David Osborne & Peter Hutchinson.  The Price of Government:  Getting the Results We Need in an Age of Permanent Fiscal Crisis.  NY:  Basic Books, 2004.   370 pp.  $25.00

 

Introduction

Five key questions:

  1. Get a grip on the problem:  Is the real problem short or long term?
  2. Set the price of government:  How much are citizens willing to spend?
  3. Set the priorities of government:  What results do citizens want for their money?
  4. Set the price of each priority:  How much will the state spend to produce each of these results?
  5. Purchase the priority:  How best can that money be spent to achieve each of the core results?

Uses Washington State Governor as example

 

Part One:  Smarter Budgeting (The Five Decisions That Matter  Most)

 

Chapter One:  Getting a Grip on the Problem

Uses MN Legislature as (negative) example

Budget Basics

1.  Key question—how much of a budget problem is short-term (cyclical events, like a recession) and how much is long-term (structural, non-cyclical)?

2.  Pay attention to five numbers—but project over long term (at least  five years)

            a.  Starting balance

            b.  Revenues

            c.  Expenses

            d.  Surplus or deficit

            e.  Ending balance

   Result is “5x5 Budget” that extends analysis beyond “blind corners.”

3.  Getting a Grip on Forecasting:  Quality of five-year (or more) forecast depends on nderstand the volatility in revenue and spending.

            a.  mix of  revenue sources

            b.  breadth of revenue base

            c.  economy (affects revenue and spending)

            e.  demographics (affects demand for various spending items)

            d.  spending by “proxy” (mandates from  or to others)

e.  spending “autopilots” (automatic spending, like COLAs, or statutory formula funding)

 

Chapter Two:  Setting the Price of Government

“There is no ‘right’ price of government, any more than there is a ‘right’ price for Cheerios.  There is, however, an acceptable price….” p. 41

Since at least 1953, the price of government has varied within a fairly narrow band of few percentage points of GDP or personal income.  It is not so much that citizens want “…lower taxes and ‘cheap government.’  In reality, they constantly demand more from government but at a relatively fixed price.”   p. 44 

Further, that “price point” varies for different jurisdictions and different parts of the country.  Chart (on p. 55) plotting government revenue (“capacity,” or per capita revenue raised) against the price of government (“effort,” or government revenue as a percentage of personal income) demonstrates this.

a.  Price of government (revenue as percentage of personal income) is best measure for comparing government revenue. 

            i.  accounts for all direct sources of revenue

            ii. can account for all levels of government

            iii.  measures revenue in relation to the economy

Finding the right price:

Secure agreement on total revenue from all sources first (then go on to figure out how to spend it).

  1. Assemble data of past trends
    1. Taxes, fees, and charges paid to all governments serving citizens in an area
    2. Expressed as percentage of aggregate income in the area
    3. Both overall and for each unit of government in the area
    4. Visual (graphs) as well as numerical (tables)
  2. Chart upticks and downturns
    1. Note what price level has triggered resistance to paying more
    2. Note what  loss of service has triggered willingness to pay more
  3. Evaluate historical information (considering trends in personal income and practice in competing jurisdictions) to arrive at a price appropriate to the area.
  4. Consider share of POG paid to each government in the area

Turns usual budget process on its head—price is the first choice, not cost.

 

Ch. Three:  Setting the Priorities of Government

Problems with traditional budgeting:

  1. No one volunteers for cuts
  2. Focus is on programs, not results
  3. No one focuses on the total pie—everyone protects own piece of the pie
  4. Focus is on how best to trim x% rather than how best to spend y%

Budgeting for Outcomes

  1. Determine the priorities
    1. Advice

                                                               i.      Create a short, focused list

                                                             ii.      Involve citizens and important stakeholders

                                                            iii.      Focus on outcomes (not outputs or activities)

                                                           iv.      Be realistic

                                                             v.      Get a politically neutral body to publish annual scorecards

                                                           vi.      Make sure the executive has ownership of the goals

                                                          vii.      Get bi-partisan buy-in from executive, legislative, and key stakeholders

    1. Choosing indicators

                                                               i.      Balance subjective & objective measures

                                                             ii.      Don’t settle for data that are readily available

                                                            iii.      Use indicators that will make sense to citizens

                                                           iv.      If an outcome needs more than 3 indicators, create an index

  1. Decide the price for each outcome—“…no longer simply paying costs—you are buying outcomes.”  p. 74
  2. Decide how best to deliver each priority outcome at a set price
    1. Designate a purchaser for each outcome goal
    2. Develop a cause-and-effect “map”—which strategies have the most impact,  and how do the different strategies interact
    3. Develop a purchasing strategy
    4. Solicit offers—use full-cost accounting so bids are comparable
    5. Review the offers and choose what to buy

                                                               i.      What definitely to purchase (by priority)

                                                             ii.      What not to purchase

                                                            iii.      What to purchase if had more money

                                                           iv.      What to give up if have  less money

Additional Considerations

  1. Create “steering” organizations—bodies that act as purchasing agents.
  2. Every strategy must provide definitions and outcomes measures
  3. Key is to focus on results, but must distinguish between outputs (work produced) and outcomes (effect of that work).
  4. “Performance will never crowd out politics in a democratic legislature, but it can enter the mix.” p. 90
  5. Don’t use pilot programs.  “Don’t try to take all the steps at once, but  when you take a step, commit the entire organization.” p. 92

 

Part Two:  Smart Sizing:  It Does Matter

 

Chapter Four:  Strategic Reviews:  Divesting to Invest

“In budget season, there is often not enough time to handle the politics of deep strategic change.  Smart leaders create forums outside the budget cycle….”  p. 97

Make strategic reviews a permanent part of your steering process.

Lessons learned:

  1. Make sure high level leadership is visibly driving the process
  2. Involve both the legislative and executive branches
  3. Get the political stars aligned if you want to make fundamental change.
  4. Make sure you have clarity of purpose
  5. Review by policy arena, not program
  6. Create a powerful, independent board or commission that can act in the general interest
  7. Create a process that reduces the power of special interests to block change
  8. Use the expertise of both insiders and outsiders
  9. Make sure you have performance data—particularly data on effectiveness
  10. Build into the process consultation with customers and other stakeholders.
  11. Don’t forget to include subsidies and tax breaks in the review process
  12. Make sure most observers perceive the process as being fair and sensible
  13. Ease the pain by creating humane transitions

 

Chapter Five:  Consolidation:  Small Mergers

Best solution:  Consolidate steering and separate it from rowing

Advantages:

  1. Keeps policymakers from getting sucked into minutiae of operations
  2. minimizes micromanagement
  3. frees leaders from much of their political captivity to service providers
  4. makes accountability for performance real
  5. gives leaders more flexibility to meet customers’ very different needs

Types of consolidation:

  1. consolidating internal support services
  2. consolidating access
  3. consolidating “back-room” activities

 

Chapter Six:  Rightsizing:  The Right Work, the Right Way, with the Right Staff

“…the challenge is to put the right combination of staff and other resources in the right location, at the right time, doing the right things to produce the desired results with the assigned financial constraints.  The challenge isn’t downsizing; it’s rightsizing.”  p. 134

Do The Right Work:

“In assessing the value of any function, there are two key questions:  Does this work contribute in some way to producing one of our desired outcomes?  And who is the customer for this work?”  p. 136  Then ask:

  1. Does the customer still want this work?
  2. What aspects or attributes of the work are the most valuable?
  3. What aspects can be eliminated?

Do the Work Right:

  1. substitute technology for people and paper in processes that are repetitive, routine, and require only limited adaptation to changing circumstances
  2. eliminate layers and units that don’t add more value than they cost:  information technology has rendered hierarchy obsolete.
  3. build up your strengths; offload your weaknesses:  “Rightsized organizations devote their own energies to what they do best and outsource the competencies they lack.”  p. 139
  4. abandon “one size fits all,” and rightsize services to suite the customer

Managing the transition humanely

  1. use attrition rather than layoffs
  2. encourage early retirement
  3. create options for those whose jobs disappear
  4. when you have to resort to layoffs, measure twice but cut once:  “At the very least, layoffs should have the virtue of providing certainty and closure, botdh for those who go and for those who stay.” p. 141
  5. eliminate employee “bumping rights”

 

Part Three:  Smarter Spending:  Buying Value, Squeezing Costs

 

Chapter Seven:  Buying Services Competitively

“Competition is the single fastest route to savings without eliminating services.”  p. 153

Except for:

·        policy functions

·        regulatory functions

·        state-sanctioned violence

·        protection of due-process rights

·        handling sensitive security and privacy issues

·        those requiring absolutely fair  and equal treatment

Although even then, governments can force public agencies to compete with other public agencies.

Enterprise Management: 

  1. Managed competition is demanding and time-consuming work.  It requires
    1. RFQs,
    2. RFPs,
    3. contracts,
    4. negotiations with bidders,
    5. performance monitoring,
    6. imposing consequences,
    7. backup plans should contractor default
  2. Can be used with any service that can charge its customers.  Excludes units that serve public at large rather than specific customers.
  3. Removes the monopoly by taking away budget appropriation and forcing competition with other providers.  Survival depends on how well they please customer, and at what price.
  4. Steps in process:
    1. Convert public agency into enterprise fund which must earn all or most of its revenue by selling to its customers
    2. Operate as a business, free from most bureaucratic constraints
    3. Take away budget appropriation, distributing 90% back to customers
    4. Let customers purchase service wherever they choose; if a natural monopoloy, give it a customer board and regulate its prices.

 

Chapter Eight:  Rewarding Performance, Not Good Intentions

Where enterprise management and market competition are not possible, use performance management.

  • Business units track quality, customer satisfaction, effectiveness of outputs
  • Corporate scorecard tracks outcomes produced by all these inputs

Tools:

  • Direct customer feedback
  • Performance awards
  • Performance bonuses (onetime awards more effective than salary increases)
    • Salary should be determined by what it takes in a particular labor market to attract and keep talented employees
    • Bonuses should be used to reward performance—based on objective performance standards
  • Gainsharing—guarantees employees a portion of financial savings achieved by organization, as long as organizations meets specified levels of service and quality.
    • Normal gainsharing
    • Employee suggestions program
    • Government-wide incentive plan
  • Shared Savings
  • Psychic Pay
  • Performance Agreements with Managers
  • Performance Contracts with Providers
  • Performance-Based Grants
  • Performance Scorecards

Making performance consequential:  Lessons learned

  • Regular discussion of results with top managers assures that managers will actually use the data to improve performance
  • Magnify incentives by applying them to groups as well as individuals—most results are produced by teams
  • Be careful what you target, you might get it.
  • Avoid arbitrary targets.
  • Tie rewards to objective measures of performance, not subjective appraisals.  “By rewarding marginal and superior employees equally, the traditional system promotes mediocrity.”  p. 187
  • Make performance bonuses big enough to get people’s attention—bonuses should be at least double the size of regular pay increases—at least 5% of salary.
  • Involve employees, owners, and customers in negotiating performance goals
  • Don’t make reward formulas too complex
  • Create a culture of learning, not fear
  • Verify the accuracy of measurement

 

Chapter Nine:  Smarter Customer Service—Putting Customers in the Driver’s Seat

Key issues:

  • Choice,
  • Control,
  • don’t waste customer time,
  • use the Web,
  • Personalize the experience

 

Chapter Ten:  Don’t Buy Mistrust—Eliminate It

“…Compliance is best achieved by establishing and promoting community norms, a method that is much less expensive than massive enforcement methods.”  p. 213

Steps to boost voluntary compliance:

  1.  Build support for standards by working in partnership with compliers and other stakeholders
  2. Make regulations results-based
  3. Educate compliers about what is expected of them
  4. Make the process of complying easy
  5. Make the quality of agency service to compliers consequential
  6. Report compliance information
  7. Treat different compliers differently
  8. Create a continuum of public consequences and rewards
  9. Create market incentives to encourage compliance

 

Part Four:  Smarter Mangement:  Reforming How Government Works on the Inside to Improve Its Performance on the Outside

 

Chapter Eleven:  Using Flexibility to Get Accountability

Create Charter Agencies—“freedom-for-accountability” trades

 

Chapter Twelve:  Make Adminstrative Systems Allies, Not Enemies

Actual systems created are more powerful than managerial pronouncements.

“When it comes to accounting, there are only two questions that matter:  Do you know what the strategy is for your organization, and does your accounting system know?” p. 246ff.

Budgeting:

  • Provide real saving incentives
    • To qualify, agency must demonstrate that performance has not slipped
    • Make share that agencies can keep large enough to be meaningful
    • Limit use of savings to bonuses & other non-recurring costs
    • Tie to improving results
    • Protect savings from retroactive raids by budget balancers
  • Provide flexibility to reallocate money across budgets in response to changing circumstances
  • Create innovation fund

Purchasing:

  • Give managers control over purchasing—and accountability
  • Substitute “best value” for “low cost”
  • Simplify and automate
  • Enhance competition (qualify products from multiple vendors)
  • Create an e-commerce infrastructure (electronic bidding, reverse auctions, electronic catalogues and ordering, electronic funds transfer)
  • Partner with vendors & get them to share risks and rewards
  • Use RFP to buy results, not just to meet specifications

Personnel/HR

  • Decentralize authority for hiring, firing, and promotion (HR department a consulting or support resource)
    • Shift to broad job classifications
    • Broadbend pay system
    • Streamline hiring, promotion, and discipline, all based on objective performance expectations
  • Link compensation to performance
    • Eliminate automatic pay increases based on longevity
    • Reward performance with  bonuses and gainsharing
    • Variable compensation rates
    • Links acquisition of new skills to salary increases
    • Reinforce role of teams
  • Invest in building skills and competencies of employees
    • Team-based or peer-based professional development
    • Job rotation
    • Job coaching
    • Invest in leadership development

Accounting:  Tells people what matters by telling them what to count (too often, it is just costs, not results).

  • Make sure what you account for is what really counts—don’t confuse detail with accuracy
  • Use accounting to gather information that managers can use to manage their finances themselves
  • Balance risks and results (NOT zero-tolerance)
  • Integrate reporting of financial and performance information (integrated reporting system):
    • Inputs consumed
    • Activities completed
    • Outputs delivered
    • Outcomes
    • Comparison to performance agreements & budget
  • Use full-cost accounting, activity-based costing, and accrual accounting

Auditing—“…any environment that is too tightly controlled is one in which there is no freedom to innovate.”  p. 264

  • Focus on results, not just money
  • Enhance competition
  • Spread best practices
  • Emphasize managing risks, not zero tolerance

“Bureaucracy Buster Panel” (PSG)—should have power to modify, waive, or eliminate any internal rule or regulation, even over the objection of the rule authorizer.

 

Chapter Thirteen:  Smarter Work Processes—Tools from Industry

Total Quality Management—replace inspection for quality after production with improvement of quality before production.

  • Quality is in the eye of the customer
  • To improve quality you must improve process (reduce variability while creating consistently upward trend in quality).  85-94% of variability is due to “common causes” (structural problems, rather than worker variability).
  • Decisions about improving processes should be based on facts and data, not opinions.
  • Process improvement is an ongoing effort that yields incremental, continuous increases in quality
  • The people who do the work should be responsible for improving work processes
  • Tools of TQM (flow charts, cause-and-effect diagrams, run charts/time plots, control charts, histograms, Pareto diagrams, scatter diagrams, selection matrices)
  • Limits to transformational change:
    • No leverage to move larger systems that block change
    • Does not clarify or change organization purpose
    • Does not change underlying incentives
    • Does not empower employees
    • Does not work unless process is linear and repeated often

Workouts—GE developed brief intensive group sessions intended to solve problems by redesigning work processes from ground up.

Business Process Reengineering—complete overhaul, driven from top down, with project sponsor and project manager.   Appoint risk-takers to the team.  Stages are

  1. Research (“Get Curious”)
    1. Identify organization’s mission and goals
    2. Identify existing business processes that support the mission
    3. Assess the performance of existing business processes
    4. Select one or more business processes for reengineering
    5. Establish performance targets for the new business processes
  2. Redesign (“Get Crazy”)
    1. Start with clean-slate thinking to develop new ideas for design
    2. Select key ideas for the new design
    3. Address related systems such as information technology and human resources
    4. Plan the “migration” to the new process design
  3. Implementation (“Get Real”)
    1. Secure signoff on the new design by top management
    2. Test key changes on small scale
    3. Roll out changes in a carefully coordinated sequence

Lessons learned from BPR

  • Secure—and maintain—top-management buy-in
  • Anticipate employee anxiety about downsizing
  • Anticipate the need to redesign administrative systems
  • Secure political support (at the front end, so it’s there when radical change comes to table)
  • Involve the union
  • Use outsiders to help organization think outside the box
  • Imagine that the slate is clean, even if it is not
  • Communicate to the whole organization about BPR
  • Watch out for “paralysis by analysis”
  • Keep up the pace

 

Part Five:  Smarter Leadership—Managing Change from the Radical Center

 

Chapter Fourteen:  Leadership for a Change

  1. First, tell the truth—Roger Douglas’ advice:  “Tell the public, and never stop telling them, right up front:
    1. What the problem is and how it arose
    2. What damage it is doing to their own personal interests
    3. What your own objectives are in tackling it
    4. What the costs and benefits of the action will be
    5. Why your approach will work better than the other options”  p. 310
  2. Make your purpose clear and pursue relentlessly—“…in the face of polarized opinion, a leader is free to do what he or she believes is right, since criticism will follow regardless of the choice.” p. 312
  3. Frame everything in terms of results
  4. Get back to the core
  5. Be intensely driven by a passion for your customers
    1. Organizations that lose sight of their customers inevitably will lose sight of their core purpose as well, and their core passion.
  6. Be willing to change everything but your values (fair, honest, equitable, efficient and accountable, decisions based on merit.)
  7. Create an organization of leaders

 

Chapter Fifteen:  Politics—Truth, Lies, and the Campaign for Public Support

  1. Get focused and stay focused
  2. Reframe the issue:  If you want a different answer, ask a  different question
  3. Mobilize the general interest
  4. Build and mobilize constituencies that support the changes you want to make
  5. Neutralize interest groups that might otherwise oppose you by creating visible benefits for them.
  6. Make elected officials an offer they can’t refuse
  7. Never compromise the fundamentals
  8. Stay on the offense; don’t play defense
  9. Campaign every day
  10. Stay committed for the long haul