ANAO - BPG Policy Implementation

Successful
Implementation of
Policy Initiatives
Better Practice Guide
October 2014
Commonwealth of Australia 2014

ISBN 0 642 81504 6 (Print)
ISBN 0 642 81505 4 (Online)
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Foreword by the Secretary of the

Department of the Prime Minister and Cabinet
and the Auditor-General
All Governments expect their policies to be implemented on time, on budget and to expectations. For that
to occur, implementation considerations must be a fundamental part of all stages of policy development.
This Better Practice Guide was first released in 2006. It has now been reviewed and updated to incorporate
key developments since that time.
We believe that there is real value in drawing together lessons from experience about how to successfully
implement government policies, and in using those insights to strengthen performance in the future.
There are always lessons to be learnt from the implementation of most policies, not least the importance of
good planning. This guide offers advice to public sector senior leaders on the successful implementation
of policies so that unintended consequences, which deny the community the full benefits of a new policy
or waste public resources, can be avoided.
The messages contained in the guide apply not only to new initiatives but also to adjustments or changes
to existing measures or areas of regulation. The advice is equally relevant to senior leaders advising
on policy proposals and those responsible for implementing policy initiatives. All have to collaborate to
ensure success.
Our current environment involves government actively considering the extent and limitations of its
service delivery and regulatory roles, at a time of significant pressures on public finances. Stakeholder
and community engagement and interaction with government is becoming broader and more intense,
enabled by the advent of the internet, social media and other transactional and communication methods.
These developments all have implications for the successful implementation of policies.
While some policies can be developed and implemented with long lead-times, others must be developed
and implemented quickly, even rapidly, on occasion. The advice presented in this guide has been
developed in recognition of the pressures on the modern public sector, and taking into account
experience gained in recent years.
The guide contains some clear messages, including:
ff strong and ongoing leadership is critical, regardless of whether the policy and its implementation sits
with one entity or involves several;
ff there are essential capabilities and preconditions for implementation to succeed that involve an
inclusive approach, sound processes, the effective use of resources and the consideration of
implementation at every stage of policy development;
ff the identification and management of risk is not a one-off exercise, but a key element that is required
at all stages of policy development and implementation; and
ff policies and programs, when implemented, require active management to be successful, and this
involves: measurement, analysis, consideration of feedback and complaints, evaluation and review,
calibration and adjustment.
The checklists included in this guide are a tool to be used by senior leaders. They reflect the collective
experience and wisdom of senior executives and managers across the Australian public sector. The
guide quotes from interviews with many public sector chief executives, and we acknowledge that the
apparent simplicity of those quotes sometimes belies the often challenging way in which the experience
behind them was gained. We sincerely thank all those who contributed their ideas and advice.
We encourage the use of this guide to assist public sector leaders in their stewardship of public resources
invested in policies and programs that significantly affect the interests and wellbeing of the Australian
community.
I J Watt
Ian McPhee
Secretary Auditor-General
Department of the Prime Minister and Cabinet
October 2014
October 2014
ii
Better Practice Guide | Successful Implementation of Policy Initiatives
Contents
Foreword by the Secretary of the Department of the Prime Minister and Cabinet and the
Auditor-General................................................................................................................................................................... i
Focus and Structure of the Guide...........................................................................................................................1
Focus of the guide......................................................................................................................................................3
Structure of the guide................................................................................................................................................5
Part 1 Introduction to Successful Implementation.......................................................................................7
1
Essential preconditions and capabilities for successful implementation......................................9

Key considerations for senior leaders...................................................................................................................9
Considering implementation at every stage of policy development....................................................9
Strong leadership, an inclusive approach, sound processes and the effective use of
resources..............................................................................................................................................................11
Implementation: a key part of policy design............................................................................................. 13

Key considerations for senior leaders................................................................................................................ 13
Making implementation an important consideration at every stage of policy design................. 13
Using the experience of the implementers during policy development........................................... 15
Identifying, assessing and advising of risks............................................................................................. 16
Adequate consideration of the timeframe for the policy to be implemented................................. 17
Consideration of contingency measures and assumptions made.................................................... 18
Record keeping and accountability............................................................................................................ 18
Part 2 Building Blocks for Successful Implementation........................................................................... 19

3 Governance ............................................................................................................................................................. 21
The important role of the senior responsible officer.............................................................................. 23
Whole-of-government considerations........................................................................................................ 24
Steering committees and taskforces......................................................................................................... 26
Effectiveness of arrangements for monitoring and review................................................................... 26
4
Managing risk ......................................................................................................................................................... 29

Identifying and assessing risks early.......................................................................................................... 31
Working with other parties............................................................................................................................. 32
Managing risks through implementation................................................................................................... 33
Managing the consequences of riskwhen to escalate..................................................................... 33
iii
Engaging stakeholders....................................................................................................................................... 35
Setting the objective for consultations and the identification of stakeholders.............................. 37
Managing stakeholder interactions............................................................................................................. 39
Using information from stakeholders.......................................................................................................... 41
Communication and information strategies.............................................................................................. 41
Managing conflicts of interest....................................................................................................................... 41
6 Planning..................................................................................................................................................................... 43
The importance of early planning................................................................................................................ 43
Implementation plan........................................................................................................................................ 45
Consideration of time, costs and resources required........................................................................... 46
Having manageable steps and milestones............................................................................................... 48
Change management issues........................................................................................................................ 48
Managing changes to plans.......................................................................................................................... 49
Early planning for reviews and evaluation................................................................................................. 49
7 Resources................................................................................................................................................................. 51
Consideration of staffing and skills required to implement the initiative.......................................... 51
Financial resources.......................................................................................................................................... 53
Systems resources........................................................................................................................................... 54
8
Monitoring, review and evaluation: a basis for active management.............................................. 57

Key performance indicators.......................................................................................................................... 57
Actively engaging stakeholders.................................................................................................................... 59
Quality and reliability of information............................................................................................................ 60
Making good use of information.................................................................................................................. 60
Consider the costs of active management............................................................................................... 60
How will the initiative be monitored during implementation?.............................................................. 60
Review of progress and initiating any corrective action....................................................................... 61
Evaluating the quality of the implementation............................................................................................ 62
iv
References and further information....................................................................................................................... 65

References.................................................................................................................................................................. 65
Further information................................................................................................................................................... 65
Cabinet Implementation Unit......................................................................................................................... 65
Australian National Audit Office.................................................................................................................... 66
The Department of Finance........................................................................................................................... 66
Australian Public Service Commission...................................................................................................... 66
Australian Bureau of Statistics...................................................................................................................... 66
Index..................................................................................................................................................................................... 67
Figures
Figure 1: Better practice considerations for successfully implementing policy initiatives....................6
Figure 2: Options for the delivery of a policy initiative................................................................................... 15
Figure 3: Roles of the senior responsible officer............................................................................................ 23
Figure 4: Example content for a multi-party agreement.............................................................................. 25
Figure 5: Reasons for engaging with stakeholders....................................................................................... 38
Figure 6: Forms of stakeholder interaction....................................................................................................... 40
Figure 7: Example contents for an implementation plan.............................................................................. 47
Figure 8: Benefits of capturing learnings.......................................................................................................... 63
Checklists of key implementation considerations
Essential preconditions and capabilities........................................................................................................... 10
Implementation: a key part of policy design.................................................................................................... 14
Governance................................................................................................................................................................ 22
Managing risk............................................................................................................................................................ 30
Engaging stakeholders........................................................................................................................................... 36
Planning....................................................................................................................................................................... 44
Resources................................................................................................................................................................... 52
Monitoring, review and evaluation....................................................................................................................... 58
Focus and Structure

of the Guide
Focus of the guide
Focus of the guide

Successful implementation of policy initiatives requires early, informed and
systematic consideration of implementation.
The implementation of Australian Government policy initiatives is one of the key responsibilities of
government entities. In recent years there has been an increasing focus on, and a community expectation
of, sound policy implementation and the seamless delivery of government policieson time, within
budget and to an acceptable level of quality.
The challenges involved in successful policy implementation have been highlighted in several Australian
National Audit Office (ANAO) audit reports in recent years.1 The importance of a systematic focus on
implementation has also been highlighted by the work of the Cabinet Implementation Unit (CIU) within
the Department of the Prime Minister and Cabinet, Gateway Reviews and the ICT Two-Pass Review
process, both sponsored by the Department of Finance (Finance), as well as the Capability Reviews
sponsored by the Australian Public Service Commission (APSC).
This guide identifies better practice considerations when implementing a policy initiativethe act of
translating policy into realityso that intended benefits are realised. Consequently, there is a particular
focus on the planning and development phases, which precede the delivery phase. The guide does not
address ongoing management and delivery of a program, other than to emphasise the need for active
management to fully realise program objectives. Active management relies on: data measurement and
analysis; stakeholder engagement and feedback; and evaluation and review; all of which inform whether
calibration and adjustment is required.
The guide is intended primarily for public sector senior leaderschief executives (CEOs) and senior
executivesadvising on policy proposals and responsible for implementing policy initiatives. That said,
implementation is a shared responsibility and the information contained in the guide is also relevant for
those supporting senior leaders.
A number of additional tools, methodologies and reports are available to help inform public sector senior
leaders and staff involved in aspects of implementation. These take the form of guidance from the CIU2
and Finance3, Gateway Review Lessons Learned reports and the suite of gate specific lessons learned
1 Relevant audit reports include: ANAO Audit Report No.22 201314 Air Warfare Destroyer; ANAO Audit Report No.12 201011
Home Insulation Program; ANAO Audit Report No.9 201011 Green Loans Program; and ANAO Audit Report No.41 200809
The Super Seasprite. In particular, the reports on the Air Warfare Destroyer (pp.3334); the Home Insulation Program
(Chapter 9); and the Super Seasprite (Appendix 1) each contain a discussion of the lessons learned identified by the ANAO.
2 For guidance provided by the CIU, see <http://www.dpmc.gov.au/implementation/> [Date accessed: 17March2014].
3 See the Finance website at <http://www.finance.gov.au/gateway/> [Date accessed: 17 March 2014]. Complementing this
information, the Finance website also offers further advice and guidance on ICT investment and procurement.
documentsboth published by Finance4, reports of Capability Reviews undertaken by the APSC5, ANAO
Better Practice Guides6, and various reports from the ANAO.
The focus of this guide is on the overarching principles for effective and successful implementation,
drawing on the experience of entities to date, as well as lessons learned from overseas. The aim is to
assist senior leaders to oversight the implementation of policy initiatives and to obtain assurance that
appropriate approaches and methodologies are being followed.
Entities may wish to expand on the guide by providing guidance for those at the coal face. For many
entities this may simply involve some realignment to existing documentation and guidance.
4 Refer to <http://www.finance.gov.au/publications/gateway-publications/lessons-learned.html> and <http://www.finance.

gov.au/gateway/gate-specific-lessons-learned.htm> [Date accessed: 28 May 2014].
5 For the Capability Reviews conducted by the Australian Public Service Commission, see <http://www.apsc.gov.au/apsreform/current-projects/capability-reviews> [Date accessed: 17 March 2014].
6 Relevant ANAO Better Practice Guides include: Public Sector Governance: Strengthening performance through good
governance, June 2014; Administering Regulation: Achieving the right balance, June2014; Implementing Better Practice
Grants Administration, December2013; Developing and Managing Contracts: Getting the right outcome, achieving value for
money, February2012; Fraud Control in Australian Government Entities, March 2011; Strategic and Operational Management
of Assets by Public Sector Entities: Delivering agreed outcomes through an efficient and optimal asset base, September
2010; and Planning and Approving Projects an Executive Perspective: Setting the foundation for results, June 2010. These
Better Practice Guides are available from the ANAO website <http://www.anao.gov.au/Publications/Better-Practice-Guides>.
Structure of the guide

Structure of the guide
Part 1 of the guide focuses on key areas to guide planning and obtain assurance for senior leaders.
It begins by considering the essential preconditions and capabilities for successful implementation,
including the key role played by an entitys leadership. Part 1 of the guide also highlights the importance
of giving adequate attention during policy development to implementation risks and other practicalities
associated with the implementation phase. This aspect of the guide is not intended to provide advice
on policy development, but on matters that may influence effective delivery on the ground.
Part 2 of the guide then addresses six key building blocks for successful implementation. These are:
governance (page 21); managing risk (page 29); engaging stakeholders (page 35); planning
(page 43); resources (page 51); and monitoring, review and evaluation: a basis for active
management (page57).
The six building blocks described in this guide align to the focus areas for effective implementation
planning highlighted by the CIU7albeit they are presented in a different sequence. Key aspects of the
seventh focus area identified by the CIUmanagement strategyare addressed in this guide in the
discussion on Essential preconditions and capabilities in Part 1. These differences reflect the differing
purposes of this guide, which focuses on implementation challenges through the lifecycle of a policy
initiative, and the CIUs Guide to Implementation Planning, which is primarily intended to assist entities
prepare a succinct implementation plan for Cabinet consideration.
The nature of the policy being implemented may involve developing and managing contracts, establishing
and administering grants programs, planning and approving projects, managing assets or developing
and administering regulatory schemes. All such initiatives require consideration of resource management
requirements and government-wide policies such as those relating to fraud control and government
advertising. As previously mentioned, the ANAO has published a range of Better Practice Guides to
provide entities with additional guidance on a range of such matters.
A diagrammatic representation of better practice considerations for successfully implementing policy
initiatives is presented in Figure 1 on page6.
7 Department of the Prime Minister and Cabinet, Guide to Implementation Planning, <http://www.dpmc.gov.au/implementation/
planning.cfm> [Date accessed: 17 March 2014].
ma
ve
A cti
Governance
Monitoring,
review and
evaluation
Active
management
Source: ANAO.
ent
Considering implementation
during policy design, leadership,
inclusive approach, sound
processes and effective use
of resources
gem
Essential
preconditions
and capabilities
Managing
risk
na
Planning
ma
ge
na
iv
Engaging
stakeholders
ct
en
Figure 1: Better practice considerations for successfully implementing policy initiatives
Resources
Part 1
Introduction to Successful
Implementation
1 Essential preconditions and capabilities

for successful implementation
Part 1 Chapter 1
The essential preconditions and capabilities for successful implementation include:

considering implementation at every stage of policy development; and
strong and ongoing leadership, an inclusive approach, sound processes and the
effective use of resources.
This part of the guide outlines a number of key preconditions and capabilities for the successful
implementation of policy initiatives. These include the fundamental requirement that implementation be
considered at every stage of policy development. Addressing implementation issues as an afterthought
or partly through the process introduces substantial risk and can compromise successful policy
implementation.
The implementing entity also requires clear capabilities and sufficient capacity to successfully implement
policy initiatives. This includes strong and ongoing leadership, an inclusive approach, sound processes
and the effective use of resources. An inclusive approach will involve the use of consultative governance
and coordination arrangements designed to harness relevant skills and expertise from within the entity,
the wider public sector, and externally, as necessary.
A checklist of key implementation considerations relating to essential preconditions and capabilities is
presented on the next page.
Key considerations for senior leaders

Considering implementation at every stage of policy development
Fully considering implementation issues at every stage of policy development is a shared responsibility
in particular, it is essential that there is a clear and shared understanding of the policy objectives and
intended outcomes. All entitiescentral agencies, policy entities and implementing entitiesshould
be ever-mindful of the need to identify and involve relevant parties at the earliest possible stage of
developing new policy and do everything possible to ensure that this, in fact, occurs. Establishing sound
relationships, and the capability to engage effectively with other entities, requires personal leadership
by an entitys senior leaders. The senior leaders can also promote a collegiate approach by setting a
clear example for their staff.
Get the implementation agencies in right at the beginning of the policy

process. Failure to do so drives up risk.
Source: Chief Executive interviews
Checklist of key implementation considerationsEssential

preconditions and capabilities
The following checklist may help an entitys senior leaders to assess whether the essential preconditions
and capabilities for successful implementation are in place.
Key questions: Essential preconditions and capabilities for successful implementation
;; What process applies to ensure that implementation issues are considered and agreed when
policy initiatives are being discussed?
;; Have lessons from previous implementation initiatives been identified and taken into account in
the design of this implementation?
;; Does the top leadership group regularly discuss and review progress and performance of major
initiatives?
;; Where implementation involves several entities, are robust governance arrangements in place,
with clear leadership and accountability? Are open and effective communication channels in
place?
;; Is the right person leading the project? Is implementation planning led by skilled and
experienced personnel?
;; Is there an entity-wide process to prompt action when things are likely to, or have, gone wrong
and to avoid surprises for the Government?
;; Are there regular and candid discussions with the responsible minister and the ministers office
about the progress of major initiatives?
;; What advisory and quality assurance mechanisms are in place?

;; Does the entity foster an environment where mistakes can be admitted? Are lessons of what
went wrong and why fed back into the entitys processes for the benefit of future initiatives?
10
Some entities have both a policy formulation role and the responsibility for policy implementation. The
requirement to involve implementation staff at the earliest possible time is just as important in these
cases, and effective internal communication and coordination processes will facilitate successful policy
development and implementation.8
Strong leadership, an inclusive approach, sound processes and the effective use of resources
Part 1 Chapter 1
On occasion, implementation will involve several entities. In these situations it is essential to establish
clear governance and accountability arrangements (everyone needs to be clear as to who is in charge)
underpinned by a commitment to work cooperatively. In these circumstances, there is also a requirement
on senior leaders to demonstrate leadership by example, so as to promote co-operation and avoid
territoriality. An increasingly common feature of service delivery is collaborative or co-production
arrangements between government and non-government entities. These potentially complex arrangements
require a leadership focus on issues of stakeholder engagement, risk management and accountability.
Good governance is an essential precondition for successful implementation.9 It focuses on two key
requirements for public sector entities:
ff performancegovernance arrangements and practices that are designed and operate to shape the
entitys overall results, including the successful delivery of government programs and services, and
ff accountabilitygovernance arrangements and practices that are designed and operate to provide
accountability for results, decisions and actions to the entitys leadership, the Government, Parliament
and the community.
Management Boards or Executive Committees involving the CEO and other senior leaders, which have
a stewardship role for the entity as a whole, have an important role to play in considering the progress of
major initiatives. In particular, they can actively engage with and question those directly responsible for
managing key initiatives and risks, and promote a collaborative approach to ensure that organisational
silos or other impediments do not frustrate successful implementation. Views of front-line delivery staff
are also often very useful. Feedback and advice from audit and risk committees, external stakeholders,
and other quality assurance mechanisms are also important in this regard.
To be successfully implemented, many policies require a range of enabling services and resources.
These can include:
ff well-established stakeholder engagement and communication channels
ff legal and financial services
ff risk management services, internal audit, fraud and compliance mechanisms
ff project management, information, communications and technology (ICT) and resource management
services
ff forms, system and process design services
ff feedback and complaints-handling mechanisms, and
ff review and evaluation teams.
8 Chapter 2 in Part 1, Implementation: a key part of policy design, discusses more fully the issues involved in considering
implementation at every stage of policy development.
9 Australian Government entities operate within the Commonwealth resource management framework, which also forms
the backdrop for the implementation and administration of government policies. The Public Governance, Performance
and Accountability Act 2013 (PGPA Act) consolidates in one Act the overarching governance, performance, resource
management, and accountability requirements for Commonwealth entities.
11
Involving relevant support services early in the initiative can assist entities avoid implementation design
gaps that might not otherwise be apparent until later stages of the project.
The senior responsible officer10 must ensure that all relevant capabilities are applied appropriately, noting
the existence of interdependencies and the need for sequencing effort. In some cases, both time and
resources may have to be made available to enable the development of the capabilities necessary to
properly support the implementation initiative. An important role for the entitys senior leaders involves
creating the environment in which those responsible for the resources assigned to implementing an
initiative understand and accept their particular accountabilities.
On occasion, consideration will need to be given to diverting effort from other activities. These prioritysetting decisions will often require consideration by the entitys Management Board or Executive
Committee, and for judgement to be exercised by the CEO or, on occasion, the responsible minister.
Entities should have mechanisms in place for transferring knowledge and learnings from previous
initiatives to new implementation teams. This includes drawing on the experiences of appropriate external
sourcessuch as other Australian Government entities, state and territory government entities and
private sector bodies.11
While ministers may not be happy to receive bad news, they at least
can then work with the CEO to devise strategies to fix the problem.
Bad news does not get better with age. What is inexcusable is for
the minister not to be told, or only be told part of the story.
Strong and professional working relationships between the entity, the responsible minister and ministerial
advisers, are also an essential precondition to the successful implementation of policy. Senior leaders can
help establish a productive relationship between the entity and minister which features open and regular
communication, the provision of realistic and candid advice, and the ability to agree on adjustments to
implementation arrangements if circumstances require.
It is also a management responsibility to promote a culture of providing timely advice to ministers on
implementation pressures, as well as successes.12
10 The key role of the senior responsible officer is discussed further in Chapter 3 in Part 2Governance.
11 Chapter 6 (Planning) and Chapter 8 (Monitoring, review and evaluation) in Part 2 discuss learning from past experiences in
more detail.
12 Part 2 of the GuideBuilding Blocks for Successful Implementation, discusses more fully the issues highlighted in this
section.
12
2 Implementation: a key part of policy design

A policy initiative is more likely to achieve its intended outcomes when the question
of how the policy is to be implemented has been an integral part of policy design.
Part 1 Chapter 2
It is essential to inform the Government of any significant risks to implementation

and proposed responses; particularly when rapid policy development and
implementation is required.
Providing well-founded policy advice to the Government is a core function of the Australian Public
Service. The Governments expectation is that better policy outcomes will be achieved through a culture
that emphasises adequate consideration of implementation challenges in the provision of policy advice.
Where implementation considerations do not receive sufficient and early attention, experience shows
that problems will arise during subsequent delivery of the policy. These problems may include: suboptimal delivery methods; over ambitious timeframes; resources not being available when required;
inappropriate skills or capability for the initiative; and insufficient consultation and contingency planning.
A checklist of key considerations relating to addressing implementation issues during policy design is
presented on the next page.

Making implementation an important consideration at every stage of policy design
How a policy is to be implemented should be an integral part of policy design. This requires, among
other things, a systematic focus on implementation at the policy design stage, identifying any risks
and barriers to implementing the policy, drawing on the practical experience of those who will have to
implement the policy, ensuring that any obstacles to delivery are understood, and feeding the learning
from implementation processes back into the policy process.
It really pays off to consider upfront how are we going to do it?

As shown in Figure 2 on page 15, there are likely to be several options for the delivery of a policy initiative.
Consideration and comparison of the capability of the entity to successfully implement the policy, and
of the costs, benefits, risks and opportunities of the options and barriers to implementation, increases
the likelihood of the Governments objectives being achieved.
Potential implementation methods can be tested in a variety of ways: through trials or pilots before
roll-out of the initiative; preparing formal analyses of the risks, impacts and costs of different policy
implementation options; consulting stakeholders and service suppliers; and where applicable, assessing
experience in other settings or jurisdictions.
13
Checklist of key implementation considerationsImplementation: a

key part of policy design
The following checklist may help senior leaders when considering whether implementation issues and
challenges have been adequately addressed during policy design. These questions are not about the
policy development process as such, but they warrant attention at the policy design stage to increase
the likelihood of good delivery.
Key questions: Considering implementation issues at every stage of policy design
;; Are the means of, and barriers to implementation considered when policy initiatives are discussed?
;; How is the priority of projects assessed against the other business priorities? Have resourcing
adjustments been made if required?
;; Are the policy and implementing entities fully aware of the Governments objectives and
priorities, including the drivers for the policy initiative or policy change, the anticipated benefits of
the change and how success is to be measured?
;; Have the views of key stakeholders been sought and considered?

;; Has the implementers knowledge, experience and capacity to respond been taken into
account during policy development?
;; Is there a common understanding of the risk appetite for the initiative between the policy and
implementing entities?
;; Is the Government sufficiently informed of the risks, challenges and practical aspects of the
policy that may have an impact on implementation, and the proposed responses?
;; Are proposed commitments and announcements being checked for delivery implications
before they are made?
;; Are the timeframe and results promised realistic and consistent with estimates of resources?
;; Where timeframe imperatives limit the opportunities to consider the breadth of implementation
issues, how will implementation risks be dealt with?
;; What processes are in place for the review and monitoring of implementation activities?
;; What processes exist to ensure that appropriate contingency planning occurs for all significant
projects?
;; Are there uncertainties in assumptions made in formulating the policy that may have
consequences for the success of implementation?
;; Have appropriate record keeping and accountability mechanisms been established?

14
Figure 2: Options for the delivery of a policy initiative

The policy initiative is delivered by:
State and
territory
government
entity
Team in the
responsible
entity
(in-house)
Cross-entity
(or whole-ofgovernment)
arrangement
Another type
of outsourcing
arrangement
or partnership
New entity
established
especially to
deliver the
initiative
Part 1 Chapter 2
Separate
government
entity
Nongovernment
provider under
contract to the
responsible
entity
or a combination of these options

Source: ANAO.
Engaging stakeholders at the policy design stageincluding in some cases, consulting more broadly with
the wider communitycan not only help to get the policy right but also to gain a sense of implementation
options and the barriers to implementation. Early stakeholder engagement also offers an opportunity to
get their buy-in to the policy design. The key question is whether the means of implementing or delivering
a policy is likely to work in practicewhether it hits the mark.
However, a number of practical considerations need to be addressed, particularly when involving outside
stakeholders. One of many possible examples is the need to manage Budget-sensitive matters that could
provide personal or corporate gain for the stakeholder involved. Suitable risk management strategies by
entities, such as confidentiality agreements, are needed for stakeholder management.13
It is essential to consider the implementation of an initiative in relation to other delivery and operational
activities of the entity. One option for implementation may become higher risk, or indeed may need to
be ruled out, simply because the necessary resources are absorbed by other activities. Alternatively,
assigning resources to the new task may undermine delivery of an existing higher-priority function.
Using the experience of the implementers during policy development

Central to determining how a policy is to be implemented is to engage those with implementation
skills, knowledge and experience during the policy development stage. This includes talking to staff
responsible for information and communications technology (ICT) about likely ICT-related support and
system development requirements.
13 Chapter 5 in Part 2Engaging stakeholders, outlines more fully potential issues involved in stakeholder interaction.
15
Such early engagement is important for assessing the practicability of a policy14, and might entail identifying
the relevant skills and experiences within and outside of the entityfor instance, specialist entities and
state and territory government entities. Drawing on such knowledge and experience may help identify:
ff innovation at the delivery front that opens up opportunities for new policy options
ff practical constraints that need to be overcome in order for the policy to deliver required results on
the ground, or
ff more reliable cost and uptake estimates.
You need to get implementers at the table early during policy

development, in particular to consider timing and how the policy
will be implemented.
Where there are established service delivery arrangements, a source of practical advice on implementation
considerations will be clear. In other cases, such as greenfield initiatives, it is important to identify, at
the earliest stage possible, sources of practical advice on implementation issues that are likely to affect
policy design, outcomes and timeliness.
Of course, the degree to which those with specialist implementation knowledge and experience are
engaged in the policy development process will vary, depending on the nature of the policy. However,
those with implementation experience, including front-line staff, will always have some useful contribution
to make. They generally will have better practical knowledge of what is likely to work and what is not.
Identifying, assessing and advising of risks

Sufficient consideration of major implementation risksboth within and external to the implementing
entityis essential during policy development. This includes agreeing on the risk appetite and identifying
risk treatments.
risk management is one of those disciplines [that] if done well,

will generally not be visible for all to see. Sadly, only risk management
failures attract attention, and headlines. Thus an organisations
leadership needs to compensate for this asymmetry by reinforcing
the positive outcomes of risk management action.
Source: Auditor-General15
It is imperative that risk assessments are sufficiently hard-nosed; that is, they do not present government
and other entities with an over-optimistic view of what will happen. It is a matter of adequately informing
14 National Audit Office, Modern Policy-Making: Ensuring Policies Deliver Value for Money, report by the Comptroller and
Auditor-General HC 289 Session 20012002, the Stationery Office, London, 2001, p. 42.
15 McPhee, Ian, Auditor-General for Australia, Effective Risk Management, paper presented to the Department of Parliamentary
Services, Canberra, February 2011, p.3.
16
the Government of any significant risks to implementation. While this is always important, it is particularly
so where rapid policy development and implementation is required. It is incumbent on the CEOs of public
sector entities to provide well-informed, timely, accurate and candid advice to ministers.
It is equally important that commitments and announcements are not made without consideration of
the delivery implications and risks, since the commitment or announcement stage is a key point at
which risk to the Government may arise. This may require policy developers to advise governments
about the delivery difficulties of a proposed policy, including risks relating to, or identified in the course
of, consultation, planning or negotiation.
Part 1 Chapter 2
The other benefit of sufficient consideration of risks at this stage is that it provides a better basis for
implementation when the initiative is rolled out. If risks to implementation are not identified early, then those
involved in the implementation are likely to be in a process of catch-up as unforeseen problems arise.16
Adequate consideration of the timeframe for the policy to be implemented

Overly ambitious timeframes are among the most common difficulties in implementation. Time pressures
can leave too little time to address factors for success, such as different options for program delivery,
consultation with implementers and stakeholders, or resource requirements and constraints. This can
result in substantial variances between resource estimates for an initiative and the resources that actually
have to be deployed to deliver the initiative successfully.
Of course, in some cases policy decisions may need to be implemented rapidly, with timeframes that
are far from ideal. This may be difficult to avoid in some circumstances.
You need to be clear on what you can dothis may need the CEO
to say that you may need extra time and money to deliver. Pressures
at the front end will often lead to miscalculations, which are paid for
at the back end.
In situations where timeframe imperatives have curtailed the consideration of implementation issues during
policy development, the risk to successful implementation down the track increases markedly. One of
the most pressing priorities for the senior responsible officer is to promptly reduce this risk by seeking
expert implementation advice and experience as soon as possible in the delivery phase.
Tight timeframes place even greater importance on review and monitoring activities to ensure that
practical problems do not reduce the anticipated outcomes.17
It is not uncommon for timeframe difficulties to arise after the policy decision and during implementation
simply because an overly optimistic view about practical implementation aspects was taken during policy
development. The risk, in these cases, is that decisions are made on the run, possibly with reduced
transparency and accountability. A disciplined approach to implementation issues is particularly important
when time pressures exist.
16 The practical risks to implementation are touched on throughout this guide and discussed more fully in Chapter 4 in Part 2
Managing risk.
17 Review and monitoring are discussed more fully in Chapter 8 in Part 2Monitoring, review and evaluation.
17
Consideration of contingency measures and assumptions made

Uncertainty is a fact of life in the implementation of most initiatives. It can flow both from the nature
of a policy and from the practical aspects of its implementation. Uncertainty means that appropriate
consideration of contingency measures will often be required.
Another consideration is that most policy decisions are informed by data and research of various types.
On occasions, the decisions may be based on lessthanperfect information or imprecise forecasts or
predictions of future trends or behaviour. For this reason it is important to consider the degree to which,
and in what ways, limits to data or other information may have a significant impact on implementation.
What will be the consequence of gaps in data or other information when the initiative is rolled out? For
example, uptake that is much higher or lower than expected may have implications for the staff numbers
needed to implement the program, the skills required of implementers, or the programs funding levels.
If the assumptions made about an initiative are clearly identified, along with their sensitivity to change,
then CEOs, ministers and those implementing the initiative can be better informed of the possible risks
and their consequences. An awareness of uncertainties and assumptions increases the chance of
successful implementation. This is particularly so in the implementation of initiatives that: involve safetynet provisions; are demand-driven; or are wholly new initiativesin such cases, there are practical
challenges to accurately estimating take-up rates.
Accuracy of projections on expenditure and uptake is the hardest thing

to get right [during policy design and implementation]. It becomes
extremely difficult to implement these initiatives as expectations may
be very high.
Record keeping and accountability

One challenge for entities is to balance the major focus on results with appropriate accountability for
those results.
The greater the pressure on an entity to progress initiatives over a short time period, the greater the
demand for discipline in record keeping and accountability as part of a sound control environment.
Effective records management and accountability arrangements are integral to robust and successful
corporate governance and public administration.
This is particularly so in the modern age, where a plethora of communication, storage and decision
making avenues exist. When the implementation of a policy initiative involves partnering with other entities,
there may be further issues to consider around privacy requirements and the ability to share information.
In short, keep records of important discussions and of key decisions made, as well as the basis for those
decisions. This is also likely to improve the information available to the implementers, in particular on the
practical considerations that went into policy design and what success looks like.
18
Part 2
Building Blocks for
Successful Implementation
3 Governance
Sound governance arrangements are critical to successful implementation.
A committed executive, supported by a senior responsible officer, provides the
foundations for successful implementation.
Part 2 Chapter 3
Governance refers to the arrangements and practices which enable an entity to set its direction and
manage its operations in order to discharge its accountability obligations and assist in the achievement of
expected outcomes. Governance encompasses many facets, including leadership, policies, relationships
and control and accountability measures.18
Good public sector governance is about getting the right things done
in the best possible way, and delivering this standard of performance
on a sustainable basis.
Source: ANAO19
Good governance is important to support entities in fulfilling their responsibilitiesincluding the efficient,
effective, economical and ethical use of public resources to implement government policy. CEOs have
a critical role in the establishment and maintenance of an entitys governance arrangements. CEOs are
responsible not only for providing advice to the Government but also for ensuring the delivery of the
services and activities that result from that advice.
Those charged with governance in public sector agencies have a

responsibility to provide the leadership, strategies and oversight to
deliver on the policies of the government of the day
A critical prerequisite for successful implementationespecially that involving significant changes to an

entitys structures, processes or cultureis an executive that is committed to, supports and models
best practice. Without strong and visible leadership, any underlying changes will be ineffective.
A checklist of key implementation considerations relating to governance is presented on the next page.
18 ANAO, Better Practice Guide, Public Sector Governance: Strengthening performance through good governance, June
2014, p.7.
19 Ibid.
20 McPhee, Ian, Auditor-General for Australia, Public Sector Managementa scorecard on the journey, paper presented to
the Risk Management Institute of Australia, Melbourne, November 2013.
21
Checklist of key implementation considerationsGovernance

The following checklist may help senior leaders when considering whether the governance arrangements
for the implementation have been adequately addressed. In reflecting on these points, it is important
to give weight to informal networks and organisational culture as well as to the formal arrangements.
Key questions: Governance
;; Is a single senior responsible officer accountable for the delivery of the initiative and does the
senior responsible officer have appropriate authority, skills, resources and support structures?
Is he or she the right person for the job?
;; Is there clarity of purpose, powers and relationships between those involved in the
implementation of the initiative?
;; Are the governance arrangements between the various parties involved in the implementation
appropriately formalised and documented? Does governance documentation identify the key
plans and strategies necessary to help manage the initiativesuch as a risk management plan,
a stakeholder communication strategy, an implementation plan, and an evaluation plan?
;; Are there whole-of-government dimensions to the delivery of the policy? If so:

;; Have the appropriate entities been adequately engaged?
;; Has a lead entity been identified and its role articulated and accepted by other entities?
;; Are coordination and sharing arrangements of sufficient breadth and robustness?
;; Do arrangements reflect strong executive-level support so that people in the organisation know
that this matters?
;; Do the governance arrangements provide for adequate reporting and review mechanisms,
including regular updates of risk assessments? Are significant issues and bad news escalated
as necessary, including to the responsible minister?
;; Has consideration been given to identifying any relevant legislatively-based reporting

requirements?
;; To guard against situations where staff may become inured to problems, or desensitised to
risk, have independent assurance or quality reviews been considered?
;; Are all major initiatives underway in the entity subject to regular consideration by the CEO and
the top leadership group?
;; Where policy development and implementation involve negotiation and consultation with
stakeholders, has appropriate attention been given to matters of conflict of interest?
22

Sound governance arrangements are critical to the success of program and policy implementation. The
nature and complexity of governance arrangements have to reflect the size and scope of the initiative. The
size and nature of the initiative will also influence the degree to which senior leaders need to be involved
in obtaining assurance around the governance arrangements, as well as the degree of their formality.
At the least, consideration needs to be given to: the roles, responsibilities and accountabilities of those
involved; the rules and procedures for decision-making; and the integration of project governance
arrangements within an entitys broader corporate governance framework.
The important role of the senior responsible officer
Part 2 Chapter 3
To be effective, policy and program implementation requires there to be a senior responsible officer who
is accountable for the success of a policys implementation. The senior responsible officer is the person
to whom the relevant minister and the entitys senior leaders turn for progress reports and information
about delivery and emerging risks.
Senior responsible officers are also required to set up the most appropriate team to implement the
initiative, including considering the adequacy of skills of the implementation team. An important part
of establishing the implementation team is helping individuals understand their particular roles and
responsibilities, as well as accepting their broader responsibilities for matters associated with the
initiativesuch as managing risks and being alert to issues needing to be addressed, including escalating
issues and contributing ideas.
Figure 3 sets out aspects of the initiative in which the senior responsible officer can play a pivotal role.
Figure 3: Roles of the senior responsible officer
The senior responsible

officer can drive the
implementation by
Obtaining buy-in by the

executive and key players,
and giving visibility to the
strength of their support
Providing progress reports

and information to the
relevant minister and the
entitys senior leaders
Considering whether the right

people have been engaged,
and are working on the right
things at the right time
Providing
delegations to
the appropriate
levels
Considering funding
issues relevant to the
initiative
Source: ANAO.
23
Senior responsible officers should consider whether they have the right skills to oversee the implementation
of the initiative. If not, how will the skills needed to oversee the implementation be obtained? This is not
a matter to be left to chance, or to learning on-the-job.
Absolutely need a senior responsible officer someone who is clearly

identified and accountable.
Whole-of-government considerations
Engaging and negotiating with the central agencies and delivery entities should be considered at the
earliest possible stage. If the initiative requires service delivery by another entity, organisation or provider,
then pertinent information should be shared at the earliest opportunity and roles and responsibilities need
to be formalised. The risk in deferring or not considering the formalisation of cross-entity arrangements
is that a lack of agreement and confusion about roles may emerge later in the implementation.21
When engaging other Australian Government entities or State Government bodies, an agreement
outlining the objective, roles, responsibilities and reporting requirements of those involved is considered
better practice. However, setting up formal arrangements requires an understanding about the limits of
individual accountabilities, such as where there is shared ownership of policy and delivery and where
policy owners cannot delegate responsibility and accountability for outcomes to deliverers.
In practice, there will often be differences of opinion and disputes during the implementation of an
initiative. It is far better that any differences are dealt with informally and promptly; this can be facilitated
by creating the right atmosphere in interactions. However, attention should also be given to more formal
procedures before implementation beginsthis can prevent blame-shifting when something goes wrong.
Where there is multifaceted implementation you need to have a lead

entity, otherwise things fall through the cracks.
Where a number of entities are contributing to the delivery of a program or taking action to achieve
program goals, the costs and benefits of different whole-of-government approaches to implementation
should be considered. However, as a minimum, identification of a lead entity is usually beneficial.
For the arrangement to be effective, the lead entity should have the authority and recognition to act in
this capacity. It may be the case that the lead entity has primary policy responsibility (rather than an
operational role), effectively becoming an actual or de facto purchaser of services from one or more
other entities to facilitate implementation.
Consideration should be given to formalising such arrangements through cross-entity agreements.22
Figure 4 on page 25 outlines some of the details that such mechanisms might contain.
21 Section 17 of the PGPA Act places a positive duty on the leadership of Commonwealth entities to encourage the entitys
officials to cooperate with others to achieve common objectives, where possible.
22 ANAO, Better Practice Guide, Public Sector Governance: Strengthening performance through good governance, June 2014,
p.63.
24
Figure 4: Example content for a multi-party agreement
Memorandum of Understanding between

government entities for the purpose of
implementing a specied policy
Table of Contents
Objectives of the arrangement, including desired outcomes and timeframes ............................1
Roles and responsibilities of the entities, including their capacity to contribute .......................2
Part 2 Chapter 3
Description of the activity, including specications of the services or projects to be

undertaken (both jointly and separately) .....................................................................................4
Resources to be applied by the entities and related nancial issues ...........................................6
Approach to identifying and sharing the risks and opportunities involved................................7
Deliverables and performance measures ................................................................................... 10
Methods of monitoring and review ............................................................................................ 12
Dispute resolution arrangements................................................................................................ 14
Duration of arrangement, termination and notice periods ........................................................ 15
Source: ANAO.
25
The lead entity should have the role of ensuring that: program implementation is meeting the Governments
objective; a process has been established where information is shared and flows between the entities
involved; performance is monitored; and the commitment by other entities (as well as their own) is
being met.
Steering committees and taskforces

The size and complexity of many initiatives is such that it is difficult for one senior responsible officer to
be sufficiently well informed about every aspect of the initiatives implementation.
One approach in these circumstances is to establish a steering committee that is responsible for business
issues associated with the initiative. Key business issues may include: budget strategies; monitoring
risks, quality and timelines; and resourcing decisions. The steering committee might also have the role
of approving the policies and business principles to be adopted for the initiative.
Steering committees can have members from inside the entity or more broadly involve stakeholders,
specialist consultants or representatives from another entity. The chair of the steering committee then
becomes the point of accountability for progress of the business issues associated with the project.
When setting up a steering committee consideration needs to be given to other aspects of good
governance discussed in this guide, including the skills required, roles and responsibilities, and the use
of subject matter experts and external review mechanisms.
Steering committees need to have clarity of roles/responsibilities,

conflicts of interest declared, accountability and means to assess
performance at the end.
Where there are whole-of-government dimensions, inter departmental committees or taskforces may
be considered. Representation at the senior responsible officer level from each entity is a useful means
of communicating and monitoring progress on a whole-of-government initiative.
It is better practice to maintain and distribute minutes of meetings and agreed action items to all entities
involved in implementation. This provides transparency to the decision-making process.
When establishing governance arrangements for implementation initiatives involving external parties,
senior responsible officers should also consider the potential for conflicts of interest to arise and, if
necessary, strategies to manage such conflicts. Managing conflicts of interest is covered more fully in
Chapter5 in Part 2Stakeholder engagement.
Effectiveness of arrangements for monitoring and review

Senior responsible officers need to put in place monitoring and reporting arrangements sufficient
to provide assurance to the entitys senior leaders on progress in implementation. Reporting should
minimise the risk of duplication and gaps in information.
Consideration should be given to conducting independent assurance at key points during the
implementation processto help overcome the potential for the staff directly working on the project
becoming inured to risks. Such reviews should be undertaken by staff with relevant experience that are
not directly involved in implementation activities or, in certain cases, by external parties.
26
In some cases, especially projects involving staff that are physically dispersed or projects involving input
from other entities, senior leaders should consider the need to implement a quality framework. Such a
framework should be designed to help promote adherence to established practices and standards, and
the achievement of consistent work processes and outputs. In addition, where there are agreements
with other entities in place, they should specify the reporting requirements of the other entities involved
with the implementation.
Monitoring and review arrangements should be designed so as to bring about solutionfocussed problem
solvingit is important to avoid a culture of blame. Also, reporting and monitoring arrangements need
to be robust enough so that bad news is dealt with promptly and is not filtered out of reports to senior
responsible officers, the entitys senior leaders, and responsible ministers. Consideration should also
be given to worst-case scenario and exit strategies if there is a risk that the initiative may not meet its
objective.
Part 2 Chapter 3
Create an environment where people are prepared to ask for help early
enough and not at a crisis point. The culture must be to encourage
staff to identify problems and to ensure that they are addressed.
Finally, as well as providing assurance on the progress of an initiatives implementation, monitoring and
review arrangements should support continuous improvement to, and refinement of, implementation
arrangements.23
23 Issues associated with monitoring and review arrangements are more fully described in Chapter 8 in Part2Monitoring,
review and evaluation.
27
4 Managing risk
Successful implementation relies on the identification and management of risk. A
robust risk management framework will promote accurate, well-informed judgements
and mitigation strategies. The analysis of risks should commence as the policy is
being developed and should continue through the implementation process.
There is well accepted recognition in public sector management of the importance of risk management;
however, increasingly governments find that the environment they work in is becoming more complex.
While the fundamentals of project management may not change significantly against this backdrop, the
risks to successful implementation are higher, due to the more complex nature of the environment and
the extent of uncertainty.24
Part 2 Chapter 4
Risk management should be part of day-to-day business and not a one off activity. Indeed, entities need
to encourage and grow a culture of risk management within an organisation.25 Adopting a risk management
approach does not mean that entities should become more risk averse. Rather, it means that entities have
greater awareness and understanding of risks, and the best ways to control, or deal with them.
the management of risks must be embedded in an organisations

modus operandiin its corporate planning, reporting, decision
making and management practices. [It is important to implement] risk
management effectively, to avoid the failures in risk management that
commonly flow from poor implementation approaches or a failure
to monitor the changing environment, and respond accordingly
Specifically, the effective management of risk requires a robust, entity-wide risk management climate
where decisions are based on accurate and well-informed judgements. There is a need to focus on
both the likelihood and consequences of risks, and appropriate treatment strategies for identified risks.27
A checklist of key implementation considerations relating to the management of risk is presented on
the next page.
25 Section 16 of the PGPA Act requires the leadership of Commonwealth entities to establish and maintain appropriate systems
of risk oversight and management.
26 McPhee, Ian, Auditor-General for Australia, Risk is all Around, paper presented to the Risk Management Institution of
Australasia, Canberra, September 2010, pp.23.
27 For further guidance on engaging with, and managing risks, including guidance on the principles of risk management and
the elements that contribute to a risk management culture, refer to the ANAOs Better Practice Guide titled Public Sector
Governance: Strengthening performance through good governance, June 2014, pp.2631. See also Comcover Better Practice
Guide - Risk Management, June 2008 at <http://www.finance.gov.au/comcover/risk-management/better-practice-guide.html>.
29
Checklist of key implementation considerationsManaging risk

The following checklist may help senior leaders when considering whether arrangements for managing
implementation risks have been adequately addressed.
Key questions: Managing risk
;; Have the benefits of applying systematic risk management practices to the initiative been
communicated through the organisation?
;; Has enough been done, early enough, to identify and appropriately treat implementation risks?
In assessing risks, have both the likelihood and the consequences of risks been considered?
;; Is there a shared understanding and acceptance of the risk appetite?

;; Does the senior responsible officer have access to sufficient risk management capability
to provide adequate assurance that risks to successful implementation will be managed
proportionately and effectively?
;; Was the Government appropriately briefed, at an early stage, about key implementation
risks and proposed responses, including where there are uncertainties? Is this adequately
documented? Is there adequate, ongoing and accurate reporting?
;; Where other parties are involved in the implementation, are risks appropriately shared and is
there clear recognition of the risk mitigation responsibilities of the various parties?
;; Are risk treatments followed through in a systematic way and actively monitored during
implementation for their effectiveness?
;; For high-risk initiatives, does contingency planning include the analysis and assessment of
options and exit strategies?
;; What quality assurance mechanisms are in place?

;; Will implementation difficulties be identified promptly and reported?
;; When mistakes occur, will they be admitted, with explanations of what went wrong and why,
and the course corrected?
30
A central implementation challenge for CEOs is to maintain alignment between expectations at ministerial
level and entity-level progress with implementation. Meeting this challenge is assisted by a robust risk
management approach and regular candid briefings and discussions between the chief executive and
the minister. A further, and important, consideration for senior leaders is the availability of appropriately
skilled senior personnel to manage key risks to successful implementation.

Systematic risk management practices enable entities to be confident that implementation has been
designed to achieve government outcomes and objectives most effectively. Good risk management
practices reduce the likelihood or consequence of unpleasant surprises that may result in an increase to
implementation timeframes or costs and, in some cases, could jeopardise the achievement of objectives.
The successful management of risks is not simply a matter of avoiding risks altogetherthis will stifle
innovative practices, which are critical to the implementation of new initiativesrather it is a preventative
measure that entails identifying and assessing risks and deciding on the most appropriate treatment
strategy to manage each risk.28
Part 2 Chapter 4
The treatment of implementation risks should be realistic and achievable within available resourcing and
timelines. Lessons from previous implementation experiencesboth within the implementing entity or
more broadlymay help identify appropriate risk treatments, as well as opportunities for more novel
approaches to managing risks. Risk treatment activities should also be monitored and assessed for
effectiveness throughout the implementation process.
Identifying and assessing risks early

Ideally, the identification and treatment of risks should be undertaken at the earliest opportunity, that is,
during policy design. More is required than consideration of the potential for something to go wrong.
Risk identification and treatment should focus on both the likelihood and the consequences of risk, and
should be an element of the control framework put in place for effective program implementation. In
other words, risk management is not a one-off process, but should be seen as a tool to be used regularly
throughout the policy development and implementation process.
the soft spots in public sector risk management relate to the

understanding of the significance of identified risks, the appropriateness
of the related risk management strategies, and the adequacy of
ongoing monitoring arrangements. Executive management has an
important role in ensuring a focus on these key issues.
An important precursor to assessing the identified risks is gaining a common understanding of the
risk appetite to be adopted for the initiative. Agreement on the level of risk appetite is crucial to risk
assessment processes, including decisions about what risks can be accepted, what risks need to be
managed or treated, and the level of management activity that is required.
28 Department of the Prime Minister and Cabinet, Cabinet Implementation Unit Toolkit: Risk, June 2013, p.3.
31
It is important that judgments and risk assessments that are critical to successful implementation
receive immediate and focused scrutiny. Risk management is most effective when those with the direct
responsibility for the delivery of project components contribute to the process and when senior managers
are accountable for the quality of the risk management process.
Avoid any tendency to downplay the analysis of implementation risks or to portray an overly optimistic
position. This is especially important where there are time constraints or complex negotiation processes.
A key risk to avoid is that the necessary focus on the outcome may reduce attention on the capacity
to deliver.
It may be necessary to brief the CEO on significant risks to implementation, and proposed treatments,
for possible ministerial attention. At times it will be equally important to consider risks arising from areas
of uncertainty. It is important that assessments are appropriately documented.
If significant risks are neglected until a later stage in the implementation process, they can become
unwanted surprises. Mitigation will then be much more difficult. As well, the ability to maintain service
delivery may be reduced by the need to deal quickly with something unexpected.
Working with other parties

Implementation initiatives that involve other Australian Government entities, state and territory bodies,
or non-government entities, face increased risk management complexities.
It is important to ensure that there is a common understanding of the risks associated with shared
implementation. This requires that the senior responsible officer is assured of both their own entitys
capability to assess and manage key risks and that of other parties. This includes understanding each
entitys relative risk priorities and risk appetite.
A clear and agreed identification of who carries which risks, including those risks that are shared or are
interdependent, is also a necessary part of effective risk management. Having clear accountabilities for
each risk assists to identify gaps in the capabilities and authorities necessary to manage risks.
Having clear accountabilities applies not only to identifying and assigning responsibility for risk, but
also to the management, monitoring and reporting of risks throughout the implementation. Maintaining
an open dialogue with partners about which risks are manageable, acceptable (or not) assists in this
process. Consolidated reporting of the effectiveness of risk mitigation may also be necessary.
It is also important to understand where the chickens will come home

to roost if risks arent managed effectively by one of your partners.
The early identification and assessment of implementation risks is even more important when locking in
decisions with outside parties. This is because the consequences of unmitigated implementation risks
are much harder to address with back-end processes and controls if, for example, the entity is tied into
contractual arrangements.
32
Senior responsible officers need to be confident that they have access to adequate risk management
expertise to provide assurance around three key matters:
ff there is a shared understanding of the risks for which the implementation partners are jointly or
separately responsible
ff there is an appropriate balance in the transfer of those risks to outside parties, and
ff that responsibility for risks is formally acknowledged.
Notwithstanding the formal considerations, there remains an underlying reality that Australian Government
entities cannot transfer all risks. They have ultimate responsibility for delivering or maintaining government
service delivery and initiatives and for contingency plans in the event of risks materialising.31
Managing risks through implementation

Risks should be reviewed or re-evaluated at the key stages of a project. For example, before the release
of tender documentation; during the assessment phase; at formal approval to proceed to implementation;
and at any later key decision points, such as refinement of policy details and significant discussions
with key stakeholders.
Part 2 Chapter 4
Risks, and the approach being taken to treat each risk, also need to be actively managed to take account
of changing circumstances through the various phases of implementation. This may mean re-evaluating
earlier assessments and amending or refining treatment strategies.
Typically, managing risk treatments involves putting a series of review or monitoring points or activities
in place. Such activities should be designed to assess whether risk treatments or related controls are
still operating as intended, as well as flagging when the identified risks change, or new risks emerge.
The implementation of structured monitoring arrangements can reduce the need for more frequent
risk reviews.
Where an entity may be outside its traditional area of expertise or experience, an external health
check of the effectiveness of risk identification, assessment and management strategies should be
considered.
Risk management needs to be a continuing focus of attention.

The monitoring of risks is discussed more fully in Chapter 8 in Part 2Monitoring, review and evaluation.
Managing the consequences of riskwhen to escalate.

Notwithstanding the benefits of identifying and analysing key implementation risks, all risks or unintended
consequences cannot be removed. Sound risk management includes a willingness to act on the
unexpected, including deficiencies in mitigation strategies, when confronted by warning indicators.
Senior responsible officers need to be open to the implications of new data and warning signs.
31 ANAO Audit Report No.12 201011 Home Insulation Program, pp.3334 and pp.7175; and ANAO Audit Report No.22
201314, Air Warfare Destroyer, p.37 and pp.123124.
33
Swift, and on occasion, significant action may be needed if important implementation risks begin to
materialise. If consideration of emerging risks suggests the project is too large or ambitious for the
agreed timelines and resourcing, this should be brought to the CEOs and, where appropriate, the
Governments attention.
Appropriate responses to emerging problems will be more manageable and predictable where robust
implementation contingency plans have been developed as part of the risk management strategy.
Depending on the levels of assessed risk, contingency planning may usefully include additional risk
treatments, and exit strategies that can be activated if the project becomes too problematic or unviable.
34
5 Engaging stakeholders
Effective stakeholder engagement starts with a clear objective for consultation,
followed by the identification of people and organisations with a clear interest in
the initiative.
The internet, social media and other communication methods now enable wider
consultation than has occurred in the past, including beyond expert or interest
groups.
In the 2006 edition of this Better Practice Guide, stakeholder management and communication
were treated as separate steps. Here they have been combined, as the increasingly dynamic nature of
stakeholders interaction with government, with each other and with the wider community, means that
the two concepts have effectively fused.
Part 2 Chapter 5
The nature and quality of relationships between a public sector entity and
its stakeholders strongly influence the impact of government activities
on the community. A public sector entity should be outward looking and
interactive. It should make the best use of the expertise of stakeholders
to inform policy development and implementation approaches
Source: ANAO32
The nature and means of consulting with stakeholders will, in part, reflect their involvement during the
policy development phase. Stakeholders may not have been consulted during policy development for a
number of reasons, including the sensitivity of the initiative or insufficient time. As with many aspects of
planning for implementation, stakeholder engagement should happen as early as possible. It is important
that stakeholders understand why they are being consulted and have a realistic expectation about their
capacity to influence the implementation.
For some initiatives, the engagement of established key interest groups or those directly affected by the
change should be complemented by broader engagement with the wider community. Such broader
stakeholder engagement is useful to inform the community of what is going on, as well as helping
secure a greater level of buyin. Broader community engagement can also help overcome an overly
narrow concentration on issues management, and potentially yield important information to help shape
the policy and guide implementation.
A checklist of key implementation considerations relating to engaging stakeholders is presented on the
next page.
p.41.
35
Checklist of key implementation considerationsEngaging

stakeholders
The following checklist may help senior leaders when considering whether arrangements for stakeholder
engagement have been adequately addressed.
Key questions: Engaging stakeholders
;; Is the purpose and benefit of stakeholder engagement during the implementation clear?
;; Have the right stakeholders been identified?
;; Has the cost-effectiveness of different communication channels been considered?
;; Is a wide consultation process involving the use of social media beneficial?
;; Has sufficient consideration been given to how stakeholder interactions will be managed during
the implementation phase?
;; Is there clear accountability for stakeholder engagement, including managing expectations?

;; When is the best time for stakeholders to be engaged?
;; How will the information obtained through stakeholder engagement be acted on?
;; Is there a communication strategy for consulting with stakeholders?
;; If government advertising is proposed, have relevant guidelines been considered and applied?
;; Have staff been provided with guidance on identifying potential conflicts of interest? In
particular, are there satisfactory arrangements to manage perceptions or instances of conflict of

interest that may arise from consulting with stakeholders?
36
The internet and modern information and communications technology have enabled new mechanisms
such as web-casts and social mediawhich can be used to engage stakeholders. These mechanisms
can facilitate consultation and communication with, and participation by, a far wider range of people
than in the past, including with potential clientsthe people who may be directly affected by the policy
initiative.
new digital tools are opening up new and often unexpected windows
that offer much more direct visibility of the lived experience of people
affected by the actions and decisions of public agencies33
Source: ANAO Social Media Roundtable
Innovative engagement strategies like crowd-sourcing can greatly assist in devising solutions to public
policy problems. Senior leaders should carefully consider whether to, and how best to, utilise these
methods. They should also remain alert to emerging developments in this rapidly evolving field, which
may offer cost-effective strategies to engage with stakeholders.
Part 2 Chapter 5
Stakeholder engagement requires openness and consideration as to why people are being consulted,
how and when they will be consulted, and how much influence they will have. Clear and timely
communication is essential and those consulted need to be provided with comprehensive, balanced
and accurate information.
Most entities have a wide range of stakeholders with an interest in their operations. The interests
represented by these stakeholders can be disparate, sometimes to the point where they can be in
conflict with one another. Making certain that stakeholder interests are fairly represented34 is therefore
a key aspect of the implementation of policy initiatives.
Effective engagement needs to recognise that some stakeholder groups are regularly asked for
comments and, although they are keen to provide advice, they may lack the capacity to respond quickly.
Indeed, it is sometimes the case that they are being asked to comment on several different initiatives
simultaneously. Consulting such groups about how they can be most effectively engaged is therefore
an important consideration.
If stakeholders are not identified and consulted, they may object to elements of the approach during
implementation. For this reason, governance structures should ensure that the legitimate interests of a
range of stakeholders are properly and appropriately considered. The less stakeholders are involved,
the higher the risk of failure during implementation.
Setting the objective for consultations and the identification of stakeholders

An important first step is to clearly define the objective of the engagement with stakeholders. Figure 5
on page 38 outlines some of the purposes for engaging with stakeholders during an implementation.
33 Stewart-Weeks, Martin, Public Sector Leadership in a Connected World, paper presented to the Australian Government
Leadership NSW Conference, September 2012.
34 See also ANAO, Better Practice Guide, P
ublic Sector Governance: Strengthening performance through good governance,
June 2014, p.45.
37
Figure 5: Reasons for engaging with stakeholders
Increasing level of engagement
Obtain buy-in for

the initiative
Test broader
community attitudes
Help promote the
initiative to affected
client groups
Test the design

of the initiative
Validate or test
assumptions
Collaborate on
the design of the
initiative
Play a role in
delivery of the
policy initiative
Raising awareness
of the initiative
Source: ANAO.
Once the reasons for engaging stakeholders have been determined, consideration can be given to
identifying the target group of stakeholders.
The target group may be some or all of those with the greatest knowledge or understanding of the issue;
those likely to be most affected by the policy response; or those who have an interest in the workability
of the solution.
Often stakeholder views and judgments will reflect their own interests and approaches. Nevertheless,
consideration of stakeholder input, having regard to conflicting interests and different perspectives, is likely
to improve practical knowledge of what may work on the ground. This will help inform thinking about the
proposed way forward, including from the end-users perspectivethat is, from a consumer-focused view.
Leaders should encourage a culture of genuine engagement and

collaboration and establish the right systems, procedures and guidance
for stakeholder interaction...
Source: ANAO35
Key stakeholders are likely to include: other Australian Government entities; state and territory
governments; industry and professional representatives; private sector organisations; non-profit
organisations; lobby groups; and the potential client or customer group.
p.43.
38
The list of prospective stakeholders may therefore be long. It is useful to weigh up and consider the risk
and impact on implementation if particular stakeholders are not engaged.
The entity should also assess whether the initiative merits a broader, but complementary, community
engagement program. Such engagement may be warranted to gain broader community understanding
and acceptance of the proposed changes, and help overcome the risksreal or perceivedof too
narrow a focus on issues raised by specific interest groups.
Equally, the entity needs some confidence that it will gain something from stakeholder engagement, as
this can be a costly and time-consuming exercise, potentially raising probity issues and issues of control
by the government of policy development.
The hardest thing to get right with implementation is to see where the
rubber hits the ground with roll-out. This is why you need genuine
[stakeholder] engagement.
Managing stakeholder interactions
Part 2 Chapter 5
No single approach to engaging stakeholders is suitable for all situations. Quite often a mix of approaches
is necessary. Accordingly, it is important to tailor the interaction process by considering the unique
characteristics of groups of stakeholders, and what approaches are best for particular groups.36 As
shown in Figure 6 on page 40, there are a range of methods for interacting with stakeholdersthese
approaches may be a oneoff or ongoing.
Sometimes, stakeholder engagement may mean going through stakeholder groups, such as peak
industry associations. However, it is important to recognise that these groups may not reflect the totality
of views of stakeholders.
Engaging with state and territory government stakeholders can often involve different considerations.
For example, discussions of implementation may become confused with broader policy positions. The
key is to be realistic about the time necessary to win joint engagement with the initiative.
...managing expectations is one of the hardest things to get right.

Engage with those affected by the initiative at an early time.
Engaging stakeholders is an important step in testing whether an initiative is likely to work in practice.
As a rule of thumb, it should be undertaken as early as possible to allow for a greater range of solutions
to emerge and to improve the chances of successful implementation. Planning should allow adequate
36 Increasingly, government is engaging with the not-for-profit sector to assist in implementing its policy initiatives. In March
2010, the Department of the Prime Minister and Cabinet released the Code of Best Practice for Engagement with the Notfor-Profit Sector. For further information about engaging in collaborations outside of government, see the ANAOs Better
Practice Guide, Public Sector Governance: Strengthening performance through good governance, June 2014, pp.6768.
39
time and resources for this to occurincluding identifying the funds needed to undertake the preferred
engagement strategies.
One thing to consider is whether there is likely to be stakeholder resistance to the proposed change. If this
is assessed as likely, it will be an important factor in engaging with stakeholders. In particular, the entity
will have to develop strategies to overcome any resistance to change and achieve stakeholder buy-in.
Figure 6: Forms of stakeholder interaction
ff Video or audio broadcasts
More
traditional
methods
ff Town Hall meetings
ff Focus groups
ff Providing documentation for
comment
ff Web-based seminars or
workshops (Webinars)
ff Internet forums or blogs
ff Social media tools, such as
Twitter, Facebook or YouTube
ff Crowd-sourcing techniques
More contemporary methods
ff Providing surveys or
questionnaires
ff Setting-up consultative
committees or working groups
Source: ANAO.
It is important for the senior responsible officer to establish who will be responsible and accountable for
stakeholder engagement. The responsible person needs to be aware of how stakeholder engagement
contributes to the ultimate success of the initiative in achieving the agreed policy objective. Managing
interactions with stakeholders may require different skills to those of the rest of the implementation team.
Engaging stakeholders acknowledges their role and their views, but it is also important to manage
the risk of unduly raising the expectations of stakeholders in the process of engagement. The risk of
disappointed expectations arises when stakeholders believe they will have more power or influence than
is intended or possible. This risk can be managed by making clear from the outset what the objectives
of stakeholder engagement are and what this implies for the respective roles of the participating parties.
Be prepared to use experts in the field if outside your area of expertise.

In technical areas, where government expertise may be limited, there is particular benefit in engaging
with outside experts to provide insight and assurance.
40
Using information from stakeholders

There is no point in extensively engaging stakeholders if the consultations are not going to shape
implementation. To improve the quality of the implementation, processes need to be in place to capture
the information collected during stakeholder consultations, to identify the key themes from these
consultations, to assess the value of those themes to the initiative, and to ensure that the information
and insights obtained are acted on.
Entities also need to demonstrate to stakeholders how their input may be used and why it may not
always be possible to do so. Likewise, the time given to stakeholder groups to respond to a request for
input needs to be realistic, recognising that they will often have limited resources and may have multiple
issues to cover. Unless stakeholder consultation is accepted as genuine, consultation mechanisms may
foster cynicism amongst stakeholders, undermining the purpose of the initiative.
While the views of all stakeholders should be considered, it is not always possible to please everyone. A
strategy on how to deal with potential sensitivities should be developed. Keeping stakeholders informed
of a decision and explaining the reason for a decision can reduce this risk.
It should also be noted that some of the information from stakeholders may be of considerable significance
for the initiatives implementation plan or its risk management arrangements, or to the ultimate impact and
success of the initiative. This information may need to be escalated to the CEO, or even to the minister.
Part 2 Chapter 5
One of the benefits of consulting with stakeholders is the information it provides to enable an entity to
communicate to the target audience more effectively during implementation. This requires establishing
a means by which stakeholder views can be tested to inform future communications, and making sure
that the ensuing messages go back to those responsible for developing the communication strategy
for the implementation.
Communication and information strategies

A variety of communication and information strategies are available and it is important for the senior
responsible officer to ensure that the communication strategy developed for the implementation reflects,
and is consistent with, the entitys broader communication strategies and actions. In particular, senior
leaders should give careful regard to the appropriate mix and cost-effectiveness of selected strategies.
Government advertising is considered an important and legitimate element of government communication
and information strategies, providing a mechanism to connect directly with citizens. That said, there
have also been concerns that advertising may be used for purposes other than meeting the genuine
information needs of citizens. If government advertising is proposed, the CEO should consider whether
the relevant guidelines have been considered and applied.37
Managing conflicts of interest

Senior responsible officers should consider the risk of potential or perceived conflicts of interest arising,
particularly when negotiation and consultation with stakeholders has occurred during policy development.
In particular, significant risks can arise when managing Budgetsensitive matters, particularly where those
involved may gain knowledge or insights into information that could benefit them materially.
37 See ANAO Audit Report No.54 201213 Administration of Government Advertising Arrangements: August 2011 to March 2013,
pp.1135; and ANAO Audit Report No. 24 201112 Administration of Government Advertising Arrangements: March 2010 to
August 2011, pp. 1140.
41
A suitable risk management strategy to preserve the integrity of sensitive information requires
consideration of the degree, nature and extent of the potential for conflict of interest. The use of a
confidentiality agreement during discussions with stakeholders is one option to consider in managing
this risk.
It is also important that the implementation team understands the form that a real or perceived conflict
of interest may take in the context of its particular initiative, and to create an environment where potential
conflicts of interest can be discussed and disclosed in a transparent and accountable manner.38
It is often not possible to avoid all potential conflicts. Stakeholders with the most to offer are often those
who have the greatest interest in the outcome. It is important, therefore, to consider the nature and
extent of such potential conflicts of interest and to make these known to the parties involved, including
protocols to minimise the likelihood of such conflicts.39 In practice, some of the things to consider include:
ff good documentation of key events and interactions with stakeholdersthe increasing use of social
media to engage with stakeholders presents particular record keeping challenges for entities
ff procedures on how to recognise conflicts of interest and how to deal with them, and
ff procedures on what to do if the rules are not observed.
A useful practice for all implementation team members when engaging with stakeholders is to consult
with senior team management when in doubt about matters of ethics, including any potential for conflicts
of interest and strategies for the management of such conflicts. If necessary, specialist advice should
be obtained.
38 ANAO, Audit Report No.47 201314, Managing Conflicts of Interest in FMA Agencies examined whether a selection of
Australian Government agencies had implemented appropriate policies and processes to identify and manage conflicts of
interest.
p.52.
42
6 Planning
Planning provides a map of how an initiative will be implemented, addressing
matters such as timeframe, dependencies with other policies or activities, program
logic, phases of implementation, roles and responsibilities, resourcing, and
compliance with legal and policy requirements.
A level of leadership, experience and skills commensurate with the sensitivity,
significance and impact of initiatives should be applied to implementation planning.
Lessons from the work of the CIU and from ANAO audits underline the value of strategic, systematic
and structured implementation planning. Experience shows that implementation planning reduces the
risk of delay to, and dilution of, outcomes.
Effective implementation planning begins at the policy development stage. In recent years the Australian
Government has required the preparation of implementation plans that clearly articulate how new policies,
programs and services will be delivered on time, on budget and to expectations. The purpose of this
implementation planning process, overseen by the CIU, is to enable the Cabinet to make an informed
judgement about whether to proceed in the light of the risks and requirements involved.
Part 2 Chapter 6
Implementation planning should continue following the Government decision, to guide implementation
at the entity-level and to provide assurance to the entitys senior leaders that key issues relating to
implementation have been addressed. Where more than one entity is involved in implementation, planning
processes should factor in the respective responsibilities of the entities.
A checklist of key implementation considerations relating to planning is presented on the next page.

Effective implementation planning is a critical factor contributing to an entitys ability to successfully
prepare for the delivery of intended policy outcomes. Planning for successful implementation involves
getting the implementation strategy, plan and design right before beginning time-critical and expensive
implementation activities.
Planning for implementation is most effective when it is: led by appropriately skilled and experienced
personnel; underpinned by a systematic and structured approach; and supported by a sound project
management methodology that tailors corporate tools and reporting processes to the requirements of
individual measures and programs.
The importance of early planning

Lessons from Australia and overseas reinforce the importance of thorough planning for implementation,
and the Australian Government has introduced an implementation planning process to support Cabinet
decision-making.40
40 Department of the Prime Minister and Cabinet, Guide to Implementation Planning at <http://www.dpmc.gov.au/
implementation/planning.cfm> [Date accessed: 17 March 2014].
43
Checklist of key implementation considerationsPlanning

The following checklist may help senior leaders when considering whether arrangements for
implementation planning have been adequately addressed.
Key questions: Planning
;; Has sufficient and appropriate attention been given to structured implementation planning?
;; Has implementation planning been given sufficient weightit requires a strategic focus?
;; Are staff with adequate planning skills and experience engaged to actively support the planning
process?
;; Has there been sufficient testing of proposed implementation arrangements?

;; Have lessons from previous experience been considered in planning the implementation?
;; Have critical implementation success factors been identified and given sufficient attention?
;; Does planning involve program logic and cover critical dependencies and enablers?
;; Has the role of any third parties been given sufficient attention in planning?
;; Are timelines for critical steps, and the resources applied, realistic?
;; Has sufficient attention been given to breaking implementation into manageable steps?
;; Have adequate review points been put in place throughout the implementation cycle and what
quality assurance measures are being applied?
;; Has adequate attention been given to cultural and change management issues?
;; Do planning arrangements adequately cater for managing change to the plan and
requirements?
;; Has consideration been given to contingency measures and their impact on the Governments
intended outcomes?
;; Has consideration been given to how and when an evaluation of the initiative will be conducted?
In particular, is it clear what success will look like and how success will be measured?
44
Senior responsible officers should avoid any tendency or pressure to unduly restrict the time spent on
early planning for implementation. Inadequate preparation may lead to the emergence of unforeseen
barriers and to delays, cost overruns, or a failure to deliver the intended benefits. Planning is not a matter
to be devolved to the lowest level.
If an initiative is urgent then clearly planning will need to occur quickly or in stages, prioritising critical
foundations, then building on those later. However, it is an essential precondition to success and cannot
be overlooked or ignored.
Not enough time goes into project planning.

Ensuring sufficient time has been given to planning requires senior-level attention and leadership, as
well as application of the right skills. Development of effective plans will invariably involve negotiation
within and across organisational boundaries, consultation with third parties, compromise on variables
such as cost, timing, scope and quality, and decisions about interactions, roles and responsibilities. It
is essential that critical dependencies are understood.
While an initiative may be greenfields, it is rare that an implementation challenge is entirely new to an
entity. One of the practical contributions that a senior responsible officer can make is to draw on relevant
lessons, including leveraging skills and knowledge from past implementation experience, both within
the entity and from external experience. This may seem an obvious point, but can be easily overlooked
in the rush to roll-out an initiative.41
Part 2 Chapter 6
Where time allows, it is also useful to consider the options for testing the implementation at an early
stage. This may help avoid over-engineered implementation arrangements and also identify opportunities
to lessen the effects or burdens on program beneficiariesby streamlining methods of accessing new
systems and reducing compliance costs.
Implementation plan
Better practice implementation plans are scalable and flexible. They reflect the degree of urgency,
innovation, complexity or sensitivity associated with the particular policy measure, and provide sufficient
detail to support and inform successful implementation.
At the least, implementation plans should: present a clear alignment between policy objectives and
implementation activities; make clear the assumptions that have been made in policy development;
spell out critical intermediate and final results; and identify areas of uncertainty, and how and when
they will be clarified.
Implementation planning should reflect adequate consideration of key risks to implementation, throughout
the entire implementation processnot just at the beginning. This is particularly important where policy
or program implementation involves untested service delivery models or new technology, or where
significant behaviour change is expected.
Implementation plans developed as part of policy development and Cabinet processes can provide an
effective basis for ongoing planning by entities.
41 Chapter 8 in Part 2Monitoring, review and evaluation contains further discussion on instilling a learning culture.
45
Plans should provide a logic map42 of how an initiative will be implemented. The plan should be designed
to help the implementing entity identify the key steps necessary for the initiative to meet the intended
policy outcomes.43 Figure 7 on page 47 outlines matters that might be included in the implementation
plan.
Experience indicates that in the development of implementation plans, particular attention needs to be
given to:
ff the framework for evaluating the success of the implementation44
ff examining ways to achieve the desired outcome at the least financial and regulatory cost45 to both
the implementing entity and participants in the program
ff if legislation is required, the time needed for drafting
ff any requirements for subsequent micro-policy developmentthis can significantly affect the
implementation of the relevant systems, training or other requirements, and
ff the role of third parties in deliveryinsufficient planning and consultation can mean that different
players have a different view of the priorities or optimal approaches.
The likelihood of effective cross-entity implementation is greater when there is an overarching, high-level
implementation plan that is coordinated by a nominated lead entity and contains clearly defined critical
crossentity dependencies and responsibilities.
It is vital that there is a clear and commonly understood identification of key elements of shared
implementation planning. These elements may include: governance and decisionmaking arrangements;
possible resource and scheduling constraints; risk management strategies; shared funding arrangements;
the procurement and management of contracts; and monitoring, evaluation and reporting responsibilities.
Each entity can have their own project plan, but you need to have
one master plan to make it work.
Consideration of time, costs and resources required

Regardless of how structured the development of a plan is, getting the timing and resourcing right is
likely to be difficult. Consultation within, and as necessary, outside the entitydrawing in all those who
are best informed on the various issues relevant to implementation of the initiativeis a prerequisite to
getting it right.
42 A program logic map helps facilitate effective planning, implementation and evaluation by: illustrating the relationships
between the initiatives resources, activities and planned outputs; guiding decision-making; and demonstrating how planned
activities will contribute to the initiatives objectives.
43 Department of the Prime Minister and Cabinet, Cabinet Implementation Unit ToolkitPlanning, June 2013. Available at <http://
www.dpmc.gov.au/implementation/docs/implementation_toolkit/implementation-toolkit-1-planning.pdf> [Date accessed:
24 June 2014].
44 Evaluation is discussed further in Chapter 8 in Part 2Monitoring, review and evaluation.
45 Department of the Prime Minister and Cabinet, The Australian Government Guide to Regulation, March 2014, available from
<http://www.cuttingredtape.gov.au/handbook/australian-government-guide-regulation> [Date accessed: 14 April 2014].
46
Figure 7: Example contents for an implementation plan46
Implementation Plan
Table of Contents
Objectives of the initiative ...........................................................................................................1
Map of implementation inputs and activities against the Governments policy outcomes ........2
Dependencies with other policies or activities ............................................................................3
Key tasks and milestones .............................................................................................................4
Timeframes for each phase of the implementation .........................................................6
Roles and responsibilities .............................................................................................................7
Senior leaders ...................................................................................................................7
Implementation team .......................................................................................................8
Stakeholders................................................................................................................................ 10
Key stakeholders ............................................................................................................ 10
Approaches to be used to engage stakeholders ............................................................. 12
Benets expected from the implementation .............................................................................. 14
Measuring the achievement of benets ......................................................................... 15
Key assumptions......................................................................................................................... 16
Risk management ....................................................................................................................... 16
Managing potential barriers to implementation............................................................ 17
Relevant regulatory and legal requirements .............................................................................. 18
Part 2 Chapter 6
Resources and capability ............................................................................................................20

Staff ................................................................................................................................22
Engaging specialists and service providers...................................................................24
Procurement ...................................................................................................................25
ICT..................................................................................................................................26
Relevant nancial delegation requirements ...............................................................................27
Performance information ...........................................................................................................28
Key performance indicators ..........................................................................................30
Monitoring, review, evaluation and reporting ........................................................................... 32
Source: ANAO.
46 Agencies preparing implementation plans for Cabinet should check the CIUs requirements at <http://www.dpmc.gov.au/
implementation/>.
47
A key issue is ensuring that adequate attention is given to the right balance and type of resources and
skills. It is not just a matter of the quantum of resources, but whether the right people are there to make
it happen. The plan is likely to need to address development of the right skills and training.
In some cases, both time and resources may have to be made available to enable the development of
the capabilities necessary to properly support the implementation initiative, including time for people to
absorb and put into practice new skills and knowledge.
It is important to avoid overly optimistic estimates about the pace of roll-out and the time needed to
implement successfully. Systematic and structured risk management can make a significant contribution
in planning timeframes better.
Unrealistic timeframes can increase the cost and risk of a project,

or lead to its failure.
Having manageable steps and milestones

Projects are subject to less risk to outcomes if they are broken down into manageable steps. The more
specific these steps, the more likely it is that barriers to successful implementation will be identified.
As far as possible, proposed approaches and plans should be tested to ensure that they are well
considered and incremental. Senior responsible officers should be particularly aware of the risks for
ICT-enabled projects.
Milestones should reflect meaningful and assessable deliverables at each stage. Where implementation
involves a range of concurrent or parallel activities, it is important to communicate the separate and
interim milestones and how they fit into the broader implementation structure.
More broadly, there should be enough review points built in so that the project can be amended, or
even stopped, if changed circumstances mean that the anticipated benefits are unlikely to be achieved.
Too little attention is given to breaking development and implementation

into manageable steps.
Change management issues

Major policy initiatives often involve significant organisational change. This is by nature complex, and
requires senior-level attention and leadership as well as the right skills.
Successful change management strategies require strong leadership, structured planning, design,
communication and administration, as well as early and continuous internal and external stakeholder
involvement.
48
Where implementation involves significant service delivery or behavioural changes, it may be necessary
for the senior responsible officer to escalate stakeholder feedback, particularly if this indicates that the
change may be more difficult to implement than expected.
It is important not to underestimate the importance of change management. Insufficient attention to the
change management process may lead to unexpected reactions and resistance to the change, reducing
the likelihood of timely and successful policy outcomes.
Managing changes to plans

Part of successful planning is to recognise the likelihood that the implementation team will be presented
with the need for changes to the planned implementation approach. This could arise due to changes in
the scope or the outcomes required, or due to practical problems arising during the roll-out.
Part of a good plan, therefore, is to incorporate procedures for managing any change. It is important
that changes are appropriately assessed by team management for impact and any possible need to
advise the CEO or the minister. There also needs to be provision for escalation and high-level sign-off
to any revised plans.
The thing that kills implementation is a late system change.

Early planning for reviews and evaluation
Part 2 Chapter 6
There are genuine benefits, including potential efficiencies and savings, from considering, early in the
planning phase, the best approach to reviewing implementation and evaluating policy outcomes. These
benefits include: greater certainty of the key implementation activities contribution to achieving intended
policy outcomes; the effective collection of key performance information to allow managers to monitor
and assess the efficiency and effectiveness of the initiative; and more informed discussions with partner
entities, stakeholders and contractors, where relevant.
Reviews and evaluations also require planning and resourcing, and should be scheduled to allow for
timely implementation adjustments and to inform key decision points. This may include mid-term or
interim reports.
Senior leaders have a responsibility to demonstrate to government that initiatives are implemented well
and are on track to achieve intended outcomes. This is particularly important where a trial or pilot is
being conducted or an initiative is a priority.
Typically, a review or evaluation will be required to produce this evidence. Reviews and evaluations need
a clearly defined purpose and should be able to demonstrate whether or not the intended outcomes,
including interim milestones, are being achieved.
Clearly defining at the planning phase the desired outcomes, key indicators and both intermediate and
long-term outcome measures, will provide focus and maximise the benefit of review and evaluation activity.
Key information and data could be lost if monitoring arrangements are not in place at commencement.
Often data will need to be collected from (or by) others such as partner entities, contractors and
other stakeholders, and these requirements may need to be embedded into any formal contracting
arrangements.
49
Measuring achievements against policy objectives also needs a clearly defined starting point or baseline,
and a target or benchmark position. Establishing the baseline and target may involve collating key
metrics and contextual information at the outset, to track progress from this point towards achievement
of the policy goals.
Review and evaluation activities, including data collection and quality management, may require specialist
expertise. If entities do not have this internal capability, skills may need to be sought from other sources.
The capacity of the entitys ICT systems to capture, store and report the pertinent data should also be
considered as part of the planning phase.
It is also valuable at this time to engage with partners and other stakeholders on matters such as defining
success, timing for periodic reviews and policy evaluations, and the what and how of conducting
these exercises.47
47 Review and evaluation activities are discussed more fully in Chapter 8 in Part2Monitoring, review and evaluation.
50
7 Resources
Misalignment between resources and needs at the roll-out stage creates a
significant risk that the implementation team will be unable to deliver the required
outcomes in the required time period.
Potential constraints, such as the capability of information and communications
technology systems and staff expertise, should be identified and dealt with at the
earliest possible opportunity.
Successful implementation will generally require entities to draw on the full range of human, physical and
ICT resources available to them, and may well involve entities looking externally for relevant resources.
Notwithstanding factors such as the quality of planning and risk management, a crucial test is always
that the right type and quantum of resources are available when required to prepare for and roll-out
the initiative.
A checklist of key implementation considerations relating to resources is presented on the next page.

Implementation requires the right mix of skills and resources to achieve expected policy objectives.
Positive results are more likely where adequate consideration of the various resources required for
successful outcomes is incorporated into the implementation planning.
Part 2 Chapter 7
Implementation often requires specific capabilities and skill sets. Availability of the required mix of skills
can be assisted by effective workforce planning and skills developmenthelping to deploy a workforce
that is capable, agile, and well-trained.
Consideration of staffing and skills required to implement the initiative

An early assessment of the required and available resources and skills should be conducted during
implementation planning. There needs to be clear identification of the different types of skills needed at
the different stages and how they can be best integrated and utilised by the project.
One of the most common implementation problems is the unavailability of personnel with the skills and
knowledge to implement initiatives. Even where skilled personnel are available, they may face conflicting
priorities, with a consequential risk to implementation.
In addition to their particular skills, each member of the team also has a personal responsibility to make
a broader contribution to the success of the implementation initiative. This might extend to such matters
as: identifying changes in risks or risk treatments; being alert to issues arising that need to be addressed
and escalating these as appropriate; and contributing ideas. The expectations of the senior responsible
officer around these personal responsibilities should be clear.
51
Checklist of key implementation considerationsResources

The following checklist may help senior leaders when considering whether arrangements for
implementation resources have been adequately addressed.
Key questions: Resources
;; Does the entity have the right resources, capabilities and skills to undertake the
implementation? If not, can they be acquired in the timeframe required, or should consideration
be given to full or partial implementation by another entity?
;; Are there skilled and experienced people available to support the implementation team? If not,
does the entity have access to appropriate external expertise?
;; Does each member of the implementation team understand and accept their personal roles
and responsibilities? Are appropriate accountability practices in place?
;; Is there alignment between resources available and implementation imperatives?

;; Depending on the relative priority of this initiative, do resources need to be adjusted in other
areas of the entity in order to ensure that this initiative is adequately resourced?
;; Has the issue of resource availability been adequately reflected in risk management plans, and,
if necessary, drawn to the attention of the responsible minister?
;; Are there adequate approaches for estimating, monitoring and controlling expenditure on the
implementation?
;; Are information and communications technology (ICT) systems and resources sufficient to
support the implementation? Are they secure?
52
As outlined earlier in the guide, engaging people with implementation skills, knowledge and experience
during the policy development stage is crucial. Equally, better solutions can be achieved when the key
staff responsible for development of the policy are consulted during the implementation phase. Such
consultation is important to help ensure there is sufficient understanding of details of the policy design
and for assessing whether the implemented solution will meet the intent of the policy.
Need to recognise there are different skills required for implementation.

Training needs are sometimes shortcut during implementation. However,
there are costs to the program on cutting back resources, communication
and training.
Where implementation skills for an initiative are in short supply, or outside an entitys traditional skills,
consideration should be given to employing outside expertise. In these cases, a transfer of knowledge
back to the entity is required to minimise the risk of skills being lost once the consultant or contractor
completes the contract.
Training needs for successful implementation are an important consideration to ensure the required
capabilities and skill sets are available at the time needed.48 This may require consideration of training
methods beyond traditional face-to-face arrangements, such as virtual classrooms, elearning or video
conferencing. Use of such training methods has particular value where the workforce is large, not colocated or where implementation involves service delivery through contracted service providers.
Any residual misalignment between the quantum and skills of the resources available and the imperatives
for the implementation should be assessed for their impact on the likelihood of success of the initiative
and escalated accordingly.
Part 2 Chapter 7
Financial resources
As outlined earlier in this guide, realistic timeframes and systematic planning reduce the likelihood
of significant variance between funding estimates and actual resource usage. Notwithstanding
the robustness of planning, one of the major challenges for entities is applying adequate financial
management to the initiative.
The early involvement of appropriately skilled and experienced financial management personnel is usually
necessary for all but the smallest initiatives.
One of the key issues is sufficient skilled attention to identification of the appropriate funding requirements
for implementation. Generally speaking, this includes an appropriately crafted budget and establishing
the ground rules for managing that budget, including managing contingency funding and financial risk.
48 The CIU runs Implementation Planning Workouts to provide entities with practical information to help improve implementation
planning practices. In addition, the Australian Public Service Commission offers a suite of learning and development programs
and events to support the development of the capabilities of APS employees to deliver on government priorities, objectives
and outcomes. This includes programs dealing with the challenges and methodologies of policy implementation. Refer to
<http://www.apsc.gov.au/learn> [Date accessed: 19 May 2014].
53
Effective financial management includes monitoring and reporting actual expenditure amounts against
budgets to support the capacity to optimise implementation resources. It also involves adherence to
relevant Australian Government legislation and policy requirements, including the requirements of the
Public Governance, Performance and Accountability Act 2013 (PGPA Act).
If the task is important enough, get the right people, and enough of
them, to get the job done.
Detailed and accurate expenditure reports are an essential tool for tracking and controlling the expenditure
that informs decision-making. In the absence of accurate scheduling against milestones, there may be
raised expectations about the progress of implementation.
Systems resources
Information and communications technology (ICT) systems and databases support the delivery of
almost all Australian Government programs and services. It is therefore likely that information technology
capability is a critical success factor in implementing an initiative. Experience has shown, on numerous
occasions, that the use of proven, robust existing technology is preferable to developing new, bespoke
systems.
Experience also shows that this is an area where the risk of failure can be high. Where systems are
inadequate and replacements are not identified early enough in the process, this could have serious
consequences for the progress and cost of implementation.
Whilst there is a substantial body of guidance on processes for the development of ICT systems, there
are some important practical considerations that can assist senior responsible officers in oversighting
projects which have a substantial dependence on ICT system changes or developments.
As with all aspects of implementation, a key consideration is that ICT project development processes
and methodologies are well established and applied consistently through the life of the project. The skills
and experience of the project team, allied with well defined responsibilities, are key factors in achieving
success.
A continuing challenge, especially in highly technical ICT-based initiatives, is that system development
remains aligned with the policy objectives of the initiatives and promised ICT benefits are achievable.
This means subjecting the promised system benefits to a hard-nosed appraisal.
Such technical assessments require close review, and may benefit from independent advice. For instance,
through the ICT Two-Pass Review process or the ICT investment advice initiativeboth sponsored by
the Department of Finance. It is also a reality that ICT systems may be the subject of denial-of-service
or other attacks.
54
Extensive guidance on ICT security50 is available to government entities, and requires consideration as
part of any policy implementation activity. It is easier to make these ICT-based assessments when there
is good communication between the senior responsible officer, IT team members and specialists, and
the rest of the implementation team.
Part 2 Chapter 7
Implementation plans should include structured testing of ICT systems, including that they are secure.51
There should also be formal acceptance and sign-off prior to system implementation. As outlined earlier
in this guide, some policy decisions may need to be implemented rapidly. In such cases, this may mean
that there is not sufficient time to develop the necessary ICT functionality to support the implementation
initiativea situation requiring the careful assessment of risks and potential resource implications.
50 For instance, the Australian Signals Directorate produces the Australian Government Information Security Manual, which
is the standard that governs the security of government ICT systems. The Information Security Manual is available from
<http://www.asd.gov.au/infosec/ism/index.htm> [Date accessed: 17 March 2014].
51 ANAO, Audit Report No.50, 201314, Cyber Attacks: Securing Agencies ICT Systems examined selected agencies
compliance with the four mandatory ICT security strategies and related controls in the Australian Government Information
Security Manual.
55
8 Monitoring, review and evaluation:

a basis for active management
Monitoring, review and evaluation processes provide a basis for the active
management of the implementation. Establishing effective feedback loops
enables the timely adjustment of the other building blocks to facilitate successful
implementation. If major issues emerge, which cannot be addressed by adjusting
delivery arrangements, there may be a need to revisit the baseline policy settings.
The task of implementation should not be regarded as having been completed at the time of delivery.
Quite the contrary. Invariably, what has been planned will not work exactly as intended. Implementation,
to be successful, requires ongoing and active management.
It is essential to establish, as early as possible, appropriate arrangements for monitoring, review and evaluation
activities to facilitate active management. Key considerations include: clarity of the roles and responsibilities;
identifying the key users of the results of the monitoring, review and evaluation activities; and having processes
in place to support timely and high-quality data collection, measurement, analysis and reporting.
Establishing robust accountability arrangements for performance and evaluation activities will also assist
entities to meet relevant reporting requirements.52 Particular care is required to follow-up on specific
reporting obligations established by legislation or ministers, including progress reports requested through
Cabinet processes.
A checklist of key implementation considerations relating to monitoring, review and evaluation is presented
on the next page.
Part 2 Chapter 8
Active managementinformed by well-designed monitoring, review and evaluation activityenables entities

to ensure that adequate resources continue to be available and commensurate with the scope, risk and
sensitivity of the implementation. It also enables entity leadership and ministers to assess implementation
progress, identify and address problems and review the ongoing relevance and priority of the initiative.
Key performance indicators

Many issues encountered during the implementation of programs can be alleviated through planning
processes that include the careful design of performance information to measure program efficiency
and effectiveness.
Outcome measurement provides information about the effectiveness of programs or services, and
supports the longer-term evaluation of programs. In addition, performance information can inform
decisions on the efficiency of delivery models adopted to achieve desired policy outcomes.
52 For instance, under section 38 of the PGPA Act, entities are required to measure and assess their performance in achieving
their purposesincluding the delivery of policy initiatives. Under section 39 of the Act, entities are also required to prepare
annual performance statements for inclusion in their annual report to Parliament.
57
Checklist of key implementation considerationsMonitoring, review

and evaluation
The following checklist may help senior leaders when considering whether arrangements for monitoring,
review and evaluation of the implementation have been adequately addressedto enable active management.
Key questions: Monitoring, review and evaluation
;; Are processes for monitoring, review and evaluation activities in place? Do these activities
address the initiatives progress against key implementation deliverables?
;; Are appropriately skilled resources available to support monitoring, review and evaluation
activities? Have roles and responsibilities been clearly identified?
;; Are there robust key performance indicators in place? The criteria set out in ANAO Report
No.21 201314, Pilot Project to Audit Key Performance Indicators may assist in assessing the
appropriateness of an entitys key performance indicators.
;; Has the design, collection and collation of data to support the measurement of performance
been considered from an early stage? Is the approach adopted sufficient to meet any legislative
or government reporting obligations?
;; Is data supporting performance and progress reporting sufficient for their purpose?
;; Is the implementation subject to the Gateway Review Process? If so, has adequate
consideration been given to the documentation required?
;; Is the initiative part of a New Policy Proposal that is subject to the ICT Two-Pass Review
process? If so, has adequate consideration been given to the documentation and lead times
required?
;; Are risks to success reviewed at appropriate intervals, and are the results of these reviews
provided to senior management and, as necessary, ministers?
;; Are appropriate escalation strategies in place?

;; Are concerns and lessons learned addressed before progressing to the next stage of multistaged initiatives?
;; Is there a willingness to intervene with corrective action or, if necessary, close down the
implementation if benefits are not being achieved or are not on track?
;; In the case of cross-entity initiatives, have reporting responsibilities and requirements been
identified?
;; Is the lead entitys role supported by monitoring activities conducted by other entities? How is
this integrated and assessed to provide a coherent picture?
;; Are there appropriate feedback loops to learn the lessons from the implementation? Are the
feedback loops commensurate to the scale, risk and cost of the initiative?
58
Recent ANAO audits have highlighted that active engagement by entity senior executives can provide
positive results in the area of performance measurement and reporting. Stronger outcomes are also
achieved when appropriate focus and expertise is devoted to performance measurement.53
Where a number of entities share implementation responsibilities, a coordinated approach for monitoring,
review and evaluation is required. A key part of this is clear agreement over where overall responsibility
rests, as well as the individual responsibilities for the different components.
One of the considerations in such arrangements is to give sufficient attention to the risks of incompatible
data between entities and how this will be dealt with. A balance needs to be struck between the benefits
of enhanced data compatibility between entities and the resources needed to collect any additional
information required.
Underpinning all of this is agreement between entities on performance indicators and targets for the
initiative. In some cases, the implementation parties may settle on a common set of performance
indicators to measure the success of the initiative. Equally, however, the parties may agree to maintain
separate, but complementary, performance indicators. In such cases, it is important that the lead entity
understands how each of the partys measures contribute to the overall success of the initiative.
Implementation is a form of learning. One key element of that

learning is to use the monitoring and review process to provide
advice back to the government (including the public service) as
implementation proceeds. This allows both decision makers and
program deliverers to learn from the process and where necessary
adapt their expectations, adjust their approaches and identify new
opportunities.
Source: Former Secretary of the Department of the Prime Minister and Cabinet54
Part 2 Chapter 8
Actively engaging stakeholders

Stakeholders can include those who are involved in delivering the initiative, those who are affected by the
initiative, and those who will use monitoring, review and evaluation findings to inform decision-making.
Involvement from the right stakeholders in planning monitoring, review and evaluation arrangements is
important. Early and regular engagement with stakeholders will foster a strong culture of acceptance and
learning from the outcomes of these processes, whether they are positive or otherwise. Ethical issues
arising in monitoring, review and evaluation activities, such as the management of potential conflicts of
interest, should be considered at an early stage.
53 ANAO, Audit Report No.21 201314, Pilot Project to Audit Key Performance Indicators, February 2014, p.13 and p.23.
54 Dr Peter Shergold AM, Plan and Deliver: Avoiding Bureaucratic Hold-up [Internet], Department of the Prime Minister and
Cabinet, Canberra, 2004, available from: <http://www.pmc.gov.au/speeches/shergold/plan_and_deliver_2004-11-17.cfm>
[Date accessed: 3August2006].
59
Quality and reliability of information

Quality control and quality assurance underpin sound data collection, analysis, reporting and
presentation. Collecting large amounts of information can be counterproductive and costly, for the
entity and stakeholders alike. Senior leaders should ensure that systems are set up for monitoring, review
and evaluation that collect the right data to guide the implementation of policy, and that these systems
have quality checks built in from the start to provide reliable and meaningful data.
Knowing the intended audience for information will also help shape how it is collected and presented.
If the information is not presented in a meaningful way to the intended audience, it may not readily or
effectively inform decision-making.
Making good use of information

The ultimate aim of monitoring, review and evaluation is to inform decision-making and support action,
as needed. Actions may include altering the design and implementation of an initiative to enhance its
effectiveness. Other potential outcomes may include expanding highly successful initiatives, or closing
an ineffective program.
The best way to support decision-making and action is to align reporting with governance structures
and decision-making cycles. This makes the audience and timing of monitoring, review and evaluation
products important considerations in planningensuring that decision-makers receive findings in time
to support analysis, decisions and necessary actions.
Publicly disseminating results will enhance transparency and accountability. However, when considering
public release, it is important to clarify whether public disclosure is appropriate.
Consider the costs of active management

The time, money and expertise needed for monitoring, review and evaluation should be secured at the
beginning of an initiative. Planning reduces the risk that scarce resources may be used inefficiently or
ineffectively.
Data collection, monitoring and management processes may be well established; however this will not
always be the case. A new initiative may require: the development of new management systems and
data collection processes; ICT infrastructure; and the engagement of additional staff, or contracted
experts. Senior leaders should consider the capabilities required and related costs.
How will the initiative be monitored during implementation?

Monitoring of implementation is most effective when there is early consideration of monitoring
arrangements, and agreement on the level and frequency of information to be provided.
Monitoring and reporting requirements should reflect the importance of the initiative and its implementation
risks and also have regard to the administrative burden that data collection and reporting places upon
the implementation team and other entity resources. Reporting is most effective when it delivers the
right level of detail for accountabilities at each entity level.
Early identification of appropriate data sources assists in establishing timely and effective monitoring
activities. The timely reporting of key issues and trends may have a higher priority than ensuring the
precise accuracy of underlying data, particularly for higher risk initiatives.
It is desirable to identify particular monitoring activities such as environmental scans and independent
reviews or health checks, to enable an entity to learn what is and what is not working.
60
Monitoring should also cover the potential risks to implementation budgeting. For example, that the
project might be prematurely committed, overspent, or conversely be unable to spend the full amount
budgeted in the prescribed period. Particular attention to monitoring expenditure needs to be applied
where implementation involves funding to third parties.
Monitoring is more effective when it is performed by personnel with skills and knowledge specific to
the implementation being undertaken and who have adequate administrative resources to process
routine monitoring data. Results will be optimised when governance arrangements are robust enough
to ensure that monitoring teams will escalate issues as appropriate and that bad news is not filtered
out in progress reports.
Effective management, monitoring and reporting arrangements will keep senior management informed
of the progress of key initiatives, and reduce the time and cost of addressing external reporting
requirements, such as the provision of reports to the CIU. It is preferable that internal accountability
arrangements are well aligned with external requirements to reduce rework and provide consistent
standards and expectations.55
Review of progress and initiating any corrective action

Reviewing the progress of the initiative is not a compliance-driven overhead, but a fundamental element
of sound governance and quality management.56 It supports ongoing assessment of progress and risks
and informs decisions about whether an initiative, as planned, is still achievable, or whether its scope,
timing or resourcing need to be adjusted. Reviewing the progress of an initiative will also enable senior
management to maintain an appropriate balance between considerations of quality, time and costs.
The senior responsible officer is central to the review process through ensuring project teams provide
timely and reliable status reports throughout the implementation and that there is prompt assessment
of the reports and any risks to success.
A part of appropriate response arrangements is the willingness to escalate issues to senior management
and, as necessary, ministers, in a way that allows them to focus on the key issues and possible solutions.
In this context, bad news may be more important for management attention than good news, and needs
to be passed on and listened to.
Part 2 Chapter 8
Where the implementation of an initiative is multi-staged, it is particularly important that any concerns
or lessons from each stage are assessed, escalated as necessary, and resolved. Issues arising should
be appropriately addressed before implementation progresses to the next stage.
When unforeseen issues arise and solutions are identified, the implementation plan will need to
be adjusted accordingly. Review arrangements should provide for agreed corrective actions to be
communicated to project managers and followed through in a systematic manner, to ensure the issues
are appropriately addressed.
55 The Gateway Review Process provides a further tool to improve the delivery of major projects and programs. The purpose
of these reviews is to provide independent assurance and advice to the implementing entity at key points across the
implementation lifecycle. See Department of Finance website <http://www.finance.gov.au/gateway/review-process.html>
[Date accessed: 19 March 2014].
56 Reviews tend to focus on operational issuesincluding the effectiveness of governance and project management structures
although they can help inform decision-makers about likely policy outcomes. Department of the Prime Minister and Cabinet,
CIU Toolkit: Monitoring, review and evaluation, p.2.
61
Evaluating the quality of the implementation

There can be a tendency to leave consideration of arrangements for evaluation until after implementation.
However, as discussed in Chapter 6 in Part2Planning, evaluating the performance and success of an
initiative at key points during the implementation process can help entities assess the extent to which
the implementation approach adopted contributed to achieving policy objectives.
An important consideration at this stage is discussion and agreement on establishing the baseline for
the initiative and what success against the baseline looks like. The baseline is the point of reference
against which evaluations can assess the progress and measure the results of the initiative being
implemented.
Timely evaluation activities will allow progress towards the Australian Governments outcomes to be
tracked more effectively, as well as enabling the early identification and measurement of whether intended
benefits are being realised. Timely and robust tracking of the initiatives progress towards the achievement
of planned outcomes can better position entities to identify and, as appropriate, escalate potential issues,
in turn, enabling implementation arrangements to be adjusted where necessary.
Evaluation activities can also contribute to continuous learning and improvement processes. Specifically,
entities should have mechanisms in place for identifying pertinent lessons from the initiatives
implementation and for transferring the relevant knowledge and learnings into the refinement of
implementation arrangementsincluding learnings that may contribute to the delivery of future policy
initiatives.
Reporting the results of an evaluation is not an end in itself. The findings

need to be applied so that the original purpose of the evaluation is
achieved.
Source: Cabinet Implementation Unit57
Figure 8 on page63 sets out some of the potential advantages of capturing details of learnings and
making them readily accessible throughout an entity.
The success of evaluations is underpinned by considerations such as: the type of questions being
asked; the quality of the evidence collected; the soundness of the analysis undertaken; as well as the
professionalism and independence of the evaluation team. Choosing an evaluator with inadequate
expertise or resources, or who lacks familiarity with the initiative, can undermine the findings. So too
can weak stakeholder engagement or poor communication of results.
57 Department of the Prime Minister and Cabinet, Guide to Implementation Planning, 2014, p.22, <http://www.dpmc.gov.au/
implementation/planning.cfm> [Date accessed: 17 March 2014].
62
Figure 8: Benefits of capturing learnings
Enhanced
accountability in
terms of assessing
what outcomes
were achieved
Better resource
allocation,
including
resources
required for
evaluation
activities
Capturing and
disseminating
lessons learned
can promote
Improved design of
metrics used to assess
performance, as well
as the data collection
methods
Organisational
learning and
good
practice
Improved
decision-making
around policy
design and
implementation
Source: ANAO.
Evaluators and entity management need to consider issues of causality (how to assess the extent that
evaluation results are influenced by, or attributable to the initiative), particularly when results are being
used to inform resourcing decisions. A soundly-based and transparent methodology can contribute to
the quality of an evaluation and its findings.
Part 2 Chapter 8
Evaluations can also inform decisions on whether to: escalate issues to senior leaders or responsible
ministers; review implementation approaches and planning; and assess the ongoing relevance and
priority of an initiative. In this respect it is a further enabler of active management within an entity.
63
References and further information

References
Advisory Group on Reform of Australian Government Administration, 2010, Ahead of the GameBlueprint
for the Reform of Australian Government Administration, Commonwealth of Australia, Canberra.
Althaus, C, Bridgman, P and Davis, G, 2012, The Australian Policy Handbook, 5th ed., Allen and Unwin,
Sydney.
Australian National Audit Office, 2009, Better Practice Guide, Innovation in the Public Sector: Enabling
better performance, driving new directions, Canberra.
Australian National Audit Office, 2014, Better Practice Guide, Public Sector Governance: Strengthening
performance through good governance, Canberra.
Australian National Audit Office, 2010, Better Practice Guide, Planning and Approving Projectsan
Executive Perspective: Setting the foundation for results, Canberra.
Department of Finance and Deregulation, 2008, Comcover Better Practice Guide - Risk Management,
Canberra.
Department of the Prime Minister and Cabinet, 2013, Cabinet Implementation Unit Toolkit, Canberra.
Department of the Prime Minister and Cabinet, 2014, Guide to Implementation Planning, Canberra.
Edwards, M, Halligan, J, Horrigan, B and Nicoll, G, Public Sector Governance in Australia, 2012, ANU
E Press.
Lindquist, E, Vincent, S and Wanna, J (eds), 2013, Putting Citizens FirstEngagement in Policy and
Service Delivery for the 21st Century, ANU E Press, Canberra.
McPhee, I, Auditor-General for Australia, Effective Risk Management, paper presented to the Department
of Parliamentary Services, Canberra, February 2011.
McPhee, I, Auditor-General for Australia, Risk is all Around, paper presented to the Risk Management
Institution of Australasia, Canberra, September 2010.
McPhee, I, Auditor-General for Australia, What does it mean to use public money well?, panel discussion
at the Australian Government Leadership Network Annual Conference, Brisbane, July 2014.
References and further information
National Audit Office, 2001, Modern Policy-Making: Ensuring Policies Deliver Value for Money, report by
the Comptroller and Auditor-General HC 289 Session 20012002, the Stationery Office, London.
OECD, 2009, Focus on CitizensPublic Engagement for Better Policy and Services, OECD Publishing, Paris.
Royal Commission into the Home Insulation Program, 2014, Report of the Royal Commission into the
Home Insulation Program, Commonwealth of Australia, Canberra.
Further information
Cabinet Implementation Unit
The Cabinet Implementation Unit in the Department of the Prime Minister and Cabinet assists with the
implementation and delivery of the Governments agenda. This includes providing the Prime Minister and
the Cabinet with regular progress reports and working collaboratively across Government to support
implementation of key decisions on time, on budget and to the Governments expectations.
Further details on the Unit, including guidance on the preparation of implementation plans, is at
<http://www.dpmc.gov.au/implementation/index.cfm >.
65

The Australian National Audit Office (ANAO) is a specialist public sector practice providing a full range
of audit services to the Parliament and Commonwealth public sector entities and statutory bodies. The
ANAO assists the Auditor-General to provide an independent view of the performance and financial
management of public sector entities and bodies. The ANAO has developed a range of Better Practice
Guides which outline a series of better practice elements that, if adopted, will encourage more efficient
and effective achievement of organisational goals and objectives.
Further information on the ANAO, including links to audit offices in other jurisdictions in Australia and
internationally is at <http://www.anao.gov.au>.
The Department of Finance

The Department of Finance is a central entity responsible for advising on and implementing many key
Government priorities. Among other things, Finance is responsible for the conduct of Implementation
Readiness Assessment Reviewsto provide assurance to Government and entity CEOs on the
implementation readiness of certain proposed programsand Gateway Reviewsto provide assurance and
advice to entities to improve the delivery and implementation of policies, projects, programs and services.
The Department of Finance is also responsible for: the ICT Two-Pass Review Processwhich is designed
to provide Cabinet with better information to support decision-making on major investments in ICTenabled proposals; providing advice to entities on ICT investments; and the Agency Capability Initiative
which is designed to improve entities organisational capability to commission, manage and realise
benefits from ICT-enabled investments.
Comcover, the Australian Governments self-managed general insurance fund, is also part of the
Department of Finance. Comcover provides insurance and risk management services to Australian
Government entities. Comcovers risk management program assists entities to obtain the knowledge,
skills and expertise required to assist with the successful implementation and integration of risk
management within their organisations.
Further information about Finance is available at <http://www.finance.gov.au>.
Australian Public Service Commission

The Australian Public Service Commissions (APSC) role is to promote, review and evaluate a valuesbased Australian Public Service and to foster its capability. The APSC provides a wide range of leadership
events and training activities including program design, implementation and delivery, which have been
developed to meet the needs of APS leaders and their entities. Further information may be found at
<http://www.apsc.gov.au/learn>.
Australian Bureau of Statistics

The Australian Bureau of Statistics (ABS) is Australias official statistical entity; providing statistics on a
wide range of economic, social, population and environmental matters, covering government, business
and the community. The ABS provides leadership and coordination with respect to the statistical
activities of other official bodies, both in Australia and overseas. The ABS also provides statistical advice,
assistance and guidance to other government entities to assist decision making in policy development
and policy implementation initiatives, including in relation to establishing baselines, data collection and
measuring performance.
Further information about the ABS, including access to a broad range of statistics and services, is
available at <http://www.abs.gov.au>.
66
Index
A
Active management. See Building blocks for

successful implementation: monitoring, review
and evaluation
Enabling services, 11
Australian Bureau of Statistics, 66

Australian community
engaging with, 15, 35, 39
Evaluation. See Building blocks for successful

implementation: monitoring, review and
evaluation
Exit strategies, 27, 48

audit reports, 3, 33, 41
better practice guides, 45, 21, 24, 29, 35,
3739, 42
Australian Public Service Commission, 3, 53, 66
Implementation plans, 41, 43, 46

changes to, 49, 62
contents of, 4547, 49, 51
Baseline, 50, 62
Building blocks for successful implementation, 5
engaging stakeholders, 11, 15, 35, 3741, 42, 59,
62
financial resources. See Financial management
governance, 9, 11, 18, 21, 23, 26, 37, 46, 6061
monitoring, review and evaluation, 17, 33, 49,
5762
personnel. See Capabilities
planning. See Implementation planning
risk management. See Implementation risks
system resources. See information and
communications technology
C
Cabinet Implementation Unit, 35, 43, 61, 65
Capabilities, 12, 32, 48, 51, 53, 60
Central agencies, 9, 24
Financial management, 41, 45, 46, 53, 54, 6061

Front-line staff, 11, 16
Implementation risks, 11, 13, 1617, 23, 2934, 45,

51, 60
engaging stakeholders, 3739, 4042
information and communications technology
systems issues, 55
mitigation, 32, 33
whole-of-government issues, 24, 59
Independent assurance reviews, 26
Information and communications technology, 11, 15,
37, 48, 5051, 5455, 60
Innovative practices, 16, 31, 37
L
Lessons learned, 12, 31, 45, 53, 6162
Change management, 21, 40, 45, 48
Management reporting, 24, 2627, 32, 43, 46, 54,

57, 60, 5961
Chief executives, 3, 21, 34

advice to ministers, 17, 31, 41
Ministers, 12, 17, 18, 23, 31, 41, 49, 57
Conflicts of interest, 26, 38, 4142, 59
Monitoring. See Building blocks for successful

evaluation
Contingency measures, 13, 18, 3334, 53
Performance indicators, 47, 57
Department of Finance
gateway reviews, 3, 61, 66
two-pass reviews, 3, 54, 66
Policy design. See Policy development
Communication strategy, 41, 55
Index
Assumptions, 18, 45
Essential preconditions and capabilities, 910, 11,

12, 45
Policy development, 9, 14, 1518, 31, 35, 39, 41, 43,

45, 53
Policy outcomes, 9, 13, 16, 31, 43, 4546, 49, 62
Public Governance, Performance and Accountability
Act 2013, 12, 24, 29, 54, 57
67
R
Record keeping, 18, 42
Reviews. See Building blocks for successful
evaluation
Risk appetite, 16, 31, 32
S
Senior responsible officer, 12, 17, 23, 2627, 45, 51,
61
engaging stakeholders, 4041
implementation planning, 45
information and communications technology
issues, 48, 54
managing change, 49
managing risks, 3233
Social media, 37, 40, 42
T
Time pressures, 17, 31, 48, 53
Training. See Capabilities
W
Whole-of-government, 15, 24, 26, 46, 59
68

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Successful

Better Practice Guide

Commonwealth of Australia 2014

Foreword by the Secretary of the

Better Practice Guide | Successful Implementation of Policy Initiatives

Essential preconditions and capabilities for successful implementation......................................9

Implementation: a key part of policy design............................................................................................. 13

Part 2 Building Blocks for Successful Implementation........................................................................... 19

Managing risk ......................................................................................................................................................... 29

Monitoring, review and evaluation: a basis for active management.............................................. 57

Better Practice Guide | Successful Implementation of Policy Initiatives

References and further information....................................................................................................................... 65

Better Practice Guide

Focus and Structure

Focus of the guide

Focus of the guide

4 Refer to <http://www.finance.gov.au/publications/gateway-publications/lessons-learned.html> and <http://www.finance.

Better Practice Guide | Successful Implementation of Policy Initiatives

Structure of the guide

Better Practice Guide | Successful Implementation of Policy Initiatives

Figure 1: Better practice considerations for successfully implementing policy initiatives

Better Practice Guide

1 Essential preconditions and capabilities

The essential preconditions and capabilities for successful implementation include:

Key considerations for senior leaders

Get the implementation agencies in right at the beginning of the policy

Checklist of key implementation considerationsEssential

Key questions: Essential preconditions and capabilities for successful implementation

;; What advisory and quality assurance mechanisms are in place?

Better Practice Guide | Successful Implementation of Policy Initiatives

Better Practice Guide | Successful Implementation of Policy Initiatives

2 Implementation: a key part of policy design

It is essential to inform the Government of any significant risks to implementation

Key considerations for senior leaders

It really pays off to consider upfront how are we going to do it?

Checklist of key implementation considerationsImplementation: a

Key questions: Considering implementation issues at every stage of policy design

;; Have the views of key stakeholders been sought and considered?

;; Have appropriate record keeping and accountability mechanisms been established?

Better Practice Guide | Successful Implementation of Policy Initiatives

Figure 2: Options for the delivery of a policy initiative

or a combination of these options

Using the experience of the implementers during policy development

You need to get implementers at the table early during policy

Identifying, assessing and advising of risks

risk management is one of those disciplines [that] if done well,

Better Practice Guide | Successful Implementation of Policy Initiatives

Adequate consideration of the timeframe for the policy to be implemented

Consideration of contingency measures and assumptions made

Accuracy of projections on expenditure and uptake is the hardest thing

Record keeping and accountability

Better Practice Guide | Successful Implementation of Policy Initiatives

Better Practice Guide

Those charged with governance in public sector agencies have a

A critical prerequisite for successful implementationespecially that involving significant changes to an

Checklist of key implementation considerationsGovernance

Key questions: Governance

;; Are there whole-of-government dimensions to the delivery of the policy? If so:

;; Has consideration been given to identifying any relevant legislatively-based reporting

Better Practice Guide | Successful Implementation of Policy Initiatives