The Scottish Government’s been busy in its first few months
of office. As well as the Anti-Sectarianism Act, which has even made the news
in Engerland, we’ve had a budget, this week’s Regeneration Strategy and the
Cities Strategy is on its way. However, the Big Thing for me was the
announcement on Wednesday of a refreshed National Performance Framework (NPF).
This hasn’t received much attention; in fact as one of my Twitter followers put
it: “ooh National Indicators *squeee*”
The NPF was launched as part of the SNP minority Scottish
Government’s first budget in 2007. I heard the Cabinet Secretary for Finance
and Sustainable Growth (to give him his full title) John Swinney MSP describe
it as his “greatest achievement”. It didn’t receive much attention then, but it
really matters. To give an idea of this, the central “Purpose” of the NPF is:
“To focus Government
and public services on creating a
more successful country, with opportunities for all of Scotland to
flourish, through increasing sustainable economic growth.
My emphasis added. Why? Because this is about all public services. Community Planning
Partnerships, led by local authorities, including health boards, the Police,
Fire and Rescue Service, third sector and private sector have to agree Single OutcomeAgreements with the Scottish Government describing how they will work to
achieve the NPF and their priorities within it.
All QUANGOs, NDPBs and other agencies have to include how they will meet
national outcomes in their business plans and other strategies.
I worked on the outcome focus a lot in my time as a Civil
Servant with the Scottish Government. The “outcome focus” in public management
came from experience in America (usually at State level) and New Zealand in the
1990s, where the output focus was making government activity measureable but
still wasn’t producing effects on society. The idea now has evangelists; in
global organisations like the World Bank; and also policy entrepreneurs like
Mark Friedman, who made a big impact in services for children and young peoplein the last Labour UK Government. Scotland itself did the policy transfer from
the Commonwealth Virginia and the “Virginia Performs” site; we have the “ScotlandPerforms” scorecard. I understand why it’s so beguiling. As Mark Friedman points
out, if you set out your aims in a clear and obvious way, linked to indicators
then you will make a difference. Especially as you can measure it. Scotland has
actually been at it for years.
The old Scottish Executive took to using outcome agreements
to performance manage ring-fence funding streams, including the BetterNeighbourhood Services Fund (2001), the Community Regeneration Fund (2005-8), and
Community Safety Fund. The NPF was being drafted by Civil Servants in Saint
Andrew’s House from autumn 2006, before the SNP victory in May 2007. The original just had 14 outcomes (didn’t
have the one on national identity), each of which was linked to a target and an
indicator.
I have three problems with the outcomes approach. Firstly, it
doesn’t work on many levels. For example, in New Zealand the focus on marginal
budget changes to fund swanky projects that might produce an outcome led to
Government departments forgetting to do things like run schools and hospitals.
The move to performance budgeting, or outcome budgeting, was the Holy Grail for
the Scottish Government. The Scottish Parliament Finance Committee, among
others, kept asking for it. The basic intellectual challenge was how do you buy
one “we live longer healthier lives”? It seems, by building an enormous
measurement bureaucracy. Scotland kind of went down this line with the vast
amounts of time and effort spent on the local indicators project. There’s also
a lot of waffle in the evangelists’ literature about how outcomes matter
because people understand them. This is why we should have scorecards to engage
people. The fact that nobody outside certain groups of public sector workers
and politicians in Scotland knows about, or fully understands, the NPF and
outcome approach shows what complete and utter bollocks this is. This is still
managerialism of the worst sort.
Secondly, in classic NPM way, it depoliticises policy
making. It takes “what matters is what works” to a terrifying conclusion. What
matters is meeting the outcome. For example, the outcome “We have tackled the
significant inequalities in Scottish society” is meant to be predominantly met
by meeting the Solidarity Purpose Target of increasing the proportion of income
earned by the lowest three deciles. However, Alex Salmond believes we can do
this without redistributive taxation. The limits to Holyrood’s power also mean
that the way we’re going to meet many of the outcomes is through “early
intervention” which I’ve already expressed my discomfort at. Technically if you
have an outcomes approach you don’t actually need policies and strategies. You
just work towards your outcomes. They are your strategy. This has kind of come
true in Scotland with the three social policy frameworks, Achieving OurPotential, The Early Years Framework and Equally Well. These are just vague guides as to how the Scottish Government and it's "partners" will go about meeting their outcomes forever more and day. You can’t disagree with
an outcome, so you can’t have political debate about them. And what’s worrying
is this is why, I think, Civil Servants in Victoria Quay and Saint Andrew’s
House like them so much. I also think it's no accident that the biggest governmental supporters of the outcomes approach are Republican Governors in the US and right wing governments elsewhere in the world.
Finally is a lazy Foucauldian argument. Come on, look at it,
the Scottish Government want to change the whole
country no matter what. In terms of governmentality the critique writes
itself. I did some work on national outcome 8: “We have improved the life
chances for children, young people and families at risk” (N.B. you’re not
supposed to number them, as they’re all equally important) and used to joke
with colleagues that we don’t have “NEETs” or “NEDs” but “national outcome 8s”.
All policy Civil Servants in the Scottish Government would turn up to meetings
with their A4 laminated copy of the NPF to make sure they were meeting
outcomes. This is a lazy argument, but it also highlights why it’s difficult to
implement – although it is supposed to elide politics, since it is combined
with the Council Tax freeze it’s actually acerbating national-local tensions.
Basically, if you sorted out health outcomes in Glasgow you’d solve Scotland’s
problem with “longer healthier lives”, but Glasgow Council are more interested
in a good start for their kids. If you taxed the oil magnates of Aberdeen,
Scotland wouldn’t have “significant inequalities” to be tackled. Orkney doesn’t
have crime; the local newspaper leads on stories like “local man falls off wall” (can't find the original article, but it did exist).
Their SOA entry for the national outcome “We live our lives safe from crime,
disorder and danger” just makes me laugh.
Having said all this, I do really like the new, sixteenth national
outcome: “Our people are able to maintain their independence as they get older
and are able to access appropriate support when they need it”.
This is basically a cut-down version of a paper I wrote earlier this year for a special issue of a journal on Scottish social policy after devolution. It got rejected because I don’t know enough of the “theory” (I wasn’t referencing the most up-to-the-minute articles on the subject) and the reviewers took issue with my “ethnography” of reporting as a former Civil Servant. But I do feel the NPF and the outcome-approach in Scotland does need critiquing from academe. It cannot just be dismissed as “performance management” or another boring incarnation of the NPM. If we’re not careful then the will to “meet outcomes” could become state injustice and violence against individuals and families because it meets Scotland’s ambitions to “flourish”.
This is basically a cut-down version of a paper I wrote earlier this year for a special issue of a journal on Scottish social policy after devolution. It got rejected because I don’t know enough of the “theory” (I wasn’t referencing the most up-to-the-minute articles on the subject) and the reviewers took issue with my “ethnography” of reporting as a former Civil Servant. But I do feel the NPF and the outcome-approach in Scotland does need critiquing from academe. It cannot just be dismissed as “performance management” or another boring incarnation of the NPM. If we’re not careful then the will to “meet outcomes” could become state injustice and violence against individuals and families because it meets Scotland’s ambitions to “flourish”.
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