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RPIC Regional Workshop 2011
Transitioning to InvestmentPlanning
Lessons learned implementing the Policies on Investment Planningand the Management of Projects
Real Property Institute of Canada Regional Workshop, Vancouver BC, June 14, 2011
RPIC Regional Workshop 2011
Agenda
Copyright Interis Consulting Inc. 2010 2
1 – Introductions & Session Overview
2 – Policy Review
3 – Overall Findings
4 – Investment Planning Elements
5 – DFO Implementation
6 – Lessons Learned
7 – Questions
RPIC Regional Workshop 2011
Copyright Interis Consulting Inc. 2010
Introductions
Your Presenters
• Greg McIntyre, CMC,• Principal, Western Region, Interis Consulting
• Kevin Muldoon, BA, CGA• Manager – Capital Planning and Analysis
Department of Fisheries and Oceans•
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Copyright Interis Consulting Inc. 2010
Session Objectives
1. Provide a quick review of the Policy on Investment Planning(IP) and Policy on the Management of Projects (MP)
2. Review overall departmental findings and experiences
3. Present key components of an effective investmentgovernance framework for increasing departmentalperformance
4. Discuss challenges and present tips to addressing challenges
5. Share DFO’s experience in implementing the TB Policies onIP and MP
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RPIC Regional Workshop 2011
What you will learn Today
Understand policy requirements and challenges
Understand the key elements needed to establish ainvestment planning process
Walk away with some tools and techniques to addresschallenges in your organization
Hear from DFO’s experience in implementing policies
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History and Experience
• Initial creation of the tools
• Test drive
• Pilot• DND, RCMP, CBSA, Environment Canada
• Implementation support• CFIA, DFO, INAC, PWGSC
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Policy Review
• Policy on Investment Planning• More than just a repalcement for Long Term Capital Plan• Assets and Acquired Services
• Policy on the Management of Projects• Organizational Project Management Capacity Assessment• Project Complexity and Risk Assessment• What is a Project?
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Project Complexityand RiskAssessment(s)
Assess project risk andtrigger action to mitigateor respond to risk
OrganizationalProjectManagementCapacityAssessment
Assess the department’sproject managementcapacity and makenecessary changes
Produces quantitative, comparableresults to: Identify organizational weaknesses/risk areas
with respect to project management
Measure changes in PM maturity and projectcomplexity
Avoid over- or under -investing inproject management maturity
Investment Plan
Implement / enhanceprocess for allocatingresources to investments,aligned to departmentalpriorities
Resource allocation based on priorities
Increased quality of information fordecision making
Increased quality of information aboutproject risk to inform decision
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RPIC Regional Workshop 2011
Policy Review: Policy on the Management of ProjectsThe OPMCA is an organization-
wide score, and the PCRA isscored on a per-project basis.
If the PCRA score is greaterthan the OPMCA Score :
•Department is required tosubmit a project brief
•Department is required tosubmit a TB Submission
•Regular monitoring by TBS andupdates to PCRA whenchanges occur
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A B
C
D
RPIC Regional Workshop 2011
Investment Planning: Performance-oriented culture
• Clarity within the organization of strategic outcomes, andthe activities and initiatives to achieve outcomes, as wellas employees’ role in achievement
• Excellence in program management – resources aremanaged in alignment with strategic outcomes, and workis carried out efficiently and effectively
• Regular measurement of results and use of results toguide improvement and learning
• A performance-oriented culture – achievement andresults are emphasized and institutionalized throughrewards and recognition practices, while balanced withemphasis on employee support and engagement
Characteristics ofa performance-oriented culture
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For further reading, refer to the Telfer School of Management and Interis Consulting paper titled “High PerformanceOrganizations in the Public Sector” available at http://www.optimumonline.ca/article.phtml?id=365
RPIC Regional Workshop 2011
Policy Overview: Benefits
• The Investment Planning approach brings• Improved accountability for management of the
investment planning process, and managementof investments in assets and acquired services
For Real Property Practitioners this meansworking with clients to plan real propertyprojects during the departmental planning cycle
• Greater flexibility to assess risk and complexityof investments and manage accordingly, ratherthan on the basis of dollar value
Real Property Project Managers will have theability to execute projects that are lower risk withless TB oversight
What are thebenefits to
Departments?Real PropertyPractitioners?
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RPIC Regional Workshop 2011
Lessons Learned
1. Be prepared – this initiative is a huge undertaking.However big you think it is, it is significantly bigger!
2. Clear definition of foundational terms are necessary,specifically definition of “Project” and “AcquiredService”.
3. Preparation of the Investment Plan is just the start ofthe journey. A lot of work follows to change the waydepartments allocate and reallocate resources. It isimportant for Real Property Practitioners tounderstand how planning is conducted and decisionsmade. Need to proactively understand client needs.
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Lessons Learned
4. Stakeholder Engagement - You must get seniormanagement sponsorship and support from the outset.These policies impact your whole organization. Buildawareness with a consistent message. Then communicate,communicate, communicate!
5. Actively manage the change in your organization6. In the self assessment process, be honest with yourselves
as you self-assess, and be honest with Treasury BoardSecretariat as you share those scores.
7. Engage TBS early and use your analyst as much as youcan – keeping them aware of your progress and using theirsupport throughout will smooth the final stages (rather thansurprises down the road).
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Lessons Learned: Define key terms for your organization
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Lesson Learned Tips
RPIC Regional Workshop 2011
Lessons Learned: Define key terms for your organization
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Lesson Learned Tips
Fisheries and Oceans CanadaTransitioning to Investment Planning
Real Property Institute of CanadaRegional Workshop
Vancouver BCJune 14, 2011
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Context - DFO
• From Coast to Coast to Coast• Average annual Budget of $1.7 B
– Annual Capital Budget of $328 M
• >10,500 yees (including CCG)• Asset base of ~ 25,000 assets
– Replacement cost of assets > $19B• Real Property
– Buildings, Breakwaters, Structures,• CCG
– Fleet of large and small vessels, helicopters, Moveable assets• Small Craft Harbours
– Fishing harbour sites - wharves, breakwaters, launching ramps, slipways,floating wharves, electrical systems,.
• IM/IT– Hardware, Software, Customized applications
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Investment Plan Elements
• Process is largely predicated on the department’spre-existing capital project process
• Introduces the concept of a risk based approach toplanning, not simply risk as measured in dollars
• Is an evolution and will continue to change andimprove
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Investment Plan Elements
• Investment Planning at DFO is comprised of thefollowing elements:– Framework– Cycle– Governance Structure– Project Gates– OPMCA– Internal Delegation of Authority
Investment Plan Framework/Cycle
StrategicContext GovernmentPriorities,Mandate,Vision,Core Values ,StrategicOutcomes,Environmental
Scan ProgramPlanning
RPP BusinessPlans
AnnualReferenceLevelUpdate (ARLU),MainEstimates, SupplementaryEstimates
Investment Requirements
InvestmentPriority ProjectRanking Framework
PeerReview Process
BudgetAllocation Decision
InvestmentProjects Projects
P e r f o r m a n c e M o n i t o r i n g
a n d R e p o r t i n g
Investment Planning
BudgetAllocation Decision NonProjects
Risk M
anagem
ent
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IP Governance Structure
• Decisionmakingbody • Mandate:recommendforapprovaltotheDeputyMinister,multiyearfinancialmanagementandresourceallocation
• Expectedoutcomes:financialresourcesareallocatedandmanagedwithpruden ce, probityandtransparencyintheachievementofdepartmentalprogramresults.
DMBFinance Committee (DMB ‐ Fin)
• Cre ated ‐ – Chairedby DGBudgeting,Planning&ResourceManagement . • Responsible forrecommendingthe portfolioof investments totheDM BFinance Committee,andissupportedbyCP&A
• Membership includes DGrepresentativesfromtheCOEsaswellascorporate services.
DG Investment Management Committee
• Responsibleforleadingandguidingth etransitionfromtheCapitalPlanning FrameworktotheInvestmentPlanningapproach.
• IPWGincludesrepresentativesfromallCOEs,MajorCrownProjects,Integrated TechnicalServices,Finance,CommunicationsandRiskManagement.
• Responsiblefor coordinatingthecontentforsubmissionintotheinvestmentplan.
Investment Planning
WorkingGroup (IPWG)
• COEs /FunctionalAreasparticipateintheactivitiesthatcomprisetheInvestment PlanningCycleinordertoinvestinandmaintain theirassetbase. • DGs areaccountableforeachCOE/SectorandRegion
Centresof Expertise(COEs)
• Toprovidestrategicadviceandaforumfordiscussionofinternalservicesandothermattersasdirecte dbytheDeputyMinistertosupportFisheriesandOceansCanada’s(DFO)StrategicOutcomes.
StrategicOutcomeCommittee
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Investment Plan Project Gates
Annex 222
AIP PPA EPA
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Organizational Project Management Capacity
• The DFO self-assessed OPMCA score was “3” orEvolutionary ;– the department has the capacity to successfully deliver projects
that achieve evolving strategic objectives and tends to haveintegrated multi-project planning and control
• Given DFO received approval of this class, it meansthat:– The organization has the capacity to successfully deliver
projects to achieve evolutionary strategic objectives– TBS would delegate authority to DFO for projects with an
assessed risk score of 3 or less– Number of TB Submissions should decrease
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Phased Implementation
• Key Tasks :– OPMCA– Document Investment Plan
• Context• Governance, Planning and Process• Investments
– Project identification and risk assessments– Delegation of Authority– Create DG level oversight committee– Key briefings to DM ADM– Treasury Board submission to TBS: IP and OPMCA
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Phased Implementation (cont’d)
Transitional Model(Mar’09 – Mar 31’10)
Define Investment Planningframework to position
investment planning withinbroader DFO planning context
Conduct OPMCA to determinecurrent DFO project
management capability
Full Implementation(Apr’11 – Mar ’12)
To refine Investment Planningprocess to ensure that it iscomprehensive and reflectsDFO priorities
Act
iviti
es
To adapt Capital Planninggovernance and processes tomeet requirements of TBInvestment Planning Policy
Adjust Capital Planninggovernance and processes toreflect investments (not just
capital) and acquired services
Common priority rankingprocess & criteria to reflect DFO
priorities
Full implementation of PCRAand project gating
Review governance to ensurerepresentation of all functionalareas that identify and manage
investments
Integration with DFO CorporateProcesses
(Apr’ 12 – Mar ’13)
Performance of investments ismonitored, measured and
reported
Investment and resourceallocation decisions are
informed by all relevant sourcesof information
Investment Planning isintegrated with other relevantDFO planning and reportingprocesses
Decision-making process toensure investment selectionreflects capacity to deliver
PCRA training and roll-out
Determine how to align /integrate the investment
planning with the businessplanning process
Decision on project managementframework for the department
Obj
ectiv
es
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Lessons Learned - Key issues
• Was DFO Adequately prepared to implement?
– Better positioned than most, as a result of the existing LTCPprocess.
– DFO was a “Wave II ” department.• Although DFO benefited from some of the lessons learned from
Wave I departments, TBS analysts were still on a learning curve andthe department had to self define many requirements.
– As time goes on the bar will be set higher and expectationsgrow
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Lessons Learned - Key issues
• What worked well with the transition process ?
– One accountable person leading both aspects – OPMCAand the IP
– Establishment of a knowledgeable Investment PlanningWorking Group (IPWG) with authority
– Establishment of Project Charter, Terms of reference
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Lessons Learned - Key issues
• What are some area of improvements for next wave ofclients of the transition process ?– A more senior level group who:
• Had increased authority,• Could dictate priorities
– A single objective, dedicated team working solely on theprojects, would’ve been preferred
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Lessons Learned - Key issues
• How did DFO identify investments/project inventory
– A robust LTCP process was already in place,• Communicated key differences between old and new processes to
the different stakeholders.
– All proposed and approved projects under the new policy(IP) had to have a Project Complexity and Risk Assessment(PCRA) performed. (Continued on next page)
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Lessons Learned - Key issues
• How did DFO identify investments/projectinventory (cont’d)
– The PCRA requirement• PCRAs have 64 questions• Volume >200 projects• New process required
– DFO created PCRA Guidebook
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Lessons Learned - Key issues
• How did DFO identify investments/project inventory(cont’d)
– Result of new policy/application of PCRA, allows TBministers and Deputy heads to understand which projectsare riskier than others
– Departments were clearly advised that TB ministers wouldfocus on :
• High risk projects• Those which had relatively higher profiles (i.e. Budget
announcements)• All IM/IT projects
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Lessons Learned - Key issues
• How did DFO identify investments/project inventory(cont’d) -• There were other challenges
• Acquired Services• Services obtained through formal arrangements which aid in
achieving specific outcomes• Does not include goods, assets, salaries, statutory expenditures
• Integrating Investment Planning and Business Planning:
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Lessons Learned - Key issues
• How did DFO handle Change Management for thecultural change req’d as a result of the policies– Put in place more of a transitional approach to IP with full
TBS support• Step I - amend existing process where deemed appropriate, identify
where the gaps are - create a plan to address them. Adapt to IP• Step II – improve efficiencies/integrate old with new process -• Step III – full integration
– To facilitate Change Management :• Weekly meetings with IPWG• Regular updates to senior officials• Every opportunity was seized to “spread the word”
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Lessons Learned - Key issues
• How did DFO manage the relationship withTBS as a result of the policies
– Recognized the size of the project– Continued monthly meetings– Fostered a closer relationship with Program Analyst– Resulted in a respectful trusting relationship
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Lessons Learned - Key issues
• Now that DFO has received approval of theInvestment Plan and delegation, some of the nextsteps are :– Promote scalable standardization of all IP aspects– Continue with integration of Investment Planning with
Business Planning– Examine the creation of a Project Management Office (PMO)– Continual improvement wherever they can be found– Update project ranking framework– Require targeted and effective monitoring– Promote transparency
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Lessons Learned - Overall
• Be prepared – this initiative is a huge undertaking.
• Clear definition of foundational terms are critical
• Preparation of the Investment Plan is just the start of thejourney.
• It is important for Real Property Practitioners to understandhow planning is conducted and decisions made
• Need to proactively understand client needs.
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Lessons Learned - Overall
• Stakeholder Engagement - You must get seniormanagement sponsorship and support from theoutset.
• Communicate, communicate, communicate!
• Actively manage the change in your organization
• Treat this like a project
• HAVE A PLAN
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Lessons Learned - Overall
• In the self assessment process (OPMCA), be honestwith yourselves as you self-assess, and be honestwith Treasury Board Secretariat as you share thosescores.
• Don’t bite off more than you can chew– Transitional approach is effective – not required to re-
invent everything
• Get the right level of delegation (OPMCA), not thehighest
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Lessons Learned - Overall
• Engage TBS early, and use your analyst as muchas you can– This is a TB submission– Keep TBS aware of your progress and challenges
• Get committed resources (financial and human)who’ll stay with it.– Members need to have this project high on their priority
list– Consider engaging experienced outside experts
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• Project Costing– Improve project cost estimates at all 3 gates
• Project Management Oversight– Standardized processes and templates– Co-ordinate OPMCA II for next TB submission on IP
• Project Summary Notes– Improve pre-expenditure initiation business case
document (at AIP)– Make/Buy/Lease Investment decisions
DFO Priorities since TB approval
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• Project Horizontality
• Project Ranking Framework
• Acquired Services– Improved quantification of Acquired Services
• Provide Updated Investment Plan 2011-12 to 2015-16 to TBS
• Improved project reporting/monitoring
DFO Priorities since TB approval
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Is It Worth It?
• Although lots of work, it will :– Improve;
• project management co-ordination• accountability• consistency across the department
– Increase transparency and project managementeffectiveness by improved monitoring and reporting
– Reduce TB submissions to allow better use ofresources
– Provide value for money for Canadians
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In Conclusion
• This is continually evolving process
• This is a paradigm shift for all stakeholders
• Ultimately it is a marathon not a sprint
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Thank You
• Thank You for your participation today
• For more information on the contents of thispresentation, please feel free to contact as follows:– Greg McIntyre 780-218-4926 [email protected]– Kevin Muldoon 613-993-3864 [email protected]
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Questions?
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Supporting Slides
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Phased Implementation
• Moving to the new policy on Investment Planning-Assets andAcquired Services required a TB submission.
• The submission requested :– Approval of the management principles, processes, and practices
reflected in the Department of Fisheries and Oceans Investment Plan;• Governance structure• Planned Investments , and
– Approval of the department’s IP Organizational Project ManagementCapacity Assessment (OPMCA)
• (Class 3 – “Evolutionary” was sought)
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Phased Implementation (cont’d)
• Implementation and Integration of IP
– Transitional Model: Phase I involved transitioning the organization froma Capital Planning framework to an Investment Planning framework
– Full Implementation: Phase II involves refining the investment planningprocesses to:
• Ensure that investments are comprehensive and reflect DFO priorities.• Full Implementation phase is targeted for fiscal year 2011-12.• Key element will be to begin integrating Investment Planning with the
Departmental business and operational planning– Integration with DFO Corporate Processes: Phase III is where full
integration occurs:• Involves integrating the investment planning processes with DFO’s corporate
planning and performance reporting processes.• Complete integration phase targeted for FY 2012-13
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Internal Delegation of Authority – Matrix -cont’d
Risk
4 TB TB Extreme
3Associate Deputy Minister /
Commissioner, CCGDeputy Minister High
$1 M to $5 M above $5M
2Assistant Deputy Minister /
Deputy Commissioner, CCG
Associate Deputy Minister /
Commissioner, CCGMedium
$1 M to $10 M above $10M
1Centre of Expertise
Director General
Assistant Deputy Minister /
Deputy Commissioner, CCGLow
$1 M to $10 M above $10M
Note : All Project Approval Documents and Project Complexity and Risk Assessments (PCRA) must be reviewed and approved by the
Chief Financial Officer
Total Estimated Cost (millions) - Excluding taxes
Internal Delegation of Authority Signing Matrix
Pro
jec
t C
om
ple
xiy
an
d R
isk
As
se
ss
me
nt
Ra
tin
g
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Investment Plan Framework
StrategicContext GovernmentPriorities,Mandate,Vision,Core Values,StrategicOutcomes,Environmental
Scan
ProgramPlanning RPP
BusinessPlans
AnnualReferenceLevelUpdate (ARLU),MainEstimates, SupplementaryEstimates
InvestmentPlanning
Projects P e r f o r m a n c e
M o n i t o r i n g a n d R e p o r t i n g
NonProjects Risk M
anagem
ent
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Typical Investment Plan Project Sequence of Events vs Authority to Spend
Gate 1 - Approval In Principle 2 - Preliminary Project Approval 3 - Effective Project Approval 4 - Execution
(AIP) (PPA) (EPA)
Authority to Spend as a % of
Project Total Estimated Cost
(TEC) is graduated.
0% ~10 - 15% ~85 - 90% 100%
Gate Characteristics
Functionnaly approved Capital
Planning Summary Note (CPSN)/
Integrated Summary Note (ISN) is
submitted to CFO. Risk
assessment is included
Functionnaly approved Project Approval
Document (PAD) and a Project
Complexity and Risk Assessment (PCRA)
are submitted to CFO
Project Approval Document (PAD) and a
Project Complexity and Risk
Assessment (PCRA) are updated and
submitted to CFO
Project Complexity and Risk
Assessments are to be kept current
while project is being executed
Authority to spend No authority to incur expendituresGrants authority to incur expenditures is
capped at 10 - 15%
Grants authority to incur expenditures up
to the specified TEC
Grants authority to incur expenditures
up to the specified TEC
Gate Purpose
Project initiation dependant upon
availablity of funds and engineering
studies
Purpose of PPA stage is to develop a
more accurate cost estimate and to
ensure adequate project planning to
minimize risk
Project plans are mature enough so as
to excecute project with confidence of
being on time on scope and on budget
Approvals
COE portfolio of projects are
approved via annual special
meeting on IP at DMB-FIN
Project is approved individually Project is approved individually
Total Estimated Cost (TEC) TEC is an estimate
TEC is a refined cost estimate from AIP
gate. Once PPA, COE has confirmed the
TEC is an indicative estimate.
Once EPA is received COE has
confirmed the TEC is a substantive cost
estimate
IP Project Gates
IP Internal Delegation of Authority – cont’d
• The Department can execute on its own all projects with aPCRA of 3, or less
• DFO’s delegation of authority matrix ensures approvals arecommensurate with the level of project risk
• This delegation of authority is more flexible than the currentdelegation and grants COEs additional authority at a lowerlevel.
• The approval process is dependent on the PCRA score aswell as the total estimated cost (TEC) of the project, asopposed to the prior Capital Planning process, where the TECwas the sole measure of a project’s risk.
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RPIC Regional Workshop 2011
Copyright Interis Consulting Inc. 2010
Policy Overview: Policy on Investment Planning
• What is the Policy on Investment Planning?• Treasury Board Secretariat introduced the Policy in June 2007
• Replaces the Policy on Long-term Capital Plans (LTCP)• Scope is wider than the Policy on LTCP and includes assets and
acquired services• The Policy on Investment Planning is intended to:
• Align with outcomes as set out in Departments MRRS• Support departmental, portfolio, horizontal and government-wide
priorities• Consider departmental and project-related risks• Support sustainable development and broader social and
economic objectives• The Investment Plan document presents a department /
agency’s governance, investment planning cycle andframework, and planned investments for a five year horizon
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RPIC Regional Workshop 2011
Policy Overview: Policy on the Management of Projects
• The Policy on the Management of Projects replaces:• Project Management Policy• Policy on the Management of Major Crown Projects• Project Approval Policy
• The new policy is intended to:• Redefine how TBS identifies projects requiring their attention
and oversight• Establish delegation levels for the management of projects
within departments• Requires the completion of an Organizational Project
Management Capacity Assessment and a ProjectComplexity and Risk Assessment
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RPIC Regional Workshop 2011
II. Policy Overview: Phased Implementation
New Policies Effectivewith TB approval
Former PoliciesRescinded April 1, 2012*
* Subject to TB approval
Phase 2Departments
Phase 3Departments
Phase 4Departments
TB
REVIEW
Phase 1 Departments
(PILOT)
June 2007 March 2009 April 2009 toMarch 2010
April 2010 toMarch 2011
April 2011 toMarch 2012
April 2012
New policesimplemented;old policiesrescinded
TB
REVIEW
• CBSA
• DND
• Environment Canada
• RCMP
• On-line AssessmentTools
• Training
• Guidance Materials
• Lessons Learned
55Source: TB Policy Presentation to Phase 2 Departments, March 2009
To date, seven departments have receivedTB approval
RPIC Regional Workshop 2011
Investment Planning: Process
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Investment Planning: Process
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InvestmentGovernance
•Provides direction to the portfolio at the strategic / tactical and operational levels•Defines roles, responsibilities and accountabilities•Establishes reporting and control mechanisms•Resolves obstacles to the success of the portfolio
Sample Governance
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III. Investment Planning: Key Elements
Portfolio /InvestmentExcellence
ProjectExcellence
InvestmentDecision
ExecutiveDecisions
OrganizationalStrategic Goals
Project B Project C
Project A Project D
Investment GovernanceInvestment
PlanningS
trategicD
irection
Results
Results
TacticalD
irectionInvestmentOversightD
O T
HE
RIG
HT
DO
TH
E R
IGH
TPR
OJE
CTS
PRO
JEC
TSD
O T
HE
PRO
JEC
TSD
O T
HE
PRO
JEC
TSR
IGH
TR
IGH
T
ProjectManagement
Practices
Real Property Practitionersshould understand theorganization’s strategic contextand planning cycle
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RPIC Regional Workshop 2011
Copyright Interis Consulting Inc. 2010
Summary
1. Treasury Board Policies on Investment Planning and theManagement of Projects objectives
• Target Compliance March 2012• Supports departmental, portfolio, horizontal and government-wide priorities• Promotes clearer accountability for managing projects• Emphasizes department-wide management
2. Key Elements of Investment Planning• Investment Planning• Investment Decision• Investment Oversight• Investment Governance
3. Lessons Learned• Define terms so they reflect your organization• Identify a senior level champion• Communicate, communicate, communicate• Be realistic; organizational changes take years to implement
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