Tuesday, July 21, 2015

How does government manage the consequences of an imbalance in speed of transparency & speed of accountability?

One of the emerging challenges for governments in the online age is managing the discrepancy between the speed of transparency and the speed of accountability.

With digitalisation and the internet, the speed at which government information is made public is becoming faster, with it being easier to collect, aggregate and publish information and data in near or even real-time.

We see this particularly in public transit data, where many cities around the world now publish real-time data on the location and load of their buses, trains and trams, and in the health industry where a number of states have begun offering near real-time data on the congestion in emergency waiting rooms.

We're also seeing similar near real-time reporting on river levels, dams, traffic congestion and closures, and estimated real-time reports on everything from population to national debt levels.

This trend is expanding, with the Sense-T network in Tasmania pioneering an economy-wide sensor network and data resource. Similarly the Department of Finance in Canberra is working on a system to provide real-time budget information on government expenditure down to every $500 for internal management and public transparency purposes.

This trend is a leap forward in government transparency, providing citizens, bureaucrats and politicians with far greater visibility on how our governance systems are performing and far more capability to identify trends or patterns quickly.

We're seeing a similar transparency event at the moment, with the expenses scandal enfolding the Speaker of the House of Representatives, Bronwyn Bishop, related to her use of a helicopter and several charter flights to attend political fund-raising events.

What this event has also highlighted is that while Australia's governance systems are increasing the speed of transparency, our capability to apply that information to accountable decision-making isn't consistently accelerating at the same rate.

In other words, while we increasingly can obtain the information needed for rapid decision-making, the entrenched processes and methods for decision-making in government are lagging far behind.

We see this in the failure rate of IT projects, which can drag on for years after it's clear they will fail, when laws fail to work as they should and it takes months or years to amend them, when the public has judged a politician's actions, but parliament can take no formal action for months due to being out of session.

Of course many sound reasons can and are given by bureaucrats and politicians as to why decisions need to take lots of time.

Decision-makers from the pre-internet world will say that they need to ensure they have all the necessary data, have digested it, reflected on it, considered alternatives and consequences, consulted widely and only then are able to tweak or change a decision.

This is a fair position with many defensible qualities - it reflects the world in which these people grew up, when decision-making could be undertaken leisurely while the world waited.

However both management theory and the behaviour of our communities have changed.

Start-ups grow and become huge companies based on their ability to make decisions rapidly. They are continuously experimenting and testing new approaches to 'tweak' their businesses for greater success. This is underpinned by streams of real-time data which show the consequences of each experimental change, allowing the organisations to adjust their approach in very short time-frames, minimising their potential losses from sub-optimal decisions.

The community equally reacts very quickly to evidence of poor decisions and bad outcomes, with the internet, particularly social media, fueling this trend.

While this doesn't mean the community is consistently in the right on these matters, it does require decision-makers to respond and address concerns far more rapidly than they've had to in the past - 'holding the line' or 'depriving an issue of oxygen' are no longer effective strategies for delaying decision-making into the leisurely timeframes that older decision-makers grew up with.

This issue in the disparate speed of transparency (data release) and accountability (clear and unequivocal response) is growing as more organisations release more data and more of the public is collecting, collating and releasing data from their interactions with organisations.

The imbalance is fast becoming a critical challenge for governments to manage and could lead to some very ugly consequences if politicians and agencies don't rethink their roles and update their approaches.

Of course governments could attempt to sit back and 'tough it out', trying to hold their line against the increasing speed of transparency and accountability. In my view this would result in the worst possible result in the long-term, with increasingly frustrated citizens resorting to more and more active means to have government take accountability for their decisions in the timeframes that citizens regard as appropriate.

My hope is that government can reinvent itself, drawing on both internal and external capabilities and expertise to find a path that matches fast transparency with appropriately fast accountability.

I'd like to see governments challenge themselves to test all of their historic assumptions and approaches - reconsidering how they develop policy, how they consult, how they legislate and how they engage and inform the community, in order to address a world where 'outsiders' (non-public servants) are identifying issues and worrying trends at an accelerated rate.

Perhaps we need a radical new ways to develop and enforce laws, that provide scope for experimentation within legislation for agencies to reinterpret the letter of a law in order to fulfill it's desired outcomes and spirit.

Perhaps we need continuous online consulting processes, supported by traditional face-to-face and phone/mail surveys, which allow government to monitor and understand sentiment throughout policy development and implementation and allow a 'board' of citizens to oversee and adjust programs to maximise their effectiveness over time.

Perhaps we need mechanisms for citizens to put forward policies and legislation for parliament to consider, tools that allow citizens to recall politicians for re-election or a citizen-led approach to determining what entitlements are legitimate for politicians and what they should be paid, with penalties and appropriate recourse for citizens to sack representatives who fail to uphold the values the community expects at a far greater speed than the current election cycle.

There's sure to be many other ideas and mechanisms which may help deliver a stable and sustainable democratic state in the digital age of high-speed transparency and accountability - we just need governments to start experimenting - with citizens, not on them - to discover which work best.

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Friday, July 17, 2015

Have you visited data.gov.au lately? We're beginning to witness the 'Open Data Multiplier'

PS News has a great report on the growth of data.gov.au - linking to a report on the Department of Finance's blog which indicates the site added 100 datasets in June.

The site has also upgraded to provide more data visualisation capability for users, as well as a responsive template for improved mobile access.

Most interesting was the high use of the service over GovHack, with 4,755 user sessions by 2,618 users. The most popular datasets included intellectual property government open data 2015, ABC Local online photo stories 2009-2014 and sample household electricity time of use data.

I've written about some of the interesting Govhack prototypes over at The Mandarin in the article, GovHack 2015: a wildly successful idea that keeps spawning more, where I also wrote about how participation is a useful way for agencies to test and support 'edge' innovation without committing scarce personnel and funds.

From what I've been hearing over the weeks since Govhack we're reached something of a tipping point with open data in Australia, with governments beginning to seriously recognise the value of sharing data in this manner.

Those benefits are not just external to agencies, such as transparency, economic growth or community engagement, but also internal.

Internal open data benefits to government include improving agency decision-making (through greater awareness and access to collected data), improved data quality and fostering innovation and creativity.

As a result of reaching the tipping point, I expect to see continuing significant growth in the quantity and quality of open data available across Australia, as well as more targeted and useful data as agencies become more sophisticated in their data release (as I've outlined previously in my Open Data Generations Roadmap)

This will stimulate what I've termed the Open Data Multiplier.

As with the network effect, where the value of a network increases exponentially with the number of participants (think about telephones or the internet), the Open Data Multiplier means that each additional dataset released for reuse creates a growing number of possibilities to combine it with existing data, or use it on its own, to prompt even more interesting and diverse innovations.

However the Open Data Multiplier only operates when the community and agencies are engaged with open data. Without this community both inside and outside of the public sector, data sits 'on the shelf', generating no value at all.

This is where volunteer-run events like GovHack are valuable for fostering a positive civic hacking culture.

Agencies also have a role in fostering both an internal and external culture of data-based innovation through supporting GovHack and similar events, and running their own separate challenges on agency-specific topics (as Transport for NSW and Public Transport Victoria have done).

The internal benefits don't stop at data either. The same challenge model, once adopted by government, can be used more broadly for policy and service design and in finding diverse solutions for government problems - as has been successful in Challenge.gov and is used by VicHealth and thre ACT government.

Indeed I ran a similar service design challenge for the Victorian Government at GovHack, the first exploration of such an approach at that event. The learnings will help guide Victoria's government in identifying when to use similar approaches and in designing and running future challenges.

All of this follows on from opening up government data, creating a more permissive and experimental sandpit for innovation and sharing.

And it starts with a visit to data.gov.au - have you visited lately?

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Wednesday, July 15, 2015

Where have all the senior public servants disappeared to?

I've been attending a number of networking and other business events in the last month across Canberra, and have noticed that amongst all the CEOs, CTOs, Financial Directors and similar, that there's been no senior public servants in attendance.

While there was a good turn-out of public servants at one event I've attended, the Life beyond Lanyards launch last week, these were mid-level or lower.

So I'm beginning to wonder about how much actual cross-fertilization is going on between senior public servants and the private sector, how much senior public servants are getting 'out there' to meet and interact meaningfully with business owners.

Of course this is one person's impression over a short time period at a limited number of events, but when I think back over the last ten years, it's rare for senior public servants to spend much time with their colleagues in the corporate sector.

Definitely there's arranged events, speaking at conferences, attending lunch seminars and the like, but as soon as their part is done, senior public servants tend to race back to the office rather than shoot the breeze with their private sector equivalents, to discuss broader issues and topics.

Of course they have good reason - senior public servants are incredibly busy meeting their commitments to Ministers, managing their organisations and keeping work flowing through approvals and initiating work programs.

The culture of Australia's public service, for the most part, involves dedicated and hard work in service of the government of the day, in order to serve the citizens of the country.

However I think that sometimes working on their business is as important as working in their business. This is something that good corporate executives and small business people alike learn - that networking to form relationships, that consulting and learning from colleagues across other industries, is a key to improving their own organisations and achieving success.

This is a key ingredient in innovation - associating with people from many walks of life, rather than simply with one's one public sector colleagues.

Successive Australian governments have recognised the value of this cross-fertilisation, and the APS has also fostered bringing private sector people into senior government roles as a way to foster a broadening of attitudes, rather than the 'groupthink' that can emerge from any group of people with similar backgrounds, career paths, values and experience.

This has had mixed success in my view, many people with extensive private sector but without public sector experience don't last that long in SES roles, due to the level of difference in approach and views.

The current fledgling program of seconding senior public servants into the private sector is another attempt at achieving the same end - bringing a broader set of viewpoints and experience (as well as larger and more complex networks) back into the public sector, thereby improving the effectiveness of policy design and delivery and fostering innovation.

I hope this works well - but I don't believe either of the above are the full solution to this wicked problem.

What we need is for senior public servants to be mandated and supported to recognise that building deep relationships across and understanding of the sectors they serve is a valid and important part of dedicated public service.

This means delegating more tasks and approval authority downwards to leave senior public servants with time, and the mandate, to spend less time checking grammar and more time associating with groups and individuals outside of government.

Who knows, it could even help foster the external credibility of government.

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Tuesday, July 14, 2015

Does Canberra already face a shortage of experienced government ICT executives?

The Mandarin reports that six significant federal agencies are currently seeking permanent Chief Information Officers, while both the ACT government and the Federal government's Digital Transition Office recently resorted to overseas hires to fill senior leadership roles requiring strong digital backgrounds.

Does this signify a shortage of senior digital and ICT talent in Australia (or at least of talent willing to work for government)?

Or is it merely a timing issue, representing a temporary hiccup in the supply of appropriately skilled executives?

While I'm sure the current shortage will be managed, it is worth considering in the light of Australia's declining number of ICT graduates, which represents a future challenge for both government and the private sector in attracting the best talent for future ICT and digital roles.

While increasingly Australia is off-shoring ICT work, or is able to buy in foreign digital services and talent, this disguises a deeper concern - that there may not be sufficient ICT and digitally trained and experienced locals in the future able to step into senior strategic roles.

If many entry and mid-level programming and digital positions are outsourced to overseas specialists, Australia won't be providing enough locals with appropriate career paths towards senior roles to support the talent development we need as a nation.

Now this isn't a new issue, the ICT industry has been shouting about it from the rooftops for at least the last three years.

However the ICT industry doesn't have the lobbying power in Canberra of other groups, from doctors to miners, and with most of Australia's senior politicians being digital immigrants at best, there's limited recognition of the scale of the issue or what positive steps can be taken to address it.

As society grows increasingly digital, the lack of strategic talent available for business and government is likely to become a significant drag on our economy and governance capability, placing us at a relative disadvantage against countries with a good talent pipeline and positive digital policies.

So while agencies are searching for those senior ICT executives they need today, they should consider how they can future-proof their talent pipelines into the future.

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Monday, July 13, 2015

If you want to see the impact of poor user interface design, look no further than Canberra's parking meters

User interface design (or UX design) has been a buzz term for several years in government, with agencies spending significant money on ensuring their services and processes are easy for the broadest range of citizens to access and complete.

This is a good thing too - It makes good economic, reputational and even health sense to make it easy and fast for citizens to interact with government, reducing mistakes, stress and negative impressions.

Complex and difficult to user interfaces have higher error rates, resulting in frustrated and sometimes out-of-pocket citizens, extra costs for government and often a loss of trust and respect in the service outcomes and agencies responsible.

Anyone who still doesn't understand the value to both government and citizens need go no further to witness the issues poor interfaces and processes cause than Canberra's parking lots, where the current crop of parking meters are creating all kinds of problems for citizens.

For example the current parking meters in the Wilson-run car park on London Circuit follow a process that is both complex and invasive for customers, greatly increasing the time required to conduct one of the simplest tasks a citizen has to perform, renting a parking spot.

Firstly the machines have an unnecessarily complex interface, with six buttons, several unmarked, one each red and green and the other four all yellow. Little stickers have been manually attached to several of the buttons to explain their functions, although several of the yellow buttons are used for multiple purposes at different stages of purchasing a ticket and different times of day. Most have two name tags, one at top, one at bottom. Some of these tags were faded and hard to read, so would presumably need to be replaced regularly, adding unnecessary effort to the process of maintaining the machines and increasing the risk of errors by parkers.

The many buttons on Wilson parking machines in Canberra
The many buttons on Wilson parking machines in Canberra
Secondly the process to pay for a parking spot isn't as well explained or as easy as it could be. The machine first asks for a person's payment method (coins or card) and then requires entry of the car's license plate via a touch screen (so why buttons you may also ask).

Now, I don't know about everyone, but many people I know, including myself, haven't memorised our car license plates. It's never used as a form of personal identification and only rarely are people required to use it, usually when organising to service their car (and after the first service, normally a mobile number or name is sufficient for a mechanic). 

There's no benefit to the user to providing this license plate information - only to Wilsons, who I presume use it to prevent people ticket sharing if they leave a spot early, so they can profiteer by re-renting an already paid-up parking spot (which could be considered unethical profiteering, but is one of the techniques used to maximise profits in car parks).

Enter License Plate to begin (the second screen, so not the beginning!)
Enter License Plate to begin (the second screen, so not the beginning!)
There's also no signage in the car park, at the entrance or at the machine, to indicate to someone entering the car park, or waiting in line to buy a ticket, that they need to have this information at their fingertips. A parker new to the car park only finds out they need to have memorised their license plate when they reach this specific screen in the process - and they can't proceed any further without entering it.

The number and placement of machines in the car park can mean up to about a 50m walk back to your car to check, meaning a 100m round trip to retrieve this information. If there's a queue for tickets, common at peak times, this can make the ticket purchase process a 15 minute or longer process - intensely frustrating for busy professionals on their way to a meeting (speaking from personal experience).
Once past this screen the process was a little simpler, if followed precisely. The screen told me which yellow buttons to press (although I had to recognise that 'Select Earlybird' meant press the button which was marked as both 'Card' and 'E/Bird'), it took my coins quickly and efficiently dispensed my ticket.

Unfortunately the process wasn't as seamless for people ahead of me in the line who were using credit cards. Often the machine took three or more goes to recognise the card as valid and, once it had, it took on average 135 seconds to approve each transaction (I timed this). 

For credit card users, if you knew your license plate number (as regulars would learn to do), the entire process took approximately 3.5 to 4 minutes to complete, most of it spent choosing the right yellow buttons and waiting for credit card approval. At this rate each machine could service 15-20 people per hour. Cutting a minute off the credit card approval process would allow the machine to service 25-30 people per hour, This is up to a 100% increase in speed, resulting in less stressed customers, better patronage and more revenue for the car park.

Most of Canberra's public car parks have ACT government parking machines. These are different to Wilson's and have a slightly better interface - although they don't allow coin payments. 

Having used them frequently I'm not as able to look at them with unfamiliar eyes, however they provide better onscreen instructions to step people through the necessary steps, although I've witnessed people struggling to understand the '+' and '-' buttons for increasing or decreasing the parking time, with many people just paying the full amount rather than selecting a time period.

These machines don't require a license number, and don't have unnecessary buttons, so the overall impression is of a simpler process.

However these machines suffer from a similar issue to the Wilson machines for the credit card approval process, which takes a relatively long time for card approvals. While I appreciate this might be due to dialing into the bank each time, it does mean that at peak times there can be a long line of people standing and waiting for their turn, resulting in more stressed customers and potentially reductions in revenue.

I've also witnessed situations where there's insufficient room to queue safely for these machines, with people required to wait in a queue that snakes into the roads within the car park, where they and cars must dodge each other. This presents an increased risk of an accident, where a pedestrian is harmed by a car attempting to find a car spot, potentially increasing the legal risks to the ACT government.

Now these ACT government car parks do allow people to pay for their parking online, removing the queuing and waiting at the car park, when people may be rushed for time. This option is not well explained on the machines in the car parks, which is a shame as it could cut queues as people waiting could simply go online to pay. 

Incidentally I find this a very handy trick at Hoyts to avoid some of the really long queues for movies - despite their ridiculous surcharge on online purchases, when nudge theory suggests they should charge less for online purchases (including from the Candy Bar) to prompt greater take-up and reduce physical queues and staff time.

However I've heard and read many reports of people who have found online payment for car parking a frustrating process as, once parked, parking inspectors often give tickets to people who aren't displaying a parking ticket. This has even received media coverage

As a result I've not tried this process and likely won't try it until the ACT government makes it clear (on parking meters and via it's own media channels) that the online option is working correctly.

This issue seems to be purely a training and change management one, with parking inspectors needing some adjustment of their behaviour through training and support to ensure they check the online system before issuing tickets.

Tens of thousands of public servants use Canberra's parking machines regularly, and have likely noticed issues and possibly even expressed frustration with the user interface and process. Many would have adjusted their own behaviours to deal with the foibles of the systems - arriving a few minutes earlier to allow for credit card purchase approval time, memorised their license plate number and learnt the right sequence of button presses to achieve the outcome they need daily.

All of them should consider the user interface and process, reflecting on their own experience. How could it be made simpler and easier, particularly for parkers who don't use the parking every day?

Then take that thinking and reflect on the user interfaces and processes they create and administer within government. How could they be made simpler and easier for citizens and for public servants, while reducing the error rate and cost to government?

What is the impact of any poor design within their own systems - both to citizens and government? And what value could be delivered, and behaviours adjusted positively, by improving the user interface design?

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