The StatRes project - more performance transparency in the public sector Morten Strømgren Workshop...

The StatRes project - more performance transparency in the public sector

Morten Strømgren

Workshop on Measurement of non-market output in education and health

October 3, 2006

Situation: Significant performance gaps in Norway

• Need to improve public-sector performance in Norway… - performance transparency is important "driver"

EXAMPLE EDUCATION

• In school (grade 8-10), spending per pupil is 40 % above OECD average

• International comparisons show that skills are only average

EXAMPLE HEALTH (1)

• No. 2 in OECD in health expenditure per inhabitant

• Life expectancy is lower in Norway than in countries spending much less - such as France, Italy and Sweden

EXAMPLE HEALTH (2)

• Along with increased spending in our hospitals, cost efficiency is reduced

• The effect is even stronger if the spending increase is high

• On average, for each 1 % extra spending, production increases only 0,3 %

Challenge: Many information systems, low availability

• Limited access to data

• Presented in many ways

• Lack of comparability

• Low impact on performance

"Bottom-up" - Detailed systems,

input focus

"Top-down" - Basic info. web sites,

activity focus

Impact

Publicity

• Different information systems covering government activities

National accountsNational accounts

Sector-wise web sites

Sector-wise web sites

National statisticsNational statistics

Examples:

Example (1): The KOSTRA system for municipalities

Municipality: A B C D E F G H I J K L M N O AVERAGE

Example: Cost

benchmarking

• Performance indicators and measures for spending, activities, output, outcome

• Covers all 431 municipalities

• Updated annually in March, plus one revision

Cost per home-help receiver in Oslo townships (NOK, 2005)

Example (2): Performance of hospitals in SAMDATA

• Performance indicators for health enterprises

• Spending, through-put, availability and efficiency

• Benchmarking among health enterprises and hospitals

Example: Operating costs per

stay and per day

Health enterprise (hospital)

Sykehuset Østfold

Sykehuset Asker og Bærum

Akershus universitetssykehus

Aker universitetssykehus

Ullevål universitetssykehus

Operating costs per stay, adjustedLevel2004

Change 2003-04

Relative cost level

Operating costs per dayLevel2004

Change 2003-04

Relative cost level

Example (3): Results from schools in Skoleporten

• Performance measures for higher and lower secondary schools

• Levels: School, municipality, region, national

• Actively used by schools in efforts to improve

Share of applicants for higher secondary school admitted by their first choice among the schools

STATISTICS

Share of pupils completed higher secondary school on schedule

Share of pupils completed h. sec. school on "overtime"

Share of pupils dropped out of higher sec. school

Through-putSchool facts Resources Learning envir. Learning results

Example: Through-put measures

Analysis: Fragmented information, need for easier access

OutcomeInput Activity Output

Low access (internal data)

High access (Internet, easy)

Medium access (Internet, hard)

Internal data in sector/agency

National accounts

Various research projects

National budget

Office for national statistics

Agencies' and sectors' information portals

StatRes

• Mapping of some important sources of data:

StatRes: Web site showing performance indicators

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• S t a t s r e g n s k a p e t f o r 2 0 0 4 v i s e r a t s t a t e n h a d d e 6 2 2 m i l l i a r d e r k r o n e r i t o t a l e u t g i f t e r . D e t t i l s v a r e r 3 6 , 9 p r o s e n t a v B N P• S t a t e n h a d d e i 2 0 0 4 s n a u t 3 2 5 0 0 0 a n s a t t e

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O v e r s k u d d : 1 6 , 2- i p r o s e n t a v B N P

- B r u t t o g j e l d : 4 6 , 4- i p r o s e n t a v B N P

N ø k k e l t a l l f o r 2 0 0 5- m i l l i a r d e r k r o n e r







O m S t a t R e sS t a t R e s v i s e r s t a t i s t i k k o g i n d i k a t o r e r o m r e s s u r s -b r u k , a k t i v i t e t , p r o d u k s j o n , k v a l i t e t o g r e s u l t a t e r f o r s t a t e n s v i r k s o m h e t .

L e s m e r


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First preliminary draft

StatRes: Features… what's special?

1. Operated by Statistics Norway, ensuring independence

2. Indicators are defined in co-operation with sector specialists

3. Common framework for central government, linking 'input' with 'output' and 'outcome'

4. Accessible for everybody, not only experts

5. Allowing for comparisons, also internationally

InputInput ActivityActivity OutputOutput OutcomeOutcome

h t t p : / / w w w . s s b . n o / s t a t r e s / i n d i k a t o r e r

R e s s u r s i n n s a t s



R e s s u r s i n n s a t sR e s s u r s i n n s a t s



S t a t s f o r v a l t n i n g e n



S t a t s f o r v a l t n i n g e nS t a t s f o r v a l t n i n g e n



A l l e



A l l eA l l e




0

1 0 0 0 0 0

2 0 0 0 0 0

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0

1 0 0 0 0 0

2 0 0 0 0 0

3 0 0 0 0 0

4 0 0 0 0 0

5 0 0 0 0 0

6 0 0 0 0 0

7 0 0 0 0 0

1 9 9 9 2 0 0 0 2 0 0 1 2 0 0 2 2 0 0 3 * 2 0 0 4 *0

1 0 0 0 0 0

2 0 0 0 0 0

3 0 0 0 0 0

4 0 0 0 0 0

5 0 0 0 0 0

6 0 0 0 0 0

7 0 0 0 0 0

1 9 9 9 2 0 0 0 2 0 0 1 2 0 0 2 2 0 0 3 * 2 0 0 4 *





F o r s v a r4 %


2 %


8 %



H e l s e1 7 %


1 4 %





F o r s v a r4 %


2 %


8 %



H e l s e1 7 %


1 4 %



S t a t e n s v i r k s o m h e tS t a t e n s v i r k s o m h e t h a r e n v i k t i g r o l l e i e t l a n d s ø k o n o m i , o g g j e n n o m a k t i v i t e t e r i s t a t l i g r e g i p å v i r k e r m y n d i g h e t e n e s a m f u n n e tp å m a n g e m å t e r . O f f e n t l i g f o r v a l t n i n g b e s t å r a v v i r k s o m h e t e r s o m u t f ø r e r o g i v a r e t a r f o r v a l t n i n g s m e s s i g e o p p g a v e r . O f f e n t l i g f o r v a l t n i n g h a r l o v g i v e n d e , r e t t s l i g o g u t ø v e n d e m y n d i g h e t o v e r a n d r e p å g i t t e o m r å d e r . V i d e r e h a r o f f e n t l i g f o r v a l t n i n g a n s v a r f o r å s ø r g e f o r t i l g a n g p å v i s s e v a r e r o g t j e n e s t e r t i l b e f o l k n i n g e n , o f t e g r a t i s e l l e r t i l s v æ r t l a v e p r i s e r . O f f e n t l i g f o r v a l t n i n g h a r o g s å r e t t t i l å p å l e g g e p e r s o n e r o g b e d r i f t e r å b e t a l e s k a t t . L e s m e r

• S t a t s r e g n s k a p e t f o r 2 0 0 4 v i s e r a t s t a t e n h a d d e 6 2 2 m i l l i a r d e r k r o n e r i t o t a l e u t g i f t e r . D e t t i l s v a r e r 3 6 , 9 p r o s e n t a v B N P• S t a t e n h a d d e i 2 0 0 4 s n a u t 3 2 5 0 0 0 a n s a t t e

4 m i l l i a r d e r m e r i o f f e n t l i g e i n n t e k t e rS t a t i s t i s k s e n t r a l b y r å p u b l i s e r e r n å o p p d a t e r t e t a l l f o r o f f e n t l i g f o r v a l t n i n g s i n n t e k t e r o g u t g i f t e r f o r 2 0 0 5 . T o t a l e i n n t e k t e r e r o p p j u s t e r t m e d 4 , 1 m i l l i a r d e r k r o n e r i f o r h o l d t i l t i d l i g e r e b e r e g n e t . L e s m e r

Statskassenmedregnet

folke-trygden

Andrestats- ogtrygde-

regnskap

Statsforvaltningen

Primærkommuner Fylkes-kommuner

Kommuneforvaltningen

Offentlig forvaltning

Ikke-finansielleforetak

NorgesBank

Statligelåne-

institusjoner

Finansielleforetak

Offentlige foretak

Offentlig sektor

H ø y t s k a t t e n i v å i N o r d e nF o r e l ø p i g e t a l l f r a O E C D v i s e r a t S v e r i g e , D a n m a r k o g F i n l a n d h a r d e t h ø y e s t e s k a t t e n i v å e t m å l t s o m t o t a l e s k a t t e i n n t e k t e r i p r o s e n t a v b r u t t o n a s j o n a l p r o d u k t ( B N P ) . S v e r i g e t o p p e r s t a t i s t i k k e n m e d e n a n d e l p å 5 2 , 1 p r o s e n t L e s m e r














L e s m e r


L e s m e r



K o m m e n d e S t a t R e s - i n d i k a t o r e rO v e r f ø r i n g e r t i l p r i v a t e - 2 9 . 1 0 . 2 0 0 6S y s s e l s a t t e i e l d r e o m s o r g e n - 1 5 . 1 1 . 2 0 0 6S t u d i e p o e n g p e r s t u d e n t – 2 0 . 1 1 . 2 0 0 6U t g i f t e r p e r b a r n i b a r n e v e r n s i n s t i t u s j o n –1 1 . 1 2 . 2 0 0 6

ABC

Example: Possible indicators, pilot "higher education"

InputInput Activity/unitActivity/unit OutputOutput OutcomeOutcome

• Costs

• Employees

• Man-years

• Students

• Average annual student progress

• PhDs in progress

• Degrees

• PhDs completed

• Papers (rated)

• Grades?

• Ranking

• Alumni employment

• Average grades of applicants from higher sec. school

• Alumni salary compared to total cost of degree

• Quality ranking over spending ranking (e.g. share of GDP)

KEY FIGURES

KEY RATIOS

• Cost per student per year

• Students per academic man-year

• Share of exchange students

• Share academic man-years

• Cost per academic man-year

• Share of non-govt. financing

• Cost per degree

• Share graduated on time

• Papers per academic staff

Final remarks: Effects, assumptions

• More attention to public spending and results (output, outcome)

• Speed up the use of performance indicators in public sector

• Improve desicions, resource allocation, motivation -► better performance

Anticipated effectsAnticipated effects

Assumption: strong efforts neededAssumption: strong efforts needed

• Most countries in the same situation: much relevant data, low accessiblity

• Strong efforts needed to make performance indicators and data available to a larger “audience” -► increase use and impact

Thank you

Back-up slides

Will not be used, unless detailed questions

Outline: Performance, transparency, the StatRes project

1. Performance gaps, examples

2. Need more transparency, examples

3. One approach: The StatRes project

4. Some challenges and our response

Public-sector performance

Possible approach: Efforts along two dimensions

Performance transparency Performance transparency

• Measure performance

• Display results

• Comparability

• Incentives and follow-up

• Build right competence

• Structures, technology etc.

Support to agencies in performance improvement

Support to agencies in performance improvement

Now establishing new system 'StatRes' for central government

• Ministry of Government Administration and Reform (idea, financing)

• Statistics Norway (system development)

What?What?

Why?Why?

Who?Who?

• Need easily available fact base to evaluate effects of public spending, on various levels

• Internet publishing of statistics and indicators for central government sectors - based on existing data, not new reporting

• Developing framework, recruiting pilot areas, planning implementation

• Pilot areas and system design starting next month

When?When? • Planned lauch in 2007, thereafter include more sectors continuously

How?How?

• Developed from 1995 and onwards

• Covering all 434 municipalities

• Annual publication on 4 levels- Counties- Municipalities- Townships (Oslo)- Institutions (secondary el. schools)

• Covers inputs, activities, outputs, some outcomes

• Challenges: - Counts expenditures, not costs- Not very user friendly- No direct link inputs - outputs

(2) Share of elderly at nursing homes that have single rooms

(1) Unit costs (index) - municipal services

KOSTRA system for municipalities on activities and output

Brief facts - KOSTRA

110,3

100,6

111,8

111,5

100

102

104

106

108

110

112

2000 2001 2002* 2003*

Kinder-garden

TotalElderly carePrimary school

MunicipalityB C D

Examples of applications

EA

Effects of StatRes, some questions

• We believe StatRes will…

- attract more attention to the use of public funds, and the results (output, outcome)

- speed up the use of performance indicators in public sector

- provide a common framework for assessing the results of public spending

- be a tool used by both politicians, managers, employees and citizens

- help improve desicions, resource allocation and performance in public sector

Anticipated effectsAnticipated effects

Questions we have asked ourselvesQuestions we have asked ourselves

• Wait for better measures (costs, indicators, etc.) before displaying results on web?

• How to select relevant performance indicators, avoiding unintended behavior?

• Much overlap with existing sector systems for displaying performance?

• How to ensure a sustainable system somehow beyond political control?

• Who will be the users of StatRes - politicians, managers, employees, citizens…?

• Are parts of the public sector not suited for the input-output-outcome logic?

• Should StatRes include all public spending, also transfer payments to private sector?

Final remarks: Key questions, assumptions

How to ensure a sustainable, consistent, credible and relevant system?

How to avoid a sense of competition from existing performance-information systems?

Which government expenditures should be included?

Key questionsKey questions

• Statistics Norway develops and operates the system

• Close co-operation with sectors in defining indicators

• Loyalty to a fixed framework, trying to link spending and results (transformation model, COFOG)

• Stressing that StatRes will show the totality for central government, a supplement to local systems

• Only showing data that exist already, but in a structured way

• Including only central-government spending

• Not including general transfers (pensions etc)

• Mainly expenditure, not cost

AssumptionAssumption• Most countries in the same situation:

- large amounts of relevant public-sector performance data not easily available to the public

• Strong efforts needed to make such data available to a larger “audience” – increasing the use and the impact of the data

Central government sectors and units

Central government sectors and units

StatRes

Citizens, voters

Politicians

Public sector employees

Scientists, students

Media, organisations

USERS

STATISTICS AND INDICATORS

Display meaningful information about input, output, outcome

Main challenge: Select indicators and secure data quality

Current scope: for discussion

• StatRes has initial focus on uncomplicated sectors, for showroom effect

• At an early stage show avaliable results and facts, rather than wait for a "perfect" system

• StatRes will display results "as is" to trigger - new sectors - new indicators - better quality - quest for relations (between inputs and results)

• Many useful indicators are not dependent on national accounts

National accounts development in Norway vs. StatRes• BACK-UP

Some observations

• Relatively high quality in national accounts

• COFOG adapted in national accounts

• Strong regulations resulting from cooperation/agreement with EU

Some challenges

• Outsourcing makes it hard to determine input (resource) mix

• Partial public financing og certain services difficult to treat

• How to measure real costs, and not only expenditure - include depreciation etc.

• Eliminating correctly for transactions within public sector (tracing)

• Considering creation of satellite accounts for StatRes use

System framework: Making all of central government displaying results according to a common framework

InputInput Activity / unitActivity / unit OutputOutput OutcomeOutcome Other determinants

Other determinants

EfficiencyEfficiency

EffectivenessEffectiveness

Other measures: - Prioritisation,

coverage, quality1)

Other measures: - Prioritisation,

coverage, quality1)

• Displaying data for all agencies according to this framework will be a major step towards public-sector transparency

• No ambition to estimate economic value of the outputs2)

ObjectivesObjectives

1) Many indicators may fall into several possible groups/classifications2) Unlike the national accounts, wich estimates prices for outputs

Introducing performance based financing in the health sector

Cost efficiency2)

Technical efficiency1)

1) Per manyear2) Per NOK

1998 1999 20012000 2002 2003 2004 2005

Average number of days on waiting list

Number of days on wating list reduced…

…however no signs of increased cost efficiency

Source: Norsk Pasientregister

• BACK-UP

COFOG

01 - General public services

• 01.1 - Executive and legislative organs, financial and fiscal affairs, external affairs

• 01.2 - Foreign economic aid

• 01.3 - General services

• 01.4 - Basic research

• 01.5 - R&D General public services

• 01.6 - General public services n.e.c.

• 01.7 - Public debt transactions

• 01.8 - General transfers within government

02 - Defence

• 02.1 - Military defence

• 02.2 - Civil defence

• 02.3 - Foreign military aid

• 02.4 - R&D Defence

• 02.5 - Defence n.e.c.

03 - Public order and safety

• 03.1 - Police services

• 03.2 - Fire-protection services

• 03.3 - Law courts

• 03.4 - Prisons

• 03.5 - R&D Public order and safety

• 03.6 - Public order and safety n.e.c.

04 - Economic affairs

• 04.1 - General econ., comm. & labour affairs

• 04.2 - Agriculture, forestry, fishing, hunting

• 04.3 - Fuel and energy

• 04.4 - Mining, manufacturing and construction

• 04.5 - Transport

• 04.6 - Communication

• 04.7 - Other industries

• 04.8 - R&D Economic affairs

• 04.9 - Economic affairs n.e.c.

05 - Environmental protection

• 05.1 - Waste management

• 05.2 - Waste water management

• 05.3 - Pollution abatement

• 05.4 - Protection of biodiversity and landscape

• 05.5 - R&D Environmental protection

• 05.6 - Environmental protection n.e.c.

06 - Housing and community amenities

• 06.1 - Housing development

• 06.2 - Community development

• 06.3 - Water supply

• 06.4 - Street lighting

• 06.5 - R&D Housing and community amenities

• 06.6 - Housing and community amenities n.e.c.

07 - Health

• 07.1 - Medical products, appliances & equipm.

• 07.2 - Outpatient services

• 07.3 - Hospital services

• 07.4 - Public health services

• 07.5 - R&D Health

• 07.6 - Health n.e.c.

08 - Recreation, culture and religion

• 08.1 - Recreational and sporting services

• 08.2 - Cultural services

• 08.3 - Broadcasting and publishing services

• 08.4 - Religious & other community services

• 08.5 - R&D Recreation, culture and religion

• 08.6 - Recreation, culture and religion n.e.c.

09 - Education

• 09.1 - Pre-primary and primary education

• 09.2 - Secondary education

• 09.3 - Post-secondary non-tertiary education

• 09.4 - Tertiary education

• 09.5 - Education not definable by level

• 09.6 - Subsidiary services to education

• 09.7 - R&D Education

• 09.8 - Education n.e.c.

10 - Social protection

• 10.1 - Sickness and disability

• 10.2 - Old age

• 10.3 - Survivors

• 10.4 - Family and children

• 10.5 - Unemployment

• 10.6 - Housing

• 10.7 - Social exclusion n.e.c.

• 10.8 - R&D Social protection

• 10.9 - Social protection n.e.c.

• BACK-UP

Norway has three administrative levels, relatively decentralised

• Limited outsourcing; most tasks performed by public sector- E.g. few independent schools

• Ongoing redesign of regional level (counties)

• Decentral desicions and responsibilities (municipalities)

• Limited outsourcing; most tasks performed by public sector- E.g. few independent schools

• Ongoing redesign of regional level (counties)

• Decentral desicions and responsibilities (municipalities)

0

5

10

15

20

25

30

35

40

45

Public sector consumption, 22% of GDP

Municipalities: 40%

Counties: 7%

Central govt.: 53%

• Defence• Public order and safety• Economic affairs• Health• Recreation, culture, religion• Education (higher)

• Environmental protection• Education (sec. elementary)

• General public services• Housing and community

amenities• Education (primary school)• Social protection• Recreation, culture, religion

EUR billion Main tasks

Key features

Source: Statistics Norway

Date post:	27-Mar-2015
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