Governing the City State - Chief Minister and Treasury Directorate ...

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Writing about public discussions of city planning, the Grattan Institute suggests:Those cities that made tough choices and saw them through had early, genuine, sophisticated,and deep public engagement.Residents of cities must be involved in decisions, at a metropolitan and at a local level. In oursample, such involvement appears to have been critical to making tough decisions that werethen actually implemented. This level of engagement is an order of magnitude different fromwhat happens in Australia today.The type of engagement matters a lot. For example, it must start early, before decisions havebeen made; genuinely engage a significant proportion of the population; be focused on realchoices and be clear about their consequences; there should be no promotion of a ‘favouredapproach’; and there must be a commitment to follow through. 72There is, of course, a political balance to be struck, and the ACTPS needs to work with itsMinisters in deciding when and how to pursue participatory decision making:constraints such as time criticality, security, funding availability, conflicts of interest and theprivacy of individuals, as well as the government’s perception of the political climate, need tobe balanced against the importance and benefits of stakeholder engagement. On occasions,the government will simply decide that a matter is not (or no longer) open for debate. 73Public Value Management also involves challenges for the ACTPS requiring new ways oforganising and working:The starting point to the effective engagement of citizens in the policy process is to establish anew approach to public management that speaks the language of the citizen and makes aconcerted attempt to understand and respond to the basic needs of the citizenry. In short, topractice public-value management at every level of the public service so that it becomesembedded in the norms and values of the service. 74Moreover, working in this way requires a new and different skill set and approach to workingcollaboratively not only within the bureaucracy, but with the community. This presentschallenges for the ACTPS, and individual officials, as well as the relationship between theGovernment and the Assembly. Participatory decision making does not sit comfortably withhierarchical authority and accountability lines, nor does it follow linear and predictable paths,which in combination can leave agencies “caught between the conventional bureaucratic andpolitical need for hierarchy and accountability and the need from participatory exercises forflexibility and dynamism”. 75Perhaps most significantly, genuine participatory decision making and co-production ofpublic services and programs by the ACTPS and the people who use the services it providesdepends on strong leadership, trusting relationships, and crucially, a willingness by all partiesincluding the Government to share decision making power. Success is also predicated onclear and shared understandings among all participants of the nature of the process being72 Kelly, J. (2010) Cities: Who Decides. Grattan Institute Report No. 2010-5. Grattan Institute, Melbourne, pp.4,45.73 Management Advisory Committee (2004a) p.97.74 ANZSOG Institute for Governance (2009) p.3.75 Involve (2005) People and Participation – How to put citizens at the heart of decision making. London. Involve. p.26Governing the City State: 64
undertaken, and the roles participants are expected to play. It is founded on “actualgenuineness, as well as the perception of genuineness”. 76It was a common theme in Submissions to the Review that the ACTPS’s performance incommunity engagement processes has been variable at best. Contributors remarked thatsome community engagement processes pursued by the ACTPS fell short on genuineness,and lacked clarity about purpose, role and impact, which are crucial to the success ofparticipatory processes, if only in overcoming community cynicism. The ConservationCouncil ACT Region Inc, noted, for example in its Submission a significant proportion ofpeople it randomly surveyed:stated that they believed the government would not, or probably not, listen to their views onthe future of Canberra. Rarely is there any feedback provided after public comment on anexhibition to demonstrate how the government may have taken the community’s views intoaccount. 77ACTCOSS similarly noted in its Submission deficiencies in ACTPS engagement practices:There are a number of concerns regarding government consultation processesincluding:• Being provided with a short amount of time to provide feedback;• Gaining little or no feedback regarding consultation processes;• Outcomes of consultation processes being delayed by months or in some casesyears;• Some aspects of policies appearing to be predetermined, with consultation processesacting as a formality; and• Replication of consultation processes for projects and policies that are similar orlinked.Despite clear guidelines in the current ACT Government community engagement manual, toooften consultation occurs with short timeframes, or at inappropriate times of year (e.g. aroundthe Christmas/holiday period). The community sector has limited capacity to respond toconsultations. When only given short timeframes, or when consulted at inappropriate times,this seriously limits the sector’s capacity to engage. 78The Review notes the public cynicism that greeted the announcement during the 2010 federalelection campaign of a citizens’ representative assembly on climate change as an example,perhaps, of the scepticism with which people will receive future announcements ofparticipatory processes in which they have little confidence.76 Edwards (2008) pp.8,1377 Submission No.21. Conservation Council ACT Region Inc.78 Submission No.19.Governing the City State: 65
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Governing the City StateOne ACT Gov
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LETTER OF TRANSMITTALMr Jon Stanhop
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CONTENTSEXECUTIVE SUMMARY .........
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Doing Whole of Government in the AC
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Proposed Changes...................
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Investing in Capability ...........
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Acronyms and Short Forms Used in th
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EXECUTIVE SUMMARYIn September 2010,
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There are nevertheless areas that r
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The Administrative ArrangementsWith
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5. Amend the Public Sector Manageme
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24. Strategic Board outcomes be pro
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Department of Justice andCommunity
Page 29 and 30: Figure 1 - Current and Proposed Str
Page 31 and 32: Chief Minister’s Finance Economic
Page 33 and 34: Figure 2 - Structure optionsOption
Page 35 and 36: Priority SettingThe Review recommen
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Page 39 and 40: CHAPTER ONE: BACKGROUND TO THE REVI
Page 41 and 42: Guiding Principles - Embracing Uniq
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Page 45 and 46: CHAPTER TWO: CONTEXT FOR THE REVIEW
Page 47 and 48: capacity of the Commonwealth Execut
Page 49 and 50: Table 1 - Elected Members at Each L
Page 51 and 52: The ACT in 1989 and 2010PopulationI
Page 53 and 54: Figure 5 - Settlement and New Centr
Page 55 and 56: Canberra in 2010 - a Snapshot• Th
Page 57 and 58: In addition to the RLF and its rela
Page 59 and 60: • disability officers (43.9 years
Page 61 and 62: Figure 9 - Sources of ACT Governmen
Page 63 and 64: Table 6 - General Government Sector
Page 65 and 66: looming risks to revenue, which wil
Page 67 and 68: • the development of a city which
Page 69 and 70: CHAPTER THREE: GOVERNING THE CITY S
Page 71 and 72: commitment to an open, accountable,
Page 73 and 74: This form of Committee meeting woul
Page 75 and 76: and cooperative relationships betwe
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Page 79: with respect to the relationship be
Page 83 and 84: These risks can be overcome through
Page 85 and 86: specific policy areas where it is t
Page 87 and 88: Despite its inherent appeal to comm
Page 89 and 90: - and enhance its capacity to provi
Page 91 and 92: Apples and Oranges - the ACTPS and
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Page 95 and 96: The ACT's progress is measured by 2
Page 97 and 98: coordination of action. To function
Page 99 and 100: Many of the benefits of the single
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Page 104 and 105: Citizen’s dealings with the ACT G
Page 106 and 107: Canberra suggests, for example, tha
Page 108 and 109: community through the proactive use
Page 110 and 111: innovative ACTPS. Fundamental to th
Page 112 and 113: times, the operation of COAG has se
Page 114 and 115: Indeed, in playing its proper role,
Page 116 and 117: members (where they exist). Overall
Page 118 and 119: Figure 13 - The Public Interest Map
Page 120 and 121: Just because an official is exercis
Page 122 and 123: Appendix 1 - Sample of ACT Governme
Page 124 and 125: The Administrative ArrangementsThe
Page 126 and 127: • creating the Sustainable Develo
Page 128 and 129: Department of Treasury • See Chie
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• maintain the Shared Services Go
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Chief Minister’s Department(Optio
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The most influential aggregation of
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The role of the proposed Chief Mini
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through ACT Government reporting pr
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community events and major economic
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This approach is sound and reflects
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Policies, procedures and guidelines
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Triple Bottom Line sustainability p
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subsequent years the Infrastructure
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Unions ACT noted in its Submission
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While there is clearly a need to en
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As part of this work, the Review re
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across the ACTPS. Significant impro
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Independent Competition and Regulat
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Department of Justice and Community
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accreditation, dispute resolution a
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function as part of the Office for
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The Review also notes work to achie
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ACT Health(Health Directorate - Min
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Significant whole of government, co
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Minister forChildren and YoungPeopl
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The Social Compact establishes a Jo
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quality of data about Aboriginal an
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Department of Education and Trainin
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It is interesting to note in this c
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profitable courses in one area dimi
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Department of Territory and Municip
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Proposed ChangesThe Review recommen
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TAMS has already made advances in t
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PCL’s role extends to fire fighti
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IssuesSupport to the Conservator fo
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FunctionsClimate change policyEnerg
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Clearly there is a place in every p
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LDA was praised for its central rol
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(l) to provide planning services, i
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There is a high level of inefficien
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IssuesCOAG’s National Criteria fo
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• The linkages between service pr
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we envisage such a group, probably
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o Completion Bond - Bond taken as s
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In responding to the recently compl
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Business SupportThrough the course
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Land developmentLand releaseMajor l
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they discharge their responsibiliti
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CHAPTER FIVE: STRATEGY, RESOURCE AL
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number, and there was a greater ali
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adversary or attaining an end”, a
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At the core of this scenario planni
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concrete activities and areas of fo
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attempt to align streams of reporti
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• Capital Development is the ACT
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consultations with staff that they
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Much of this coordination work in w
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objectives contribute to the priori
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central direction in developing the
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desires of the Legislature to scrut
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Performance and Accountability in t
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The performance and accountability
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• conducting evaluations to a hig
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argued and accurately costed in a t
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A more significant improvement woul
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Performance and Accountability and
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Strategy, Resource Allocation and t
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too long. There is clearly an unwil
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The modelling of these values is mo
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To complement the existing work exe
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policy?Averaged rating (equallyweig
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• the greater likelihood of a nar
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The Auditor-General has recently ta
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• workplace health and safety tra
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of officials to tackle critical iss
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The Review recommends establishment
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Responding to the fiscal pressures
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Workplace culture in the ACT Parlia
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explored. With the help of benchmar
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Continuing to provide employees wit
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There is an increasing need for Ser
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… finding this ‘space’ [to in
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Figure 20 - Dimensions of Innovatio
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the past, limitations on external c
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• better information sharing to s
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The plethora of approaches to encou
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Figure 22 - Innovation CycleRecomme
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The legislative employment framewor
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Unions expressed frustration to the
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extend to matters of remuneration a
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• Develop the strategic human res
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Recommendation: Governance• the p
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ameliorate such issues, this is not
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Recommendation: Shared Services•
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This led the Commission to define s
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The second model represents each sp
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The consultation process referred t
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Suggestions:• the sustainability
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taking up to four years. ‘Plannin
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the release of residential land. As
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house prices. Among the actions tar
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The usual model is that Commonwealt
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Canberra also has an extensive walk
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ACTION staff and management are acu
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suggests that it may not be so. Con
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• unless the industrial framework
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Green CabsMany countries are embrac
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modules, each with a lead senior ex
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Dashboard ReportingThe attached tem
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ATTACHMENT A: CHIEF MINISTER’S PR
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ATTACHMENT B: CONSULTATIONConsultat
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Meetings held by the Reviewer• AH
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• RATTENBURY, Shane - Speaker, AC
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BIBLIOGRAPHYACT Auditor-General (20
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Australian Public Service Commissio
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Evans, M. (2009) “Gordon Brown an
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Mulgan, R. (2002) “Accountability
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South Australian Performance Commis
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Williams, G. (2010) “Euthanasia B
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Figure 25 - The Three Spheres of Su
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