realising the benefits of e-government – the cjs it programme...
TRANSCRIPT
Realising the benefits of e-Government – the CJS IT Programme experience
Presentation to Forum P.A, RSO seminar Rome, 9th May 2006
Stephen Jenner, Portfolio Director, Criminal Justice IT
The CJS IT Programme - 3 billion euros, 2003-2008
Context: Justifying the investment – appraisal & evaluation in the UK
“The fundamental reason for beginning a programme is to realise the benefits through change.”
Source: Managing Successful Programmes (MSP) from the Office for Government Commerce
“It is only possible to be sure that change has worked if we can measure the delivery of the benefits it is supposed to bring.”
Source: UK Cabinet Office, Successful IT: Modernising Government in Action
But by the start of the 2004 Spending Review we faced…
A negative cost-benefit position for the Programme as a whole
Significantly reduced benefit realisation
But we were in good company
• “for more than two decades, implementing IT systems successfully has proved difficult…implementation of IT systems has resulted in delay, confusion and inconvenience to the citizen and, in many cases, poor value for money to the taxpayer.” (Public Accounts Committee of the House of Commons ‘Improving the Delivery of Government IT projects’ 1999)
• “78% of Information Systems projects failed to realise even 50% of the originally identified benefits.” (Management Today, 2001)
• “30-40% of systems to support business change deliver no benefits whatsoever.” (OGC Successful Delivery Toolkit, 2005)
So action was needed in terms of establishing repeatable processes and evidence-based Tools & Techniques in the areas of:
• Investment Appraisal & Portfolio Prioritisation
• Active Benefits Management
Managing the Portfolio 1 - Investment Principles…Funding is dependent upon adherence to the CJS IT governance arrangements
Projects funded must deliver benefits to more than one agency
Complete what is started subject to performance
Projects must provide positive rates of return agreed with the recipients
Options selected should provide VFM and be achievable quickly
Consume your own smoke i.e. departments are expected to fund overspends
Continued funding depends on performance including benefits realisation
Critical issues need to be addressed before funding is confirmed
Projects must meet industry best practice criteria for attractiveness & achievability
‘3 A’ Analysis - Attractiveness
ATTRACTIVENESS ANALYSIS ECONOMIC ANALYSIS* NPV IRR PAY BACK PERIOD (DISCOUNTED) * NOTE THAT THESE INDICATORS HAVE BEEN ALTERED TO REFLECT THE PRINCIPLES OF THE BENEFITS ELIGIBILITY FRAMEWORK. BENEFITS ANALYSIS OVER 10 YEAR PROJECT LIFE CYCLE RECIPIENT EFFICIENCY –
CASHABLE (£M) EFFICIENCY – OPPORTUNITY VALUE (£M)
EFFECTIVENESS (£M)
CJO: None CJO: None CJO: None CROSS CJS: BEYOND THE CJS(SPECIFY): TOTALS: CONFIRMED SOURCE OF CONFIRMATION SR2004 BENEFITS INCLUDED IN BRPS OR AGREED BY THE BRL
Select
BENEFITS INCLUDED FOR NPV HAVE BEEN ADJUSTED FOR OPTIMISM BIAS
Select
STRATEGIC ALIGNMENT & CONTRIBUTION ASSESSED CONFIRMED? STRAND 1: CONFIDENCE N/A NO YES BY STRAND 2: VICTIMS & WITNESSES N/A NO YES BY STRAND 3: OFFENCES BROUGHT TO JUSTICE N/A NO YES BY STRAND 4: ENFORCEMENT N/A NO YES BY STRAND 5: JOINED UP IT N/A NO YES BY DEPARTMENTAL EFFICIENCY PLANS N/A NO YES BY REDUCING RE-OFFENDING N/A NO YES BY
PROVING MODEL ASSESSMENT Date: Attractiveness Score:
Progress since assessment:
‘3 A’ Analysis - Achievability
A C H I E V A B I L I T Y A N A L Y S I S
A S S E S S M E N T O F D E G R E E O F B U S I N E S S C H A N G E R E Q U I R E D T O R E A L I S E B E N E F I T S R E C I P I E N T B R L A S S E S S M E N T C O M M E N T S O t h e r S e l e c t O P T I M I S M B I A S A D J U S T E D A N D S U F F I C I E N T C O N T I N G E N C I E S I N C L U D E D
P R O J E C T S P O N S O R ’ S S E L F A S S E S S M E N T J U D G E M E N T O V E R A L L
R A T I N G R A T I O N A L E S U M M A R Y
D E G R E E O F C O M P L E X I T Y S e l e c t Q U A L I T Y O F P L A N N I N G , I M P L E M E N T A T I O N & P E R F O R M A N C E M A N A G E M E N T
S e l e c t
C A P A C I T Y T O D R I V E P R O G R E S S S e l e c t
L I K E L I H O O D O F B E N E F I T S R E A L I S A T I O N S e l e c t
P R O V I N G M O D E L A S S E S S M E N T D a t e : A c h i e v a b i l i t y S c o r e : P r o g r e s s s i n c e a s s e s s m e n t :
R E D R E D / A M B E R A M B E R A M B E R / G R E E N G R E E N H I G H L Y P R O B L E M A T I C – R E Q U I R E S U R G E N T A N D
D E C I S I V E A C T I O N
P R O B L E M A T I C – R E Q U I R E S E S U B S T A N T I A L
A T T E N T I O N , S O M E A S P E C T S N E E D U R G E N T A C T I O N
M I X E D – A S P E C T ( S ) R E Q U I R E S U B S T A N T I A L
A T T E N T I O N , S O M E G O O D
G O O D – R E Q U I R E S S O M E R E F I N E M E N T A N D
S Y S T E M A T I C I M P L E M E N T A T I O N
G O O D – N O A T T E N T I O N N E E D E D . P R O J E C T W I L L P R O G R E S S A C C O R D I N G
T O P L A N
‘3 A’ Analysis - Affordability
AFFORDABILITY ANALYSIS
OTHER FUNDING SOURCES BUDGET (£M) AVAILABILITY CONFIRMED? OTHER SOURCES: Select FUNDING AVAILABLE TO REALISE BUSINESS CHANGE? Select CONFIRMATION THAT OVERSPENDS WILL BE MET BY DEPARTMENTAL BASELINES
Select
DOCUMENTS USED TO ASSESS THIS PROJECT VERSION DATE Business Case Proving Model Assessment Q1 2005/06 Benefits Evidence & Revised Forecast Report
RESOURCE/CAPITAL REQUIRED RESOURCE/CAPITAL AVAILABLE RESOURCE
(£M) CAPITAL
(£M) TOTAL (£M)
RESOURCE (£M)
CAPITAL (£M)
TOTAL (£M)
2005/6 2006/7 2007/8 SR2004 AVAILABILITY CONFIRMED BY :
RESOURCE/CAPITAL GAP RESOURCE
(£M) CAPITAL
(£M) TOTAL (£M)
2005/6 2006/7 S2007/8 SR2004
Portfolio Analysis
Active Benefits Management 1 – ‘Contributor’ Project Benefits Reporting
RecipientCost Avoidance
Self Assessment Cashable Opportunity Cashable Opportunity £ %Crown Courts 12.700 35.620 0.000 25.920 0.000 74.240 6.7%
Quality of Benefits Forecast Other CJOs 0.000 117.820 0.000 52.760 0.000 170.580 15.3%Scale of Benefits Forecast Cross CJS 0.000 0.000 0.000 173.710 0.000 173.710 15.6%Quality of Realisation Planning Outside CJS 0.000 0.000 0.000 694.860 0.000 694.860 62.4%Likelihood of Realisation Total £ 12.700 153.440 0.000 947.250 0.000 1113.390 100.0%
Benefits Realised this financial year £m Last report NowMonetary Value of Benefits Realised YTD 0.01 NPV £m* 154.301 -
4.10.0%
Variance -4.09
Performance £ M
From 1 month after Go-live at each court centre
Reduced waiting time claim valuesBenefit not yet due for realisation10 Reduction in solicitor waiting - 12.7 Efficiency cashable
PSA Targets 2, 3 and 5
Crown Court
Following rollout to all prisons in a CJA
Benefit not yet due for realisation9 NOMS Benefits - 36.9 Effectiveness opportunity
PSA Target 5
NOMS
Benefit ahead of or in line with plan10
Benefit ahead of or in line with plan
No of bail forms sent and time taken
9
3 months after go live in a CJ Area
No of enquiries made to CCBenefit ahead of or in line with plan
No of daily/warned lists sent and time taken
8 Police Benefits - 115.52 Efficiency opportunity
PSA Target 5
Police
3 months after go live in a CJ Area
Number of enquiries made to CCBenefit ahead of or in line with plan
No of daily lists faxed/time taken.
7 CPS Benefits - 2.3 Efficiency opportunity
PSA Target 5
CPS
From 1 month after Go-live at each court centre
Backlog countBenefit ahead of or in line with plan
Number of disposals
6 Crown Court Efficiency benefits - 35.61 Efficiency opportunity
PSA Targets 2, 3 and 5
Crown Court
From 3 months after Go-live at each court centre
Number of disposalsBenefit ahead of or in line with plan5 Court time saving (Same day delays) - 5.98 Effectiveness opportunity
PSA Targets 2, 3 and 5
Crown Court
From 6 months after Go-live at each court centre
Percentage of ineffective hearingsBenefit not yet due for realisation4 Court time saving ( Ineffective Hearings)
Assumption of improvement of 1-10% 31.78 Effectiveness opportunity
PSA Targets 1, 2, 3 and 5 Crown Court, Police, CPS, Probation
From Go-live at each court centre
No. of adjournments as a result of no PSRBenefit ahead of or in line with plan3 Court time saving (PSR adjournments)
Improvement from 15% to 3.4% 4.06 Effectiveness opportunity
PSA Targets 2, 3 and 5
Crown Court
To start 6 months after completion in a CJ Area
Time from CC result to PNC update
2 Reduction in the cost of crime
PNC update down to 3 days 694.86 Effectiveness opportunity
PSA Targets 1 and 3
UK economy
To start 6 months after completion in a CJ Area
Time from CC result to PNC updateBenefit realisation behind Plan
Realisation Ramp Up Key Measures/Indicators of Benefit
Benefits Realisation
Status
1 Reduction in the cost of crime
PNC update down to 3 days 173.71 Effectiveness opportunity
PSA Target 5
CJS
94.2*NPV discounted at 3.5%
Project Life Cycle Benefits Profile (Top 5-10 benefits over 10 years)
Benefit Description
Impact
Benefit Category Strategic AlignmentMain Recipient
Name(s) of recipient agreed with
Q4 Assessment
Q4 forecast for Q1
Forecast in latest published Delivery Plan YTD IRR %
Approved by SRO:
Benefit not yet due for realisation
CJS IT BENEFITS PROGRESS REPORT - QUARTER 4 2004-05 FOR CJS EXCHANGE XHIBIT PORTAL
10 Year Analysis
Efficiency £ M Effectiveness Total
Q3 Assessment
Q3 Forecast for Q4
Cumulative Cost and Benefit Forecast 2003-2013
-
200
400
600
800
1,000
1,200
2003
-04
2004
-05
2005
-06
2006
-07
2007
-08
2008
-09
2009
-10
2010
-11
2011
-12
2012
-13
Year
£'m
Cumulative Benefits Cumulative Costs
But – Optimism Bias is a reality
“There is a demonstrated, systemic, tendency for project appraisers to be overly optimistic. This is a worldwide phenomenon that affects both the private and public sectors…appraisers tend to overstate benefits, and underestimate timings and costs”
Source: HM Treasury ‘Green Book’
The Benefits Integrity Check…
SponsorOrganisation
RecipientOrganisationBenefits
Programme C
Programme BProgramme A
RealisationPlan
Benefits IntegrityCheck
Agency A
RealisationPlan
RealisationPlan
Agency B
Agency C
Benefits Eligibility Framework
Active Benefits Management 2 – Recipient Organisation Benefits Realisation Planning
AccountabilityNamed benefit owner for eachbenefit
Progress by Quarter
Current RAG Status
AccountabilityAgency Benefits Realisation Lead
Active Benefits Management 3 - Strategic Alignment via Benefits Realisation Plans for each strategic target
No. Source Project (1)
Source (1)
(2) (4)
Benefit Category (1)
Benefit Owner
(1)
Hypotheses (2) (3) Current RAG Status
(1) (2)1 ETMP/CPT BRP: CPS -13
Efficiency opportunity
Steve Przybylski/ Chris YULE
ETMP/CPT: reduces the time taken by CPS for the following case progression processes in the crown court 1) Pre-PDH 2) Post-PDH 3) Check compliance with directions 4) Check readiness for Trial and 5) Applications together with some fax, phone, post savings.ETMP/CPT: reduces the time taken by CPS for the f ll i i i th i t t
Benefit realisation behind plan
3 OASys BRP: NOMS - 5
Efficiency Opportunity
John Powls (on behalf of Christine Knott)
OASys: enables HMPS and NPS to adopt common techniques and exchange offender assessment information efficiently and effectively so that offenders are better managed across service boundaries, i.e. when they
Benefit realised ahead or in line with plan
7 SeMOASysNSPISNOMIS
BRP: NOMS - 19
Effectiveness Opportunity
John Powls (on behalf of Christine Knott)
OASys: ensures that offenders are assessed consistently and thoroughly and that risk assessments are regularly reviewed OASys and SeM: facilitates the exchange of assessment information OASys: provides prompts for risk of harm screening NOMIS: facilitates improved offender information
idi i l d th NPS d HMPS
NOMS - GREEN Benefit realised ahead or in line with planCJIT Difficulties with benefits measurement/evidence means
8 SeMOASysNSPISLIBRANOMIS
CJIT CEI Effectiveness Opportunity
OASys: prevents multiple assessments therefore assisting end to end offender managementNOMIS and SeM: enables connectivity to external agencies - authorised agencies (e.g. drug treatment providers) facilitating better information sharing OASys and NOMIS: provides information about i t ti / d it t
CJIT Difficulties with benefits measurement/evidence means realisation is uncertain
RAG Status Red: Benefit realisation behind plan Amber : Difficulties with benefits measurement/evidence means realisation is uncertainGreen: Benefit realised ahead or in line with planWhite: Benefits not yet due for realisation
(3) Source: Appropriate business case (4) Note: Number refers to the row in the named BRP
CEI CONSEQUENCE 12 Reduce the rate of reoffending
Reconviction rates
(1) Source: CJA Benefits Realisation Plans Q1 05/06 (BRP)(2) Source: CJIT Combined Effectiveness Impact (CEI) Model vA1.0 July 05
CEI CONSEQUENCE 10 Reduce incidents of offender self harm and harm to others
SIDs and self harm volumes Safe Custody Group
Creation of the central O-D+C5EAT database enables the provision of aggregate offender data across NOMS.
2005/6 indicators: O-DEAT database to have at least 800,000 completed offender assessment records; 624 O-DEAT reports.
SR2004 CJS IT CONTRIBUTION TO CJS 2008 VISION - CJS PSA Standard Settlement Condition - Reduce Re-offending
Benefit Description (1) (2) Key Measures/Indicators of Benefit (1)
(2)
Casework Enabled by ETMP/CPT resulting in time savings in CPS for case progression processes
IT will support will reduce manual process times for some case progression activities.
CJS IT Benefits Management Process
Business Case Development
Measuring & Tracking: Initial
Baselining
Project Live Service
Benefits Recipients
Strand Boards
Efficiency Planners
Benefits Contributor
CJIT Benefits Eligibility Framework
1-Page Summary Benefits Report
CPS Efficiency PlanDCA Efficiency PlanHO Efficiency Plan
Measuring & Tracking: Benefits Realisation
OBTJs
Reduced Re-offending
ConfidenceV&W
Enforcement
Check alignment with BEF e.g. double counting, cost avoidance
If funding approved
Project View of Benefits
Project Benefits Lead and Benefits Realisation Lead agree Efficiency & Effectiveness benefits
Benefit Realisation Leads and Efficiency Planners
agree Efficiency Benefits that contribute to
Departmental Efficiency Plans
Strand Boards agree Efficiency &
Effectiveness Benefits that contribute to Strand
Benefits Realisation Plans
Benefit Realisation Plan: Police
Benefit Realisation Plan: CPS
Benefit Realisation Plan: Courts
Benefits Evidence & Realisation Forecast
Benefit Realisation Plan: Corrections
CEI framework : Consequence 8 – Cases Cracked Late
RCM Consequence 8
LIBRA
NSPIS C&P
Provides accurate information earlier
Ensures quicker resulting cases & conformance to CJS standards
Facilitates better case preparation
Speeds up communications with CPS
Delivers consistent charge wording
Supports a more effective timely prosecutional review
08.1 Prosecution discontinue case /
withdraw
08.2 Defendant pleas to alternative
offence
08.3 Defendant changes to a guilt
plea
08.11 Witness does not give
evidence
08.12 Ruling against
Prosecution on evidence
admissability
08.13 Inappropriate
charging
08.14 Insufficient evidence
08.15 Ineffective review
08.16 Not in public interest
08.21 Inappropriate
charging
08.22 Ineffective review
C08.Cases cracked late
SR02(PSA 01) To reduce crime and the fear of crime
SR02(PSA 02) Narrowing the justice gap by increasing the number of
crimes where the offender is brought to justice (NJG)
SR02(PSA 03) Increase level of public confidence
Supports work of WCU (NWNJ) which prevents witness not giving
evidence COMPASS
CJSIT Social Value – Different stages of benefits
TimeSavings
Prevented Victimisation
Public Satisfaction
Consequence
And the results to date…
• Spending Review baseline rolled forward for another 2 years
• The Programme can now demonstrate a (robust) positive return on investment
• We’ve laid the basis for evidenced benefits realisation
Some encouraging feedback…
Cabinet Office report to the OECD - “CJSIT…a best practice case in the UK”
Gartner - “ the facilitating role of the IT portfolio unit represent good practices. Government organizations that are seeking successful approaches to program and project portfolio management should study CJIT's actions”.
CISCO report to the US NECCC - “your CJIT Portfolio Management initiative is considered a strong and proven approach to measuring the benefits of IT investments “
Booz Allen Hamilton international e-gov benchmarking study - “sound investment practices...CJIT has adopted many best-practice investment tools…recognised by the EC as a leader in this field in Europe”
Conclusions – Key principles• Benefits begin with the Business Case
• Link funding to benefits forecasts
• Link continued funding to benefits realisation
• Validate project benefits forecasts with the recipients
• Plan and manage benefits realisation from a business rather than a project perspective
• Capture all forms of value – efficiency, effectiveness and social value
• Utilise Summary documentation (the Pareto principle)
