4 A coherent plan for Civil Service
change?
51. Given the scale and nature of the changes
to the Civil Service required we looked for evidence of a coherent
change programme for reform, or evidence of coherence between
individual and separate departmental change programmes and cross-Whitehall
central reform initiatives (such as the Efficiency and Reform
Group). At the heart of our Inquiry was the question of whether
the Government have fully set out a coherent plan for reform.
52. Following the General Election in May 2010,
the Programme for Government promised to "improve the
Civil Service, and make it easier to reward the best civil servants
and remove the least effective."[86]
The main focus of the Government's approach so far has been to
increase efficiency, most notably through the establishment of
the Efficiency and Reform Group which is tasked with helping departments
to make the efficiency savings set out in this Government's first
Budget and the commitments in the 2010 Spending Review. This approach
has been characterised by the Minister as the "loose-tight
balance" where policy is being devolved to the local front
line but where some of the corporate aspects of government, on
property, procurement, IT are subject to a more centralised approach
in order to achieve efficiency savings.[87]
53. Beyond increasing efficiency in the Civil
Service, early in the life of the new administration both the
Prime Minister and the Minister for the Cabinet Office set out
the need for "a new chapter of reform" to create
a Civil Service in 2020 that would be:
Smaller and more strategic, focusing on the core
activities the Service needs to perform in order to deliver quality
and value for money public services
Modern and flexible
High performing, with the professional skills to
drive efficiency and performance
Flatter, less hierarchical, and more encouraging
of innovation
Able to deliver efficiently and effectively itself
and through others.[88]
54. To achieve this outcome, reform would focus
on four specific areas:
An open and well managed Service, driving performance
and value for money
A Service with a modern employee offer
A skilled and capable Service
A streamlined Service. [89]
The need for a clear change programme
55. The plan for the 2020 Civil Service necessitates
reform in Whitehall. What the Government has not done is to explain
how this change will be brought about or how it has tasked the
Civil Service with turning these objectives into reality. As Martin
Stanley pointed out:
... neither the Prime Minister nor Mr Maude promised
fundamental Civil Service reform, nor does the Government appear
to have considered the need for such reform.[90]
Andrew Haldenby of Reform concurred:
... the Government have got a problem. They want
to achieve the radical decentralisation of power that we are talking
about. The last Government came to the conclusion that you have
to reform Whitehall to do that, and this Government are not going
to take that step. That is the problem.[91]
56. As Julian McCrae told us, this leaves the
Government without a strategy:
The big question at the moment, the bit that's missing
from this puzzle, is what does the Civil Service look like in
three or four years' time, which is the length of time that this
will take? What's the blueprint that people can aim for, so they
know whether they are on the right course?[92]
57. Yet there is antipathy in Government to the
idea of such a plan. Francis Maude rejected the idea of a central
plan to reform the Civil Service. The Minister stated:
I think the point has been made that there has been
a series of plans and blueprints and reports and White Papers
over the years, but actually not all that much changes dramatically.
The rhetoric has often outstripped the delivery. I am more interested
in us doing stuff.[93]
58. In his evidence to us Ian Watmore promised
that:
... there is a White Paper coming out in the nearish
future—I do not know the exact date—on public service
reform, within which there will be aspects of Civil Service reform
...[94]
The Open Public Services White Paper was eventually
published on 11 July 2011. The only explicit reference we can
find to Civil Service reform is at page 51 where, after listing
the key roles which central government will focus on, it states
that opening up public services and wider decentralisation of
power "has profound implications for the role of Whitehall
in the future".[95]
It goes on to say that the Government will consult on these core
government roles particularly on the future shape of the policy,
funding and regulatory functions in Whitehall and beyond.[96]
59. We asked Mr Watmore whether this was the
extent of commentary on civil service reform he envisaged would
be in the White Paper in his response to us, and when the Government
planned to consult about these core government roles.[97]
60. The response was limited in detail. Mr Watmore
said:
The White Paper recognised that the programme set
out in the White Paper implied significant change for the future
role of Whitehall and committed to a future consultation on core
Government roles in future ...
Additionally we are considering as part of the Open
Public Services listening exercise precisely how best to lead
the subsequent implementation effort. When that is determined
and agreed with Ministers we will let the Committee know of the
details.[98]
61. The Open Public Services
White Paper offers only the most minimal recognition that the
decentralisation agenda inevitably has a consequential and fundamental
impact on the Civil Service. It does not contain detail on the
"aspects of Civil Service reform" promised by
Ian Watmore in his evidence to us in March 2011.[99]
Moreover, its commitment to consult on the future shape of the
policy, funding and regulatory functions in Whitehall suggests
a lack of urgency in Government which is without a coherent change
agenda or set of steps that would constitute a comprehensive plan.
In short, the Government has not got a change programme: Ministers
just want change to happen: but without a plan, change will be
defeated by inertia.
Key elements of a reform plan
62. The Civil Service reforms required should
be understood in their totality even if the individual elements
are not implemented as a single, major change programme. Other
major reforms by successive governments that attempted to alter
the role and structure of the Civil Service included both single
wholesale reform projects and the process of continual improvement
and targeted efforts to change specific areas. We consider that
a number of key factors for success specifically relevant to large-scale
Civil Service reform are vital to the success of change programmes
in Whitehall:
a) Clear objectives:
there must be a clear understanding of both what the Civil Service
is being transformed from and to, as well as the nature of the
change process itself. This requires both a coherent idea of the
ultimate outcome, but also how clarity on how to ensure coordination
of the reform programme and how to communicate that throughout
the process.
b) Scope: The appropriate
scope for the reforms must be established at the outset; with
focused terms of reference, but also wide enough to be able to
explore all necessary issues.
c) Senior buy-in:
A political belief that reform is needed must be matched by the
same belief within the Civil Service and ministers, and both should
be clear on their roles in delivering it. Sustained political
support and engagement from all ministers is crucial.
d) Central coordination: Either
the Cabinet Office or reform units such as the Efficiency and
Reform Group must drive the change programme. This requires good
quality leadership of such units and a method of working which
ensures collaboration with departments, and Prime Ministerial
commitment.
e) Timescales: There
must be a clear timetable with clear milestones to achieve
optimal impact and to ensure political support is sustained. The
lifespan of the change programme should include the time taken
for reforms to become embedded. Two to three years is likely to
be the most effective; beyond this period reform bodies may experience
mission creep. [100]
63. Measured against the factors for a successful
change programme, the Government's approach to Civil Service reform
currently falls short. There is no clear or coherent set of objectives,
nor have Ministers shown a commitment to a dynamic strategic problem
solving approach to change. The Cabinet Office have signalled
their commitment to change the culture of Whitehall, but we have
not yet found sufficient evidence to imply a coherent change programme.
In the absence of leadership from the Cabinet Office, departments
are carrying out their individual programmes with limited coordination
and mixed levels of success. Without clear leadership or coordination
from the centre, setting out, in practical terms, how the reform
objectives are to be achieved, the Government's reforms will fail.
64. The Government has embarked
on a course of reform which has fundamental implications for the
future of the Civil Service, but the Government's approach lacks
leadership. The Minister rejected the need for a central reform
plan, preferring "doing stuff" instead.[101]
We have no faith in such an approach. All the evidence makes clear
that a coordinated change programme, including what a clear set
of objectives will look like, is necessary to achieve the Government's
objectives for the Civil Service. The Government's change agenda
will fail without such a plan. We recommend that, as part of the
consultation exercise it has promised about the future role of
Whitehall, the Government should produce a comprehensive change
programme articulating clearly what it believes the Civil Service
is for, how it must change and with a timetable of clear milestones.
65. Successful reforms have
key factors in common. We recommend that the Government should
set out how it is sharing good practice from previous transformation
programmes, in Whitehall and beyond, and ensuring that such lessons
are applied.
86 HM Government, The Coalition: Our Programme for
Government, May 2010, p 27 Back
87
Q 159, 210 Back
88
"Francis Maude's speech to the Civil Service", Cabinet
Office website, 8th July 2010, cabinetoffice.gov.uk Back
89
Ibid. Back
90
Ev w9 Back
91
Q 49 Back
92
Q 39 Back
93
Q 209 Back
94
Q 205 [Ian Watmore] Back
95
HM Government, Open Public Services White Paper, Cm 8145,
July 2011, p 51 Back
96
Ibid. Back
97
Ev 71 Back
98
Ev 71 Back
99
Q 205 [Ian Watmore] Back
100
Ev 72 Back
101
Q 209 (Francis Maude). Back
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