and the Parliamentary Committees who independently monitor the

    government‟s performance and report to Parliament

    A Guide to the Queensland Government Performance Management Framework Page 6

     anyone else who is interested in improving performance and strengthening accountability

    through relevant and meaningful performance management.

    Scope and application

    This guide applies to all Queensland Government departments and statutory bodies. Section 11 of the Financial and Performance Management Standard 2009 (FPMS) states:

    “Each accountable officer and statutory body must, in managing the performance of

    the officer‟s department or the statutory body, comply with the document called

    „A guide to the Queensland Government performance management framework‟

    prepared by the Department of the Premier and Cabinet.”

    In most cases, the term „agency‟ is used in this guide to refer to departments and statutory bodies. When necessary, an indication is made if specific sections apply to departments only or statutory bodies only.

    This guide assists agencies with planning, measuring and monitoring results, and public reporting. Terminology

    This guide establishes a common language for planning, measuring and monitoring results and public reporting.

    Definitions of common terms used are listed in Appendix 2 Glossary of Terms. To date, these

    have been developed to align with the whole of government frameworks and methodologies including the Queensland Government Financial Management Framework; the Portfolio, Program

    and Project Management Methodologies; and the Queensland Government Business Service

    Classification Framework.

Future Considerations

    Further refinement of definitions of common terms will continue to occur. A PMF Reference Guide has

    been published to encourage consistent use of common terms in documents published by Queensland public sector agencies.

     PMF Reference Guide: Queensland Public Sector Glossary of Terms

    http://www.premiers.qld.gov.au/publications/categories/guides/perf-manage-framework.aspx

A Guide to the Queensland Government Performance Management Framework Page 7

Companion PMF Requirements and Reference Guides

    In addition to this guide, there are a number of companion PMF requirements and reference guides published by the Department of the Premier and Cabinet. The requirements are mandated

    and must be complied with, however the reference guides provide further information or background on a specific topic.

    PMF Requirements:

     Agency Planning Requirements

    http://www.premiers.qld.gov.au/publications/categories/plans/planning-requirements.aspx

     Annual Report Requirements for Queensland Government Agencies

    http://www.premiers.qld.gov.au/publications/categories/guides/annual-report-guidelines.aspx

    PMF Reference Guides:

     Performance management

    - Brief History of Performance Management in the Queensland Public Sector

    http://www.premiers.qld.gov.au/publications/categories/guides/perf-manage-framework.aspx

    - Value Chain and Value Model for the Queensland Public Sector

    http://www.premiers.qld.gov.au/publications/categories/guides/perf-manage-framework.aspx

    - Queensland Public Sector Glossary of Terms

    http://www.premiers.qld.gov.au/publications/categories/guides/perf-manage-framework.aspx

     Planning

    - Queensland Public Sector Strategic Management Planner

    http://www.premiers.qld.gov.au/publications/categories/guides/perf-manage-framework.aspx

    - Better Practice Guideline for Developing Performance Information

     useful information and examples

    http://www.premiers.qld.gov.au/publications/categories/guides/perf-manage-framework.aspx

    - Overview of Queensland Public Sector Planning Requirements and Related Reports

    http://www.premiers.qld.gov.au/publications/categories/guides/perf-manage-framework.aspx

     Measuring and monitoring results

    - Better Practice Guideline for Improving Service Areas, Service Standards and Targets in

    the State Budget

    http://www.premiers.qld.gov.au/publications/categories/guides/perf-manage-framework.aspx

    - Better Practice Guideline for Measuring Client Satisfaction

    http://www.premiers.qld.gov.au/publications/categories/guides/perf-manage-framework.aspx

    Additional reference documents that relate to performance management are included as Appendix 3 References to this guide.

    A Guide to the Queensland Government Performance Management Framework Page 8

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