simpler, more effjcient and fairer public services moder - - PDF document

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Premier ministre

SECRÉTARIAT GÉNÉRAL POUR LA MODERNISATION DE L’ACTION PUBLIQUE

Gover nment moder nisation:

simpler, more effjcient and fairer public services

moder nisation.gouv.fr

Go ve rnme nt mo de rnisatio n: simpler, more effjcient and fairer public services

Use r s’ e xpe c tations r e gar ding online infor mation, guidanc e and online tr ansac tions in a nutshe ll:

‘I want to be able to ge t infor

mation online as quic kly as possible

and to be able to manage all my pape r

wor k and c ar r y out my

• nline tr

ansac tions, all in the same plac e . But the se rvic e s and

the information must be r

e liable : I

want to be c e r

tain that my

re que st will ac tually be de alt with. I want to be able to c ontac t some one if I ne e d to: gove rnme nt se rvic e s are c omplic ate d and so is the I nte rne t and I would like to be able to c he c k on pr

• gr

e ss with my re que st online and,

if ne c e ssary, whe n I’m on the move .’

Go ve rnme nt mo de rnisatio n: simpler, more effjcient and fairer public services 1 G o ve rnm e nt m o de rnisa tio n is to d a y

e sse ntia l in o rde r to b uild a ne w F

re nc h so c ia l mo de l, whic h c o mb ine s b o th

so lidarity and c o mpe titive ne ss. We ne e d to re think the ro le playe d by the public autho ritie s. Ce ntral and lo c al g o ve rnme nt re so urc e s ne e d to fo c us o n the o bje c tive o f r

estor ing

public fjnances. Ove r the pe rio d 2013-2015, e a c h ministry will pro duc e a ‘ mo de rnisa- tio n and stre amlining pro gramme ’ (PMMS) to ma ke life e a sie r fo r b o th c itize ns a nd public se rvants. T he Se c re ta ria t-Ge ne ra l fo r Go ve rnme nt Mo d e rnisa tio n (SGMAP) wa s se t up b y a De c re e of 30 Oc tobe r 2012. I t is unde r the dire c t a utho rity o f the Prime Ministe r (se c re ta ria t to the g o ve rnme nt), a nd re po rts to the Ministe r fo r Sta te Re fo rm, De c e ntralisatio n and the Civil Se rvic e .

T he Sec retariat-General for Government Modernisation (SGMAP)

T he SGMAP’s o bjec tives are as fo llo ws:

• T
• improve the inte ra c tion b e twe e n

g o ve rnme nt a nd the c itize n a nd se rvic e use rs thro ugh liste ning and inno vatio n

• T
• str

eamline administr ative pr

• c edur

es

a nd to me a sure the q ua lity o f p ub lic se rvic e s

• T
• evaluate public polic ies and suppo rt

go ve rnme nt re fo rm

• T
• develop digital solutions fo r use rs
• T
• re form gove rnme nt information and

c ommunic ations syste ms

• T
• shar

e public data

• Cultivating mode rnisation within g o ve r-

nme nt in c o o pe ratio n with public ac to rs

How the SGMAP is or ganised

T he SGMAP is made up o f se ve ral divisio ns whic h are re spo nsible fo r the mo de rnisatio n po lic y. I ts ac tio ns and pro je c ts are fo c usse d o n e ve ry part o f the process, from start to fjnish: from the needs expressed by users right up to the implementatio n o f tec hnic al so lutio ns. I t c o mprises:

• the I

nterministerial Direc to rate fo r Go vernment Mo dernisatio n (DI MAP)

• the I

nterministerial Direc to rate fo r I nfo rmatio n and Co mmunic atio ns Systems (DI SI C)

• the E

talab unit in c harge o f public data sharing

Go ve rnme nt mo de rnisatio n: simpler, more effjcient and fairer public services 2

How can liste ning and innovation change the inte r action with use r s?

L iste ning no t just to c itizens and user

s, but

also to public ser

vants pro vides us with the

me a ns to ma ke pub lic se rvic e s simple r, mo re e ffic ie nt a nd fa ire r. I n o rde r to do this, the SGMAP has a who le range o f to o ls enabling it to gather

suggestions fro m users

and public se rvants and to g ain a better

under standing of their expectations.

• 1. On the ‘ensemble-simplifjons.fr’ [Streamli-

ning is e ve ryo ne ’s busine ss] we bsite , user

s c an suggest ways of improving servic es,

c o mme nt o n sug g e stio ns ma d e b y

• the r use rs a nd vote fo r tho se tha t the y

c o nsider to be the best. Sinc e it was set up, the website has rec eived:

• 500,000 visits
• 2,000 c ontr

ibutions, inc luding sever al dozen whic h have led to streamlining measures

• 5 000 registratio ns o n the site
• 2. With a r

epr esentative gr

• up of 5,000 F

r ench citizens, the SGMAP is able to appr

• ac h user

s

• n an ad hoc basis and ask them to take par

t in surveys or to share their experience and their suggestions for impr

• vements to ser

vic es. T his ‘mic ro c o sm o f F ranc e’, whic h c an be c onsulted fair ly r apidly at any time, ensur es that surveys pro duc e wo rthwhile re sults, espec ially when it is desir ed to put questions to specifjc target groups.

Improving interac tion with users through listening and innovation in public servic es

• On the Innovating and str

eamlining with civil ser vants (‘Innover et simplifjer avec les

agents public s’) pr

• gr

amme website (inno -

ve r.mo de rnisatio n.go uv.fr), a par

ticipator y platform fo r public se rvants, e ac h public

se rvant is invite d to submit an ide a, a sug- ge stio n o r a c o mme nt de signe d to make public services simpler and more effjcient. T he best suggestio ns will be implemented. T he SGMAP a lso a ssists ministrie s in o rg a- nising pr

izes for innovation and pro mo te s

the ir a dva nta g e s, suc h a s strengthening

c oope ra tion b e twe e n p ub lic se rva nts

a nd b ring ing d iffe re nt d e p a rtme nts to g e the r, public ising and disse minating

innovative pr

• jects and valuing inno vato rs

(Ministry o f the I nte rio r, Ministry o f Justic e , Ministry o f E duc atio n). L astly, the SGMAP is a stake ho lde r in the c reatio n by the OE CD o f an Observato ry o f Public Sec to r I nno vatio n.

Go ve rnme nt mo de rnisatio n: simpler, more effjcient and fairer public services 3

How can we make public se r vice s simple r and mor e use r

• fr

ie ndly?

Some of the vital user expectations include: go vernment servic es whic h

• keep them infor

med o f pro gress,

• r

educe waiting times and the numbe r o f

visits,

• anticipate their

needs.

Taking those expectations as its starting po int, the SGMAP suppo rts g o ve rnme nt de partme nts and ag e nc ie s in imple me n- ting the mo st relevant measures:

• by str

eamlining pr

• cedur

es: whe re use rs

c onsider that an administr ative pr

• c edur

e is too complex, there are solutions which can make it simple r: r

eplace it with an electr

• nic pr
• cedur

e, impr

• ve the administr

ative pr

• cess, simplify administr

ative r egulations

• etc. Example: 550,000 deaths are registe-

re d e ve ry ye ar (so urc e : Natio nal I nstitute

• f Statistic s and E

c o no mic Studie s, I NSE E ).

Streamlining administrative proc edures and measuring the quality of public servic es

T he ne e d to c o mple te the many adminis- trative procedures quickly at a diffjcult time is considered to be complex by 40% of users. . T he c e ntralisatio n and stre amlining o f the pro c e dure s fo r re g iste ring a de a th no w make it po ssible to info rm several agenc ies in a single step, thanks to an o nline servic e.

• by impr
• ving inter

action with the public:

every day public servic es deal with users in

• rder to answer their questio ns o r to enable

the m to c o mple te the administrative pro - c e dure the y re quire . T

his human c ontac t

may take several fo rms: at a physical offjce

• r c o unter, by telephone and, inc reasingly

fre que ntly no wadays, via the Inter

net and mobile applications. Use rs may so me time s

c o nside r that re spo nse time s are to o lo ng, tha t the y ha ve to sp e a k to to o ma ny peo ple o r that they are c o nstantly asked to

Go ve rnme nt mo de rnisatio n: simpler, more effjcient and fairer public services 4

pro vide the same info rmatio n. T he SGMAP assists se rvic e s de aling with the public to e na b le the m to ha nd le re q ue sts mo re e ffe c tive ly, by pro viding training and to o ls whic h are simple to use. Example: the Ma ria nne C e rtific a tio n

Programme is the inte rministe ria l b e nc h-

mark fo r the quality o f initial c o ntac t with use rs. I t take s the fo rm o f 19 specifjc com-

mitments, pro viding guidanc e in e nsuring

improved ac c ess to public servic es, depen- ding o n the ne e ds o f e ac h de partme nt o r agenc y: r

eceiving people cour teously and

e ffic ie ntly, me e ting the state d

re sponse times, a g re e ing to take ac c ount of sug- gestions and c omplaints, e tc . As pa rt o f

the na tio nwide ro ll-o ut o f the Ma ria nne Certifjcation Programme, the SGMAP has supported 450 government departments and agencies (representing the 10% of g o ve rnme nt de partme nts and ag e nc ie s whic h have mo st de alings with the public ) in 45 départements in their programmes to impro ve initial c o ntac t with use rs. I t has participated in the training of 400 project ma na g e rs in the c o mmitme nts invo lve d in the Marianne Certifjcation Programme. T

• supple me nt tha t suppo rt, the SGMAP

has made available to public se rvants a g a me c a lle d ‘Marianne Interac tive’, the fjrst government educational video game, whic h is de sig ne d to he lp the m impro ve initial c o ntac t with use rs. T his e duc atio nal g ame is a simulatio n base d o n re al situa- tio ns, whic h public se rva nts de a ling with the public have e nc o unte re d at wo rk. I t has been downloaded over 14 000 times. T he impac t o f the stre amlining o f adminis- trative pro c e dure s is me asure d at re gular inte rva ls using the public se rvic e quality

bar

• meter. T

his to o l is use d to asse ss ho w complex users find administrative pro- c e dure s. Ove r a pe rio d o f two ye ars, the de g re e o f sa tisfa c tio n o f use rs in b e ing d ire c te d to the rig ht d e p a rtme nt ha s increased from 61% to 70%, i.e. an impro- ve me nt o f 9 pe rc e nta g e po ints. A ne w versio n o f the baro meter is to be published in mid-2013.

Go ve rnme nt mo de rnisatio n: simpler, more effjcient and fairer public services 5

E valuating public polic ies and supporting government reform

How can we asse ss the e ffe ctive ne ss of a public policy?

T he e valuation proc e ss c o nsists o f firstly

asking those who are benefjting from it and, sec ondly, those who wer e involved in imple- me nting it about the r

eal impact of public polic ies in the lig ht o f the a ims the y a re

inte nde d to ac hie ve . All the public ac to rs c o nc erned, inc luding lo c al autho rities, are therefo re invo lved in disc ussio n in ways that vary from one evaluation to the next. Using the resulting shar

ed diagnosis, r efor m scenar ios are the n fo rmulate d with a vie w

to ma king pub lic se rvic e s simple r, faire r and more effjcient. Onc e the public po lic y has be e n e valuate d and de c isio ns take n, we the n mo ve o n to the imple me ntatio n stag e : adapting the o rg anisatio n, its pro - c edures and its reso urc es to meet the new c halle nge s and pro vide the ne w se rvic e s, mo bilising public se rvants at e ve ry le ve l in

• rder to ac hieve the desired result.

Example: the SGMAP is suppo rting the Ministry o f Ed uc a tio n in e va lua ting the g o ve rnme nt’ s p rio rity e d uc a tio n zo ne s polic y. T hrough the use of shared diagnoses a nd the re sulting sc e na rio s, this suppo rt c o nsists o f ide ntifying all the options for

impr

• ving per

for mance in the fjeld of reme-

diatio n and c o mbating sc ho o l failure while stre ngthe ning links and c o he sio n with the policies of other agencies in related fjelds urban po lic y and initiative s be ing pursue d by other agencies, such as for example lo c a l a utho ritie s, the fa mily a llo wa nc e funds] etc .). T he SGMAP te am pro vide s suppo rt fo r the dedic ated pro jec t team within the Ministry

• f E

duc atio n in struc turing and c arrying o ut the wo rk in pro jec t fo rm, o rganising c o nsul- tatio ns with stakeho lders and pro viding fur- ther clarifjcation, making use of tools such as benc hmarking and best prac tic e.

Go ve rnme nt mo de rnisatio n: simpler, more effjcient and fairer public services 6

How can we r e for m gove r nme nt thr

• ugh the Ministe r

ial Mode r nisation and Str e amlining Pr

• gr

amme s?

T he Minister ial Moder nisation and Str eam- lining Programmes (PMMS) a re pla ns fo r

re fo rms drawn up by the ministrie s fo r the perio d 2013-2015. T he initial aim of these plans is to impr

• ve the

quality of the ser vices pr

• vided for

user s and citizens by re-examining priority objectives

and missio ns and also by making c hanges to how g ove rnme nt de pa rtme nts a nd

agencies ar e or ganised and r

• un. T

hese plans sho uld also pro vide fo r the stre amlining o f pr

• c edur

es for public ser vic e user s and the

digitisation of those depar

tments’ and agen- c ies’ ac tivities. L astly, they should c ontr ibute towar ds c omplianc e with the r

• admap for

a

r etur n to a balanced budget.

T he SGMAP pro vide s inte rministe rial go ve r- nanc e o f the se me asure s. E ac h ministe r is re spo nsible fo r the imple me ntatio n o f the ir ministry’s PMMS, but the y may re que st the suppo rt o f the SGMAP in do ing this. E ac h ministry divides its pro gramme into areas fo r prio rity ac tio n and refo rm pro jec ts, whic h it then implements. Depending o n the needs expressed by the ministries, the SGMAP

teams will inter vene either befor e the r efor m pr

• gr

amme is launched to assist in defjning

the a ppro a c h to b e a do pte d o r during the implementatio n stage in suppo rt o f the depar tments c har ged with implementing it.

T his ad hoc suppor t is in all c ases designed

to ac hie ve imme diate c o nc re te re sults in terms o f the quality o f the servic e pro vided a nd public se rva nts’ wo rking c o nditio ns. T he c hang e s intro duc e d are base d o n a pa rtic ipa to ry a ppro a c h, whic h e na b le s se nio r manage me nt to take o wne rship o f the pro c e ss a nd e nc o ura g e s the pub lic servants invo lved to c o ntribute to wards it. F

• llo wing trials at se le c te d site s, the re sults
• b ta ine d will the n b e d e plo ye d thro u-

g ho ut the o rg a nisa tio n using a c a re fully de fine d pro je c t ma na g e me nt me tho d. T he aim o f SGMAP suppo rt is to ensur

e that the depar tment or agenc y is in a position to manage the pr

• c ess independently as

quic kly as po ssible , thro ugh the transfe r o f skills and tools to assist in r efor m and c hange management. An example of support for departments and age nc ie s: impro ving the o pe ratio nal perfo rmanc e o f the Regio nal Health Agen- cies (Agences régionales de santé, ARS). I n 2012, two year s after they wer e effec tively se t up, the ARS had a c le ar visio n o f the ir primary missio ns and the re so urc e s avai- lable to them, but were no t yet in a po sitio n to pe rfo rm so me o f the tasks e ntruste d to the m a s e ffic ie ntly a s ha d b e e n ho pe d. What the y ne e de d at that po int was he lp in mo ving into the se c o nd stag e o f the ir deplo yment, thro ugh wo rk o n their internal

• rganisation and their ac tual performanc e.

T he SGMAP the re fo re inte rve ne d to sup- po rt the Se c re tary Ge ne ral o f the Ministry

• f He a lth in la unc hing a pro g ra mme to

stre amline and re fo rm the pro c e sse s use d within the ARS, fo c usse d a ro und thre e

• b je c tive s: improving the quality of the

ser vic e pr

• vided, ensur

ing better wor king conditions for the agencies’ employees and

managing the workload more effjciently.

Go ve rnme nt mo de rnisatio n: simpler, more effjcient and fairer public services 7

Developing digital solutions for users

What is a digital solution?

Public se rvic e use rs inc re asingly fre que ntly wa nt to use the Inte rne t a nd mobile

a pplic a tions to o b ta in informa tion a nd guidanc e, to c arry o ut administrative pro -

cedures and to exercise their rights. They a lso wa nt to use the se c ha nne ls to inte - rac t with public se rvants in o rde r to o btain information, ask questions or explain their pe rso nal c irc umstanc e s. All this ha s b e c o me p o ssib le tha nks to info rm a tio n a nd c o m m unic a tio ns

• technologies. A growing number of servic es

are no w ac c e ssible o n the I nte rne t, via a c o mpute r, a mo bile pho ne o r inte rac tive ter

• minals. Digital ser

vices also enable public

servants to wo rk differently, in partic ular by

doing away with the need to keep asking for the same suppor ting documents.

Go ve rnme nt mo de rnisatio n: simpler, more effjcient and fairer public services 8

Examples:

• 1. On ave rag e , e ac h ye ar a busine ss will

have to pro vide go vernment departments a nd a g e nc ie s with de ta ils o f its turno ve r fjfteen times and information on staff num- be rs te n time s. T hre e o ut o f fo ur busine sse s c o nside r that do ing away with re pe ate d de mands fo r the same info rmatio n sho uld be a prio rity fo r g o ve rnme nt. T he inte rmi- niste ria l pro g ra mme ‘ Dite s-le no us une fo is’ [T

ell us once] launc he d at the CIMAP

[Interministerial Government Modernisation Co unc il] meeting on 18 Dec ember 2012 and spo nso red by the SGMAP, is designed to signifjcantly reduce the administrative burde n o n busine sse s. T he aim be twe e n now and 2017 is to reduce by 50% the amount of r

edundant infor mation

businesses are aske d to pro vide . T he dig ital to o l will for example enable the prior completion and the digitisatio n o f administrative fo rms that busine sse s are re quire d to c o mple te , in particular to enable the exchange of info rmatio n be twe e n the diffe re nt de part- ments and agenc ies.

• 2. ‘mon.se rvic e - public .fr’ g ive s p e o p le

the o ptio n o f o pe ning an o nline pe rso nal a c c o unt in o rde r to fa c ilita te a c c e ss to servic es:

• over 5 million users have already opened

an ac c o unt,

• 1 million online transactions are

completed

• n that website every year, for example

transac tio ns c o nne c te d with c hang e s o f c o ntac t details o r o nline registratio n o n the elec to ral ro ll,

• 29 million forms

are downloaded every ye ar.

Go ve rnme nt mo de rnisatio n: simpler, more effjcient and fairer public services 9

Reforming government information and c ommunic ations systems

Infor mation and c ommunic ations systems are to be found e ve rywhe re throughout government departments and agenc ies.

T he y a re to b e fo und a t e ve ry le ve l o f g o ve rnme nt inc luding the Sta te b udg e t (revenues, expenditure, pay), cultural affairs, de fe nc e and diplo mac y and are invo lve d in e ve ry inte ra c tio n b e twe e n the c itize n a nd g o ve rnme nt, inc lud ing the sta rt o f the sc ho o l a nd unive rsity ac ademic years, renewal o f identity do c u- me nts (ide ntity c a rds, pa sspo rts, driving lic enc es) and c usto ms c learanc e. As the d ire c to ra te in c ha rg e

• f the

g o ve rnm e nt’ s info rm a tio n syste m strategy, the Inte rministe ria l Dire c to ra te

fo r Info rma tio n a nd C o mmunic a tio ns Syste ms (DI SI C) is wo rking to de c o mpart- me nta lise a nd mo d e rnise g o ve rnme nt info rmatio n syste ms, thro ugh the intro duc - tio n o f e nhanc e d inte rministe rial o ve rsight. T he DI SI C has fo ur o peratio nal missio ns:

• it provide s g uida nc e fo r a ll p la ye rs

invo lve d in g o ve rnme nt info rma tio n systems, by defjning standards and bench- marks, sets o f rules and best prac tic e whic h should gover n the development of infor ma- tio n systems in all go vernment departments and agenc ies;

• it pr
• vides over

sight o f info rmatio n system

pe rfo rma nc e a nd risk ma na g e me nt, b y impro ving the transpare nc y o f c o sts and the va lue fo r mo ne y o f info rma tio n a nd c o mmunic atio ns system (I CS) pro jec ts;

Go ve rnme nt mo de rnisatio n: simpler, more effjcient and fairer public services 10

• it imple me nts programme s fo r syste m

sha ring b e twe e n g o ve rnme nt d e p a rt- ments and agencies; one example of this is the Go ve rnme nt I nte rministe rial Ne two rk (RI E ), whic h has bro ught to ge the r a do ze n existing communications systems

• it suppo rts a nd a dvise s ministrie s,
• p e ra to rs a nd a ll the p la ye rs invo lve d

in info rma tio n a nd c o mmunic a tio ns syste ms o n the digital side o f go ve rnme nt mo dernisatio n

Go ve rnme nt mo de rnisatio n: simpler, more effjcient and fairer public services 11

Sharing public data

What ar e public data?

P ublic data c onsist of infor

mation gener ated by gover nment depar tments and agenc ies in the perfo rmanc e o f their missio ns, whic h ar e neither pr ivate nor sec ur e data. T he law gr ants the c itizen fr

ee access to those data

and the r

ight to r e-use them. By o pening up

public data, we c an ac hieve:

• g re a te r tra nspa re nc y a nd improve d

access to info rmatio n fo r c itizens;

• greater user involvement in the de sig n
• f public servic es;
• furthe r

str e amlining in the wa y g o ve rn-

me nt de partme nts and age nc ies o pe r ate;

• more effjcient public administratio n;
• mor

e innovation o n the part o f

go ve rn- ment and ec o no mic o perato rs. Within the SG MAP, the Eta la b unit identifjes sets of public data generated by

gover nment, suppor

ts their uploading to the

data.gouv.fr

website, and suppor ts the r e-use

• f tho se data, by go ve rnme nt, busine sse s

and c itize ns. I t wo rks to ge the r with public institutions and loc al author ities.

Go ve rnme nt mo de rnisatio n: simpler, more effjcient and fairer public services 12

• At the beginning of 2013, thanks to

240 data producers, over 350,000 data sets are already online. For example on

data.gouv.fr, you can fjnd information on

c r imes r epor ted by polic e depar tments and gendarmerie units in each département, c o mple te da ta o n the 2013 b udg e t b ill, bro ke n do wn by ministry, pro gramme and a llo c a tio n, o r a g a in da ta o n he a lthc a re expenses reimbursed by health insurance funds, bro ken do wn by regio n. Within the go ve rnme nt se rvic e , E

talab has set up and r uns a ne two rk o f ‘Ope n Data

Co o rdinato rs’ in o rder to develop the Open

Data str ategy and to ensure that it is tailored

to the o bje c tive s o f e ac h de partme nt o r agenc y. Part o f E talab’s missio n is to set up,

r un and develop a c ommunity of r e-user s

with the aim of enc our aging pr

• jec t pr
• mo-

ters to partic ipate in a natio nwide c o mpeti- tio n, Dataconnexions. For example, in 2013, K e l Quartie r wo n the prize awarde d in the Ge ne ral Public Se c tio n. K e l Quartie r he lps people in France to fjnd the right area to live in by pro viding ac c ess to all the info rmatio n they need.

Go ve rnme nt mo de rnisatio n: simpler, more effjcient and fairer public services

13

Cultivating modernisation within government

I n or de r to mode r nise gove r nme nt, e ach playe r in the public se c tor must take

• wne rship of imple me ntation of the

r e for ms. The SGMAP [Secretariat-General for Go ve rnme nt Mo de rnisatio n] is c o mmitte d to intro duc ing a c ulture o f mo de rnisatio n and inno vatio n within go ve rnme nt. T he re are vario us me ans o f disse minating be st prac tic e in terms o f go vernment refo rm:

• training for senior civil servants

Example: T he State Mo de rnisatio n Sc ho o l (Éc o le d e la mo d e rnisa tio n d e l’ Éta t) pro vide s se nio r c ivil se rvants with training abo ut the issue s and kno w-ho w invo lve d in mo dernisatio n: 100 training c o urses, o ver 2 200 partic ipants have alre ady re c e ive d training, 98% of participants recommend the pro gramme s, 6 se ssio ns c o mple te d in Paris

• forums for feedback and exchange of

b e st pra c tic e in the re fo rm pro c e ss fo r pub lic se c to r ma na g e rs (me e ting s a nd public sec to r manager c o ho rts).

All the latest news on government modernisation on

modernisation.gouv.fr

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