White Paper "REDEVELOPING DENVER"

8/10/2019 White Paper "REDEVELOPING DENVER"

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2|2010,reVisionInc.

RedevelopingDenversDevelopmentServicesFunctionwith

PurposeandValue AnApplicationoftheTripleBottomLineBalanced

Scorecard

Scott D. Johnson, PH.D

Executive Vice President, reVision, Inc.

When you l ook a ta c i t y , i t s l i k e r ead ing the hopes , asp i ra t i on s , andp r i d e o f

eve ryone who bu i l t i t .

Hugh Newe l l J a cobsen

Introduction

Twoobjectivesincreasinglydriveimprovementinitiativeswithingovernmentorganizations,particularlycities.One

isthequestforsustainability,whichseemstoincreaseinimportancedaily.Atthesametime,theseorganizations

areoftenbeingforcedtoreducecostsandexpenditures,andmustfindwaystodomorewithlessmoney.Onthe

surface,thesetwoobjectivesmightseematodds.Itispossible,however,fororganizationstoachieveboth

objectivesconcurrently.

Sustainabilityisnotanewconcept,especiallyforgovernmentorganizationslikecities.Theprovisionofagood,

sustainablelifestylesafe,secureneighborhoods,cleanairandwater,affordablehousingandfood,effective

transportation,etc.isatthecoreofanycitysmissionandstrategy.Unfortunately,manymunicipalitiesdont

takeasystemsbasedviewofthewhole.Instead,theyfocustheirenergyandeffortonindividualshortcomingsof

anunsustainablesystem.Symptomssuchassprawl,spiralinghouseprices,poorwaterqualityandquantity,poor

airquality,crime,andotherstressesroutinelycapturetheattentionofcitycouncils,employees,andthepublic.

Missing,however,isanoverarchingframeworktoguidetheorganizationsplanninganddecisionmakinga

strategiclensthroughwhicheconomic,social,andenvironmentalchallengesareviewedasinterdependentparts

ofthesamesystem.

Pressuretoreducecostscanresultinindiscriminantcutsinserviceandstaff(ashappensmostoften)oritcandrive

motivatedorganizationstoseekthoughtfulimprovementsinefficiencyandeffectiveness.Buthowiseffectiveness

definedforgovernmentalorganizationslikeFederalagencies,cities,counties,andstates?Fortheseorganizations,

theRinReturnonInvestment(ROI)isnotmeasuredindollarsandcents,butratherbyimprovementsinvarious

aspectsofqualityoflife.

Theultimategoalofanygovernmentorganizationistoimprovethequalityoflifeforitscitizens.Qualityoflife,in

turn,canbetranslatedintosomesetofeconomic,environmental,and/orsocial(orequity)benefits often

referredtoasthetriplebottomline,orthreeleggedstoolofsustainability.Thus,itstandstoreasonthe

purposeofnearlyallgovernmentagenciesisindeedsustainability(orsubsetofsustainabilityobjectives).This

statementrings

true

regardless

of

whether

an

organization

considers

itself

particularly

green.

Oncethesequalityoflifestrategicobjectivesareidentifiedforaparticularorganization,interconnectionsand

interdependenciesimplicitintheorganizationsstrategicobjectivescanbemadeexplicitbyutilizingasystems

basedframeworkliketheBalancedScorecard.Keyperformancemeasurestrackingtheorganizationssustainability

objectivescanthenbeimplementedtochangethewaybudgetsandresourcesareallocated.Onceresourcesare

properlyallocated,performancemeasuresaredevelopedatamoregranularlevelandusedtodriveincentive

structuresandcatalyzeperformanceimprovement.


3/19

Redeveloping Denvers Development Services Function with Purpose and Value

By Scott D. Johnson, Ph.D.

3|2010,reVisionInc.

Suchanapproachseamlesslyintegratesboththesustainabilityandcostreductionobjectivesmanygovernment

organizationsface;itpromotesamoreefficientandeffectivedeliveryofservices(reducedcosts,improvedROI,

andincreasedservicelevelsofservice)whileconcurrentlyimprovingqualityoflife.Whiletheseconceptsare

applicableacrossalllevelsofgovernment,theyareperhapsmostrelevanttocities,wheresustainabilityis

immediateandtangibleforcitizensandemployees.TheCityandCountyofDenver(theCity)hasbeenparticularly

successfulinimplementingtheTripleBottomLineBalancedScorecardmethodologylayingthegroundworkfor

significantimprovement

of

the

Development

Services

function.

This

paper

first

discusses

the

underlying

tenets

of

theapproachandmethodology,andthendelvesintotheCityssuccessfulapplicationofthemethod.

TheChallengeofStrategyImplementation

Fornearly20years,accumulatingamountsofempiricalandanecdotalevidencesuggesttheoverwhelming

majorityofstrategiesfailnotbecausetheyreflawed,butbecauseofpoorimplementation(Mintzberget.al.2005,

pg.32).Inbothpublicandprivatesectors,thistypicallyoccursatmultiplepointsalongthestrategicplanningpath:

Highlevelgoalsetting.Organizationsaregenerallygoodatperformingan(almostritualistic)annual

objectivesettingexercise.Formunicipalities,thisistypicallyanannualcitycouncil/mayoral retreat,

oftenproducingthesame10goalsthateveryothercityinthecountryidentified.Evenwhenthe

objectivesarewellfocusedandunique,however,theorganizationsfinancedepartmentand

budgetingfunction

often

dont

have

aconcrete

method

to

integrate

the

high

level

objectives

into

resourceallocationdecisions(a.k.a.operatingbudgetsandcapitalinvestments).

Departmentallinkages.Evenwitheffectivegoalsetting,organizationsoftenfailtoconnecthigher

levelgoalsandobjectivessuchasComprehensivePlans,annualbudgets,etc.(goalsonpaper)with

individualdepartmentprogramsandactivities(actionsontheground).Thedepartmentsarewhere

theworkactuallygetsdone.So,ifcitywideobjectivesarenttranslatedintodepartmentobjectives,

theywonthappen.Thisisparticularlyimportantwhenonegoalissignificantlyinfluencedbyanother

departmentsactivities.Forexample,crimeratesaregenerallythefocusofthepolicedepartment.

However,conventionalpolicinghasverylimitedsuccessinreducingcrime.Infact,ithasbeen

showntobehighlyinfluencedbyfactorssuchasthepresenceofgraffitior,conversely,thesuccessof

graffitiremoval.Butgraffitiremovalisgenerallytheresponsibilityofanentirelydifferentdepartment

intheorganization suchasthepublicworksdepartment..

Frontline

staff

engagement.

Beyond

the

department

level,

organizations

often

lack

an

effective

processtoengageandencouragefrontlinestafftheverypeoplethatwouldhavetodowork

differentlyinordertoachievetheobjectives.

Toovercomethechallengesofstrategyimplementation,theorganizationneedsasolidframeworktoachievethe

goalofmakingitshighlevelobjectivesintoeveryoneseverydayjob.

WhatisaBalancedScorecard(BSC)?

ThefirstcomponentoftherequiredframeworkisamodellinkingtheCitysmissionwithspecificstrategic

outcomes.Figure1providesanillustrationofthestepsalongthisstrategicpathway.


4/19

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7|2010,reVisionInc.

DenversNeedtoRedeveloptheDevelopmentServicesFunction

Foraperiodwellover15years,thedevelopmentfunctioninDenver(relatetoconductingdevelopmentreviews,

issuingpermits,performinginspections,etc.bytheCity)wasseenasbroken.Multiplestudiesweredeveloped

onthetopic;manyinitiativeswereundertakentocorrecttheproblems.Ingeneral,eachoftheinvestigationscame

toasimilar

range

of

conclusions

regarding

the

problems.

Despitemuchagreementontheproblems,identificationandimplementationofsolutionsprovedelusive.While

eachoftheprioreffortsresultedinmarginalimprovementstothedevelopmentservicesprocessesand

organization,noneofthemmadeabigenoughimpactforthecustomertoseeadifferenceintheoldwayofdoing

business.Onekeyfactorforthiswasthelackofaframeworkandmeasurementsystemfocusedondriving

businesssuccess(happycustomers,fasterthroughput,lowercosts,etc.)whilesimultaneouslyengagingthestaff

responsibleforimplementingchanges(staffverycommittedtomaintainingthesafetyofbuildings,positive

aesthetics,provisionofparksandopenspaces,andthelike.)

In2007,theCityembarkedonthecurrentproject,seekingtoaddresstheprioreffortsshortcomingsbyaltering

theapproachanddrivingchangefromwithin.Majortenetsoftheprojectwereasfollows:

Focuswasonpeople,process,andmeasuresfirstnottechnology.

Peopleintheorganizationweretrainedinorganizationalimprovementtoolandmethods,andthenthey

identifiedthe

better

ways

of

doing

business

(of

course

with

some

help).

Smallteamswereleveragedtoidentifytheproblemswithcurrentprocessesandsystems.

Organizationalchangeswerenotmadeuntilaftertheprocessissueswerewellunderstoodandaclear

pathwaytofixingthemwasestablishedformfollowsfunction.

Thenewwaysofbusinessweredocumentedsoemployeesknowexactlywhattodo.

And,mostimportantlytotherelevanceofthispaper

ATripleBottomLineBalancedScorecardframeworkwasleveragedtodrivetherightkindofchange.

Notyetfullycompletedatthetimeofthiswriting,thecurrenteffortisproducingstrongpositiveimpact.Initial

commentsfromdevelopersindicatetheycanalreadythatthingsaredifferentthistime,theCitystaffisexcited.

Thedifferenceisthebroaderapproach,anddrivingchangefromwithin.

RoleoftheTBLScorecardintheOrganizationalRebuildingProcess

WhyistheTripleBottomLineBalancedScorecardsocriticaltotheCityschangeeffortsuccess?

Aswithprivatesectororganizations,governmentorganizationsshouldbedesignedtodeliverefficientand

effectiveservices,buttheyalsomustdeliveronbroaderqualityoflife TripleBottomLine objectives.Inthecase

ofthenewlycreatedDevelopmentServicesAgencyfortheCityandCountyofDenver,theneedwastomeetthe

businessobjectivesof:dramatically improvedcustomerservice,fasterresponse/throughputtimes,andclear

STRATEGY MAP

The strategy map is a logical and comprehensive architecture for describing an organizations strategy

something that creates a common and understandable point of reference for all employees. The measurement ofcause-and-effect relationships in strategy maps show how intangible assets are transformed into tangibleoutcomes. Put another way, they show how short-term efforts and investments in people and processes can betranslated into long-term value (Kaplan and Norton, 2004, pgs 9-14).


8/19



8|2010,reVisionInc.

transparencyandpredictabilityfortheentireendtoenddevelopmentprocesswhilesimultaneouslyensuringa

builtenvironmentthatmanifeststheenvironmental,social,andeconomicgoalsoftheCity.

TheTripleBottomLineprovidesthecriticalcontext,rules,andboundaryconditionsfortheprocessimprovement

effort.WithoutaclearunderstandingoftheCityslargerobjectivesandboundariesfordevelopment,thefixwould

beeasy:Giveusthemoney,andwewillgiveyouapermittobuildthatsit,weredone!Butwhatkindof

Denverwouldwebebuilding?Likely,itwouldnotbesafe,oraestheticallypleasing,oreasytogetaroundin,or

containany

public

spaces.

Furthermore,thevariousCitydepartmentsarestaffedalmostentirelywithpeoplewhoseprimaryresponsibility

wastocreateorprotectsomequalityaspectoftheenvisagedDenver.Theirentirereasonforbeingistoensure

that:buildingsarefiresafe,theyhaveelectricalandmechanicalsystemsthatactuallywork,architecturaland

historicallandmarksareprotected,AmericanswithDisabilitiesActrequirementsaremet,parkwaysactuallylook

likeparkways,waterdrainsoffwhenitrains,andsoon,andsoon.

Whentheprocesses,procedures,andsystemsarenotinplacetoclearlyidentifytherules,eachstaffmemberis

forcedtoprovidetheirowninterpretation.Eachdidsoabitdifferently.Conflictsbetweenindividuallyinterpreted

departmentobjectivesbecameprojectbottlenecks.FormanyCitystaff,theyperceivedtheonlywaytoprotectthe

greatergoals(astheyinterpretedthem)wastoslowthewholeprocessdowntoacrawl.

TheresultwasnotanimprovedbuiltenvironmentfortheCity,butinsteadpoordevelopment,doneslowly,witha

confusedand

unhappy

development

community.

Withoutobjectivesthatareactuallymeasuredwecannotmanageorincentivizeeitherthebusinessobjectives

(AREourprocessesefficient?AREweprovidinggoodresponsetimes?AREcustomershappywithour

communication?etc.)ortheTripleBottomLinebenefitstotheCity(e.g.,AREwereallypreventingfiredeaths?DO

theparkwaysreallylooklikeparkways?DOESthewaterreallydrain?etc.)Thus,theTripleBottomLine(TBL)

BalancedScorecard(BSC)providesthecriticalframeworktomeasure,control,manage,andincentivizeallofwhat

theorganizationexiststodo.

BuildingandImplementingaTripleBottomLineBalancedScorecard

forDenversDevelopmentServicesAgency:theProcess

TheTBL

BSC

development

project

was

acomponent

part

of

amuch

larger

Business

Process

Improvement

(BPI)

effortfortheDevelopmentServicesfunction.Thisinvolvedprocessdocumentationandimprovement,policy

analysisandupdating,aswellasorganizationalchange.TheTBLBSCprovidesthecriticalcontextforimprovement

efforts.Itallowsustoanswerthequestion whatareweactuallytryingtoachieve? repeatedly,asweseekto

improveprocessestoimprovethroughput,transparency,customerservice,andtheoverallconditionsintheCity.

AsthescorecardwasneededimmediatelytoprovidecontextforthelargerBPIeffort,itwasnecessarytoget

somethingonpapertoprovideearlyguidanceanddirection.Thefirststep,therefore,wastodraftupastraw

manscorecardtogettheballrollingonprocessimprovement.Suchearlyguidanceanddirectionproved

invaluable.

BuildingaFoundation

Beforeastrawmanscorecardcouldbeformulated,however,asharedfoundationofunderstandingaroundthe

new

organizations

broader

purpose

needed

to

be

established.

Thus,

Mission,

Vision,

and

Values

were

drafted

for

thenew(tobe)DevelopmentServicesorganization.

Todoso,ateamofmiddleandseniormanagerswasformed,representingvariousfunctionslikelytobeincludedin

theneworganization.Inparallel,thereVisionconsultantreviewedvariouspertinentCityanddevelopmentrelated

documentationandcreateddraftmissionandvisiondocuments.Thenewteamvettedandeditedthedraft

documentsandbrainstormedvaluesinasmallseriesofshort,highlyproductiveworkshops.Finalworking

documentswereachievedwithinacoupleofweeks.Figure5providestheresults.


9/19



9|2010,reVisionInc.

Figure5

DenverDevelopmentServicesMission,Vision,andValues

DevelopmentofaHighLevelStrawManStrategyMapofScorecardObjectives

OncetheMission,Vision,andValuesweredefined,strawmanscorecardobjectiveswerereadytobedeveloped.

Theteamreconvenedinadditionalshortworkshopstodeveloptheinitialstrawmanscorecard,whichwouldguide

preliminaryprocessimprovementefforts.

EducationalworkshopsfacilitatedbytheconsultantprovidedtheteamwithaprimerontheBalancedScorecard

andtheTripleBottomLinevariation.Armedwiththenewinformationandacommonvernacular,theteamthen

brainstormedinitialobjectivesandmeasuresfortheorganization.Injustacoupleveryproductive1.5hour

workshops,theteamdevelopedasolidsetofpotentialTripleBottomLinescorecardobjectives.Theobjectives

wererefinedintoahighlevelscorecardusedtoguidetheBPIProjectthroughthefirststageofimprovement

efforts,asseeninFigure6.Withoutthisstrawmanscorecardasaguide,discussionswouldhavebeenmuch

morechallenging

to

keep

on

point

when

attempting

to:

a)

identify

and

prioritize

afew

major

process

areas

for

PhaseIimprovementefforts,andb)guidetheteamsinidentifyingexactlywhattheimprovedprocesseswere

intendingtoachieve. Withthescorecardinhand,thosedebateswerewellframed.

Vision

Mission

Values

DenverDevelopmentServicesplaysacriticalroleinDenverssuccessbyfacilitating highquality,

sustainabledevelopmentthatpromoteslivability,diversity,andaccessibilityinourneighborhoods and

communities.

DenverDevelopmentServicesensuressafe,sustainabledevelopment, enhancesqualityoflife,

promoteseconomicvitality,andexcelsincommunityandcustomer service.

Dedicationtoservingthepublic

Safetyandintegrityofourcommunity

Predictable,fairinnovative,andtransparentprocesses

Teamwork,problemsolving,andcontinuingeducation

Thoughtfullybalancingtheperspectivesofourvariousstakeholders

Clearandconsistentcommunicationwithemployeesandstakeholders


10/19



10|2010,reVisionInc.

Figure6

InitialStrawManDenverDevelopmentServiceScorecard/StrategyMap

IdentificationofCitywideStrategicThemes

Asnoted,theBSCmethodisaneffectivewaytoalignabusinessunitordepartmentsobjectiveswiththoseofthe

largerorganization.

Such

alignment

is

done

through

identifying

strategic

themes

for

the

larger

organization,

then

thenthroughforgingalignmentbetweenthedepartmentobjectivesandoverarchingstrategicthemes.

ToidentifytheCitywidestrategicthemes,anevaluationwasmadeofexistingcitywidestrategydocumentation.In

thiscasethecurrentstrategicvisionfortheCitywascapturedinthemostrecentMayorsRetreat

documentation.Thedocumentationidentifiedseveralgoalsandstrategicoutcomes,whichwereeasily

consolidatedintotwooverarchingstrategicthemes.Theoriginalobjectivesandstrategicoutcomesfromthe

retreat aswellasthetwoconsolidatedstrategicthemes areidentifiedinFigure7.

Dedication

toserving

thepublic

Safetyand

integrityof

our

community

Predictable,

fair,innovative,

andtransparent

processes

Teamwork,

problemsolving,

&continuing

education

Thoughtfully

balancing the

perspectives

ofourvarious

stakeholders

Clearand

consistent

communication

withemployees

&stakeholders

VISION DenverDevelopmentServicesplaysa

criticalroleinDenverssuccessby facilitatinghigh

quality,sustainabledevelopment thatpromotes

livability,diversityandaccessibilityinour

neighborhoodsandcommunities.

MISSION DenverDevelopment

Servicesensuressafe,sustainable

development,enhancesqualityoflife,

promoteseconomicvitalityandexcelsin

communityandcustomerservice.

COMMUNITY

NEEDS

COMMUNITY

EXPECTATIONS

CONDITIONS

toimprove

TRIPLEBOTTOM

LINE

Results

PROCESSES

TOIMPROVE

EFFECTIVE

PROCESSES

AGENTS

ofchange

PEOPLE

KNOWLEDGEBASE

TOOLS

V A L U E S

identify

determine

bring

out

asdeterminedby

empower

deliver

drivechangeto

change

observed

Safe,

Sustainable

Denver

Satisfycustomersbysupporting them

throughtheprocessandproviding

timelyandclearfeedback

Neighborhoodcharacter

andcommunityvitality

Stormand

wastesystems

thatare

effective&

sustainable

Ensureparks,

greenspace

andtreesare

protected/

enhanced

Safeand

efficient

transp.system

Promote

economic

development

with

development

thatis

consistentwith

theCitys

vision

Incorporate

community

benefitsinto

development

Safe

Communities

Preservethe

historic

characterof

Denvers

neighborhoods

Efficient

Processes

Processesthataretransparentand

predictable

Efficient andeffectiveapplicationofbuildingand

developmentcodes

Welltrained,skilledandinformedemployees

Empowered,problemsolvingemployees

Employeeshavefulfillingcareers

Employeeswhovaluecontinuous improvement

EconomicVitality


11/19




Figure7

CityofDenverStrategicThemes

ChangeorientedThematicGoal

WhilethelongtermstrategicthemesidentifiedinFigure7representthestandardoperatingobjectives,

sometimesitiseasiertomotivateteamswithashorterterm,changeorientedgoal.Lencioni(2006,pg.165)

observedthatwhileitiseasiertoalignstaffandmotivatepeoplewhenthereisacrisis,onecanidentifyonesown

single,temporary,andqualitativerallyingcrysharedbyallmembersoftheleadershipteam(Lencioni,2006,pg.

179).Hecallsthisathematicgoal.TheCitysthematicgoalorrallyingcrywastostandupagreat

developmentservicesorganization.

Ultimately,alltheprojects,programs,andinitiativesundertakentostandupagreatdevelopmentservices

organizationareforthepurposeofachieving(oneorbothof)thetwooperatingstrategicthemes.Therefore,the

thematicgoalwassubsumedintothestrategymapsforthetwothemes(especiallytheprovideexcellent

customerservicewhilelivingwithinourmeanstheme),ratherthanindependentlymapped.

ScorecardTeamIdentifiedandStoodUp

AdedicatedBalancedScorecardteam,withmembershipslightlydifferentthanthemission/vision/values

developmentteam,wasformedtoutilizetheidentifiedstrategicthemesandshorttermthematicgoalinrefining

thehighlevelstrawmanstrategymapandidentifyingspecificmeasuresforthefinalscorecard.Thisnew,

dedicatedBSCteamwascomposedofthemostbroadmindedthinkersfromthelargerprocessimprovementteam

andrepresentedawidecrosssectionoffunctionalskillsets.Representationincluded:planning,inspections,fire

safety,projectcoordination,transportation,waterinfrastructure,andothers.Representativesweregenerally

frontlinemanagersorcontributors.Theteammetbiweeklyfor1hourcoordinationmeetingsoveraperiodof

severalmonths;mostworksessionsandresearchwasconductedoutsideofthemeetings.Theteamsupervised

andcontributed

the

majority

of

content

for

all

following

steps

in

the

BSC

initiative.

ReviewofallExistingStrategyorPlanningDocuments

TheCityhadgeneratedmanydocumentsoverrecentyears,containinggoals,objectives,andeventargetsfor

improvingconditionsin,orperformanceby,theCity.Intheircurrentformtheygenerallyrepresentedlittlemore

thanawishlistofhowthefutureoftheCitycouldlook.Withoutthepowerofperformancemeasurementand

management,thereisnoengineforimprovement.Astheteamwasnowintheprocessofbuildingthatengine,it

wasimportanttoconsiderallofthesepreexistingdocumentedobjectivesinthedevelopmentoftheDepartments

Vibrantanddynamiceconomygroundedin

industriesof

the

future

Peopleleadhealthyandsuccessful lives

Safercommunities

Qualityculturalandrecreational

opportunitiesforall

Efficient,diverse,andaccessible

transportationsystem

Environmentalstewardship

Better

Place

to

Live

and

Create

Jobs

Motivated,diverse,andpreparedworkforceBetterPlacetoWork

MakeDenvera

Better

Place

toWork,Live,and

Visit

Objectives Goals

Consolidated

Themes

Highestqualitycustomerservice

InternalprocessesthatenablestheCityto

achieveitsgoalsefficientlyandeffectively

Customer

ServiceProvideExcellent

CustomerService

WhileLiving

WithinourMeans

PrudentfiscalstewardshipLiveWithinOurMeans


12/19




finalstrategymap/scorecard. Tofacilitateconsideration,theteamidentifiedalistofdocumentsexpectedto

containimplicitorexplicitgoals,objectives,and/ortargetsforperformanceorconditionswithintheCity.The

resultinglistofdocumentsisprovidedinFigure8.

Figure8

CityofDenverDocumentsContainingObjectives,Targets,orMeasures

ConsolidationandWinnowingofObjectives

Subteams

were

assigned

the

larger

list

of

documents

for

review.

They

then

compiled

acomprehensive

list

of

goals,objectives,ortargetscontainedwithin.Sincethefulllistcontainedmanyduplicateorcloselyrelatedgoals,

anaffinitymappingprocesswasusedtoidentifyopportunitiesforconsolidation.Thegoalswerealsogrouped

intocategories,basedprimarilyonthehigherlevelgoalsidentifiedintheMayorsretreat.

Twoteammembersbuiltatableoftheconsolidated,combined,and/orrewordedobjectives.Theseformedthe

basisofthestrategymappingprocess(describedbelow).Giventhecontent,twolevelsofobjectives(i.e.,macro

objectivesandobjectives)weredeveloped.Themajorityofmacroobjectivesweretakenverbatimfromthegoals

oftheMayorsretreat.Objectiveswerethengenerallysortedasasubsetofthemacroobjectives.

BuildStrategyMapsforBothStrategicThemesandIdentifyPotentialMeasuresfortheKeyObjectivesinthe

Maps

Oncethelistofpotentialmacroobjectivesandobjectiveswascomplete,itwastimetolookforthelinkageswhich

wouldindicate

the

most

critical

objectives

to

be

included

in

the

new

strategy

map.

As

noted

above,

two

strategic

themeswereidentifiedfortheCity.Strategymapswerebuiltforeachstrategictheme,linkingthestrategic

objectives:

OngoingoperatingorbusinessobjectivesarerepresentedintheintheProvideExcellentCustomer

SatisfactionWhileLivingwithinourMeansstrategictheme.

BroaderconditiongoalsandboundaryconditionsfortheDepartmentseffortsareidentifiedintheMake

DenveraBetterPlacetoLive,Work,andVisitstrategictheme.

StrategymapsforeachthemearepresentedbelowinFigures9and10.

2009Budget

Book

BicycleMasterPlan

BlueprintDenver

Denver2000ComprehensivePlan

Greenprint Denver

MayorsRetreatStrategicFrameworkDocument

IdentifiedDocuments

Parksand

Recreation

Plan

PedestrianMasterPlan

SanitaryMasterPlan

StrategicTransportationPlan

WaterQualityMasterPlan


13/19




Figure9

StrategyMapsfortheTwoDenverStrategicThemes:Theme1 ProvideExcellentCustomerServiceWhileLiving

WithinourMeans

Satisfycommunityneeds&expectations Mayor

DeveloperCommunity

Customers

CityCouncil

Customer

Conditions

Process

Learning

andGrowth

Deliverexcellentcustomerservice

Mayor

DeveloperCommunity

Customers

CityCouncil

ImproveDSthroughput ascontributiontoeconomy

Supportfacilityredevelopment&reuse

Contributetoinfrastructure value&communitybenefits

Developmentaddstooverall

EconomicHealth

Motivated,diverse,preparedworkforce Providetrainingtocreatewelltrained,problemsolving

workforce focusedoncustomerneeds

Developaprogramtoattractskilledworkers Empoweremployees

Monitoremployeesatisfaction

Leveragetechnology

Highlevelsoftransparency&communicationwithcustomers

MakeDSprocessesclear&understandable Improveormaintain response toinquiriesregarding

development projects

Enhancecommunicationsystems&tools

Simplefeestructure

Employeeempowermentthroughpolicychangesorregulation adoption

Initiativestobuild

agreatDSorganization

Safebuildingsandcommunities

Efficient, effectiveapplicationof

building&developmentcodes

Efficient, effectivedevelopment

Projectsgetbuilt

Encourageefficientwaystoensureprojectsprovide

communitybenefit

Permitthroughput efficiency

Improvetransparency&communicationfor&withothers

Createmasterprocessandproceduredocument

InternalprocesseshelpCityprovide

excellentcustomerservice&contributevaluetoregionaleconomy


14/19


15/19


Figure11describeshowcausalchainconceptualizationisusedtocreatestrategymaps.Whilethelogicinthe

figureflowsforward,whenbuildingastrategymaponestartswiththeendinmind.Specifically,theteamstarts

withconditionsandperceptionstargetedforimpactandthendetermineswhichprocesses andinturnwhat

learningandgrowth isrequiredtodrivethoseprocessimprovements.

Figure

11

CausalChainLinkageExample

IdentifytheActualPerformanceMeasurestoTracktheObjectives

Foreachoftheobjectives,oneormoreactualmeasureswereidentifiedthatcouldbemonitoredovertime.The

exampleillustratedinFigure11includesactualmeasuresinordertoshowhowthesegivelifetotheobjectives.

Identificationofactualmeasures(ormetrics)isharderthanitmightsound.Whileitisonethingtosaythatwe

wanttoincreaseopenspace,itisquiteanothertoidentifyacosteffectiveandusablemeasurerepresentativeof

thespecificdomain.Thiswasaniterativeprocess,completedforallobjectivesinbothstrategymaps.Initial

measuresbrainstormedbytheteamwereresearchedbyindividualstodeterminetheirpracticalityforongoing

measurement

and

use.

Often

there

was

an

existing

measure

which

was

different

but

close

to

the

one

identified.Inalmostallcases,theexistingmeasureservedasthedefault.Itsalsoachallengetofindtheperfect

numberofmeasures;oftennosinglemeasurecanrepresentthecompletedomaindescribedintheobjective,but

toomanymeasurescansinkthescorecardeffort.Inordertoavoidthetoomanymeasureschallenge,one(or

perhapstwo)proxymeasureswereidentified.TheCitysresultingsetofmeasuresforthescorecardsfirst

generationisdocumentedinFigure12.

ThefinalBuildaDetailedTableofthePerformanceMeasurestobeTracked

Thefinalstepafterthespecificmeasureswereverifiedwastodevelopatableidentifying specificattributes

regardingeachmeasure.Datatobecapturedincludeswhichmeasureswillbetrackedinyearone,whowillcollect

thedata,wherethedataislocated,accuracyrequired,periodofcollection,etc.Anabbreviatedversionofthe

tablewithaselectionofscorecardmeasuresselectedfortheDenverDevelopmentServicesAgencyisincludedin

Figure12.

1. Employeesinformedbyastudy identifyingthegapsinthecurrentmultimodaltransportation

network(e.g.,gapsbetweenbiketrails,lackoflinkagebetweenbikeandbusroutes,etc.)

LearningandGrowth

IfDenversobjectiveistocreateanefficient,diverse,andsafetransportationsystem

2. Implementingdevelopmentreviewprocessesandprocedureswhichencouragedevelopment

projectstoclosethosegaps.Process

Should

lead

to

3. Reducethenumberofgapsandincreasenonmotorizedmeansoftravel.Conditions

Whichshould, inturn

4. Resultingincitizenshappywithtransportationoptions inthecity.Customers

Thereby


16/19


Figure12

DetailedPerformanceMeasuresTable

Objective Performance Measure

Measure

Frequency

Customer,Stakeholder,andLegitimizingAuthorities

Satisfycommunityneedsandexpectations Annualcitizensurvey annually May

DeliverExcellentCustomerService DevelopmentServicesOnlinecustomersatisfaction

survey

quarterly DS

Conditions

DevelopmentinDenveroccursefficientlyand

effectively

Percentofprojectthatarestartedgetfinished annually DS

Efficient,safe,anddiversetransportationsystem Numberoftransportationnetworkgapsclosed annually DS

DevelopmentinDenveraddstooverallEconomic

HealthofCityandRegion

#ofprospectiveprojects onwhichDSprovides

specialsupporttoOfficeofEconomicDevelop.

annually DS

$valueofprojectsbuilt/yr annually DS

Environmental

quality,

energy,

and

natural

resource

conservation Number

of

projects

designed

to

meet

LEED

criteria

annually

DS

Safebuildingsandcommunities Passratesonfiresafetyinspections annually DS

Process

InternalprocessesthathelptheCityachieveits

livabilitygoalsefficientlyandeffectively

Projectreviewturnaroundandthroughputtimesby

keyphases

Monthlyor

Quarterly

DS

Personhoursperpermitbycategory(ordollarsof

permitteddevelopmentbycategory

Annually DS

InternalprocessthathelptheCityachieveits

livabilitygoalsefficientlyandeffectively

%ofprojectsthatimplementinnovative

ideas/solutions/methods,etc.

annually DS

LearningandGrowth

Review

and

update

standards

and

systems

New

DS

manual

complete

75%,

90%,

and

complete DS

Motivated,diverse,andpreparedworkforce Employeesatisfactionsurvey annually HRd

Trainingcoursesprovidedinnewmethodsand

attendance

annually DS

Welltrained,problemsolvingworkforce %ofDSstaffinvolvedinactivelywritingand

improvingproceduresandpolicies

annually DS


17/19


RevisetheStrawmanintoFinalHighLevelStrategyMap

Oncethespreadsheetwaspopulatedtheoriginalhighlevelstrawmanscorecardwasupdatedtoitscurrentand

finalversion,asseeninFigure13.Thisallowedaonepage,highleveldiagramillustratingtheoverallstrategymap

/scorecardconceptfortheCitytobeeasilydisseminated.

Figure13

FinalSummary

Denver

Development

Services

Scorecard/Strategy

Map

CommunicatetheScorecardandIntegrateintoOperations

Thesummaryscorecardhastwokeyuses.

Internalmanagement(rewardsystems,allocationofresources,etc.).Thebusinessrelatedmeasures,many

collectedonamonthlyorquarterlybasis,areprovidedtoallmanagerssotheycanmakeongoing

adjustmentstooperationsandensureprocessimprovementinitiativeeffectiveness.AllAgencystaffwillbe

trainedinthescorecardandhowitappliestotheirdailyresponsibilities.

Externalcommunicationtocitizensandstakeholdersasaperiodicreportcard.Inaddition,Businessrelated

measures

and

the

broader

triple

bottom

line

measures

will

be

provided

in

an

annual

State

of

the

Agency

Report,providingexternalcommunicationontheAgencysperformance.

ConclusionandPathForward

TheTripleBottomLineBalancedScorecardprovidedthefoundation,andasignificantdriver,forperformance

improvementacrossboththeCitysqualityoflifeaswellasbusinessobjectives.Othercriticalongoingactivities

include:

CompletingthenewtobeprocessesfortheAgency

Dedication

toserving

thepublic

Safetyand

integrityof

ourcommunity

Predictable,

fair,innovative,

andtransparent

processes

Teamwork,

problemsolving,

&continuingeducation

Thoughtfully

balancingthe

perspectives

ofour

various

stakeholders

Clearand

consistent

communication

withemployees

&stakeholders

VISION DenverDevelopmentServicesplaysa

criticalroleinDenvers successbyfacilitatinghigh

quality,sustainabledevelopment thatpromotes

livability,diversityandaccessibilityinour

neighborhoods andcommunities.

MISSION DenverDevelopment

Servicesensuressafe,sustainable

development,enhancesqualityoflife,

promotes economicvitalityandexcelsin

communityandcustomerservice.

COMMUNITY

NEEDS

COMMUNITY

EXPECTATIONS

CONDITIONS

toimprove

TRIPLEBOTTOM

LINE

Results

PROCESSES

TOIMPROVE

EFFECTIVE

PROCESSES

AGENTS

ofchange

PEOPLE

KNOWLEDGEBASE

TOOLS

V A L U E S

identify

determine

bringout

as

determinedby

empow

er

deliver

drivechangeto

change

observed

Satisfycommunityneedsand

expectations Deliverexcellentcustomerservice

Stormand

wastesystems

thatare

effective&

sustainable

Ensureparks,

greenspace

andtreesare

protected/

enhanced

Efficient,

diverse,and

safetrans.

system

Promote

economic

development

with

development

thatis

consistentwith

theCitys

vision

Incorporate

community

benefitsinto

development

Safebuildings &

communities

Preservethe

historiccharacterof

Denvers

neighborhoods

Efficientandtransparentprocessesthat

provideexcellentcustomerserviceand

contribute toregionaleconomy

Processesthathelpthecity

achievelivabilitygoals

Efficientandeffectiveapplicationof

buildinganddevelopmentcodes

Fiscalandtax

strategies

EconomicVitality

Development

occurs

effectivelyand

efficiently

Environmentalquality,energy,and

naturalresourceconservation

Development

addstooverall

healthofcity

andregion

Newprogramsto

buildagreatDS

organization

Review andupdate

standards,processes,

andsystems

Motivated,

diverse,prepared

workforce

Welltrained,problem

solvingworkforcefocused

oncustomerneeds


18/19




ComprehensivelydocumentingprocessesintheDevelopmentServicesManualandwebsite

Providingtrainingforthewebsite,scorecard,andnewprograms

Supportingandfinetuningtheneworganizationalstructure.

Tofullyimplementthescorecardsomeadditionalactionsarealsorequiredgoingforward.Thisincludes:

Collectionand

management

of

throughput

and

customer

satisfaction

measures

on

aperiodic

basis.

Integrationintoindividualstaffplans.

Usebymanagement,atalllevels,tofurtherfinetuneimproveprocessesandcustomerservice.

AnnualpublicationofaStateoftheDevelopmentServicesAgencyReport.

OurhopeisthattheTripleBottomScorecardwillbeexpandedtoadditionaldepartmentsandagenciesintheCity

and,ultimately,toalloftheCity.Thismodeliswidelyapplicabletoalmostanygovernmententity.


19/19


References

AIA,2003,DenversDevelopmentReviewProcess:CanitbeFixed?34pps.

Elkington,J.1994,"Towardsthesustainablecorporation:Winwinwinbusinessstrategiesfor

sustainabledevelopment."CaliforniaManagementReview,vol.36,no.2:90100

Elkington,J.1998.CannibalswithForks:theTripleBottomLineof21stCenturyBusiness.Oxford:Capstone

PublishingLimited.

Johnson,ScottD.1998.IdentificationandSelectionofEnvironmentalPerformanceIndicators:Applicationof

theBalancedScorecardApproach,CorporateEnvironmentalStrategy,summer,PRIPublishing,Metuchen,New

Jersey.

Abbott,R.,Johnson,S.,andDieckhoner,T.,2002EmbeddingSustainabilityintheBusinessofCityGovernment,proceedingsofCanadianSocietyofEcologicalEconomics(CANSEE)Conference2003.

Kaplan,R.S.andNorton,D.P.2004.StrategyMaps,Boston:HarvardBusinessSchoolPublishingCorporation.

Kaplan,R.S.andNorton,D.P.2001.TheStrategyFocusedOrganization:HowBalancedScorecardCompanies

ThriveintheNewBusinessEnvironment.Boston:HarvardBusinessSchoolPress.

Kaplan,R.S.

and

Norton,

D.P.

1996.

The

Balanced

Scorecard:

Translating

Strategy

into

Action.

Boston:

Harvard

BusinessSchoolPress.

Kaplan,R.S.andNorton,D.P.1993.PuttingtheBalancedScorecardtoWork,HarvardBusinessReview,

September/October,Cambridge,MA.

Kaplan,R.S.andNorton,D.P.1992.TheBalancedScorecard:MeasuresthatDrivePerformance,Harvard

BusinessReview,January/February,Cambridge,MA.

Lencioni,Patrick,Silos,2006,Silos,Politics,andTurfWars,SanFrancisco,CA,JosseyBass.

Mintzberg,Henry,Ahlstrand,Bruce,andLampel,Joseph,2005,StrategyBitesBack,PrenticeHall,UpperSaddle

River,NewJersey.

Niven,PaulR.,2003,BalancedScorecardforGovernmentandNonprofitAgencies,HobokenNewJersey:John

Wileyand

Sons.

iFinancial measures, for example, are lagging indicators that report on the consequences of past actions. Exclusivereliance on financial indicators promoted short-term behavior that sacrificed long-term value creation for short-termperformance (see banking and mortgage crisis of 2008/2009 for an example from the private sector)

iiNote: Kaplan and Norton (2001, 136) use the term value and benefit of service to address what is here called

quality of life. The State of Washington in its application of the BSC has adopted the same language. Themeasures used for this category will be conditions.

iiiSuch an expansion was recommended in Johnson (1998), and is consistent with stakeholder theory and Kaplan

and Norton (2001, 136) who recognize legitimizing authorities as a target stakeholder group whose support andsatisfaction are required for success in the public sector.

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