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A Guide to the Queensland Government Performance Management Framework August 20

A Guide to the Queensland Government Performance Management Framework August 2012 Version 3.1 Document Details Security Classification PUBLIC Date of Review of Security Classification August 2012 Authority Director-General, Department of the Premier and Cabinet Author Performance Unit, Department of the Premier and Cabinet Document Status Working draft Consultation Release  Final Version Contact for enquiries and proposed changes The Performance Unit 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 Unit 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, 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) 2012 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................................................................................7 Value Chain for the Queensland Public Sector............................................................................................9 The Performance Management Framework..............................................................................................13 How the Performance Management Framework works..............................................................................13 Elements of the Performance Management Framework.............................................................................13 Governance of the Performance Management Framework......................................................................17 Planning.........................................................................................................................................................28 - Setting the whole of government direction ..............................................................................................28 Government’s objectives for the community..............................................................................................29 Charter of Fiscal Responsibility..................................................................................................................32 State Budget................................................................................................................................................32 Incorporating the whole of government direction in policy development processes...................................33 Planning.........................................................................................................................................................35 - Setting the agency business direction .......................................................................................................35 Strategic planning.......................................................................................................................................36 Agency Budget ..........................................................................................................................................39 Specific purpose planning...........................................................................................................................40 Planning.........................................................................................................................................................42 - Agency service delivery .............................................................................................................................42 Operational planning..................................................................................................................................43 Creating value for clients, stakeholders and the community from service delivery....................................56 Annual review of service areas, service standards and targets ...................................................................58 Planning.........................................................................................................................................................61 - Individual ...................................................................................................................................................61 Responsibility for delivery of whole of government direction....................................................................61 Responsibility for delivery of agency business direction and agency service delivery...............................61 Individual....................................................................................................................................................62 Measuring and monitoring results..............................................................................................................64 Whole of government direction..................................................................................................................64 Agency business direction..........................................................................................................................66 Agency service delivery..............................................................................................................................70 Improving results........................................................................................................................................71 Public reporting............................................................................................................................................77 Fair and balanced reporting........................................................................................................................77 Telling the performance story.....................................................................................................................78 Whole of government direction..................................................................................................................79 Agency business direction..........................................................................................................................80 Agency service delivery..............................................................................................................................81 Independent reporting on government performance (external / scrutiny)...................................................81 Other independent body reports .................................................................................................................83 Appendix – Reference List........................................................................................................................86 Figures Figure 1 - Value Chain for the Queensland Public Sector.........................................................................10 Figure 2 - Elements of the Performance Management Framework..........................................................15 Figure 3 - Relationship between Performance Management Framework documentation......................16 Figure 4 - Value Chain for the Queensland Public Sector (highlighting whole of government direction) ........................................................................................................................................................................29 Figure 5 - Alignment between objectives and outcomes............................................................................37 Figure 6 - Value Chain for the Queensland Public Sector (highlighting agency service delivery).........42 Figure 7 - Report on Government Services - general performance indicator framework......................48 Figure 8 - Measuring the efficiency and effectiveness of service delivery.................................................48 Tables Table 1 - Principles for reviewing performance information....................................................................59 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 DHPW Department of Housing and Public Works FAA Financial Accountability Act 2009 FMF Queensland Government Financial Management Framework FPMS Financial and Performance Management Standard 2009 ICT Information and Communication Technology OECD Organisation for Economic Co-operation and Development OESR Office of Economic and Statistical Research PAF Project Assurance Framework PCO Portfolio Contact Officer (DPC) PMF Queensland Government Performance Management Framework PSC Public Service Commission PSEA Public Sector Ethics Act 1994 QAO Queensland Audit Office QGCIO Queensland Government Chief Information Office (Department of Science, Information Technology, Innovation and the Arts) R&D Research and development RoGS Report on Government Services SES Senior Executive Service SPP Specific Purpose Payments TA Treasury Analyst (Treasury) Treasury Queensland Treasury and Trade Value Chain Value Chain for the Queensland Public Sector WoG Whole of government Introduction Why performance management matters 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. This updated guide reflects the continuous improvement of the Queensland public sector agencies in performance management. In preparing this guide, consideration has been given to comments made 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): “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”. In the current fiscal environment in Queensland, emphasis on effective and productive performance is critical. The Government expects a high level of performance and tangible results for the people of Queensland. 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 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. A Guide to the Queensland Government Performance Management Framework Page 5 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) 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  anyone else who is interested in improving performance and strengthening accountability through relevant and meaningful performance management. A Guide to the Queensland Government Performance Management Framework Page 6 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 published in the PMF Reference Guide Queensland Public Sector 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 uploads/Management/ guide-pmf.pdf