Part two

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Output 4: Evaluation

Output 4 is drawn from the Public Service Commissioner’s statutory role, listed in sections 41 and 44 of the Act, in particular, her responsibilities to:

report annually on the state of the Australian Public Service
evaluate the extent to which agencies incorporate and uphold the APS Values
evaluate the adequacy of systems and procedures in agencies for ensuring compliance with the Code of Conduct
review and evaluate APS employment policies and practices.

Achievements

Our achievements under Output 4 this year included:

publishing the State of the Service series of reports
completing an evaluation of agency management of suspected breaches of the Code of Conduct
completing the first in a series of rolling evaluations of agency diversity plans
initiating evaluations of Indigenous employment in the APS and agency remuneration policies
maintaining the APS Employment Database (APSED), including improving the regularity and integrity of agency data (excluding employee-provided data) given to APSED, and conducting data analysis
enhancing the APSED Internet Interface (APSEDII)—an Internet accessible data reporting tool for APS employment.

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Slippages

Due to other Commission priorities, we deferred our publishing timeframe for the Good practice guide on management of suspected breaches of the Code of Conduct in APS agencies. The guide is now due for release in 2005–06.

The total price for Output 4 for 2004–05 was $2.406 million.

Provide data from the APS Employment Database

We maintain APSED as a source for publishing key workforce statistics. APSED is an important basis of information for the State of the Service Report, as well as for Management Advisory Committee research. APSED data also enables us to help agencies with workforce planning by providing them with benchmarking and agency-specific data.

Users can request cross-tabulations of unpublished data. Recent examples include extracting length of service data and length of service at level by classification data for an agency, to allow comparison with APS benchmarks.

APS Employment Database Internet interface

Users can also access aggregated data directly through the APSED Internet Interface (APSEDII) at <www.apsedii.gov.au>. The interface promotes better practice in workforce planning and benchmarking, allowing agencies to produce data similar to that published in the APS Statistical Bulletin. APSEDII produces charts and tables, and also permits users to download the queried results and to further manipulate the data in other applications. The interface is presented in a user-friendly point-and-click style with instructions and help available on the web site. This year we introduced enhancements to APSEDII that allow users to extract data for organisations not separately identified in the APS Statistical Bulletin, as well as more options for formatting output.

Agencies will be trialing Stage 2 of APSEDII, which will make it possible for designated individuals within agencies to access the system through a secure logon and password procedure, in the first quarter of 2005–06. This level of access will allow users to look at unit record data for staff in their agency, provide more detailed information for workplace pla

Table 20: Performance Information—Output 4.1.1—Provide data from the APS Employment database to agencies

Target	Result
Estimated price: $0.060 million	Actual: $0.148 million Higher than estimated price owing to greater emphasis being given to providing agencies with APSED data (including through APSEDII)
Quantity
Internet accessible data reporting tool for APS employment data.	Achieved: APSEDII is fully functional, with enhancements made during the year. Stage 2 will be launched in the first quarter of 2005–06.
Quality
Usefulness of reporting tables and reliability of data.	Achieved. Improved data quality through ongoing liaison with agencies and human resource vendors. APSED data specifications revised, providing more information to assist agencies in providing clean data. Implemented process designed to utilise Gazette data in order to improve quality of APSED.

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Evaluate and provide information on APS performance through State of the Service Report (including Workplace Diversity Report) and Statistical Bulletin

Focus: State of the Service
Find out more about the critical challenges for the APS highlighted in the State of the Service report.

The Commission evaluates the performance of the APS through the Commissioner’s State of the Service Report (including the Workplace Diversity Report) to parliament.

Under section 44(2) of the Act, the Public Service Commissioner is required to report annually on the state of the APS. While the Act does not specify the issues to be covered in the report, the Commissioner’s approach has been to focus evaluation on the extent to which agencies incorporate and uphold the APS Values (in line with section 41(1)(a) of the Act).

The State of the Service Report 2003–04 was closely structured around the four groups of APS Values. Sections covered relations with the Government and parliament, relations with the public, workplace relationships and personal behaviour. Other chapters included embedding the APS Values, workplace diversity and building APS capability.

We drew upon diverse and complementary data sources to develop the State of the Service Report 2003–04. These sources included the Commission’s own research and databases (particularly APSED), published and unpublished material from other agencies (particularly central agencies) and parliamentary committee and Australian National Audit Office reports.

We also undertook two surveys, over two years. The first agency survey provided information on a wide range of management and capability issues in agencies with 20 or more APS employees. In the second year we conducted the agency survey online and achieved a 100% response rate from the 87 agencies involved. However, late responses from some agencies caused some problems.

Our second annual employee survey, sent to almost 6500 randomly selected APS employees, provided data on employee attitudes to, and understanding of, a range of issues. Among these were the APS Values, the Code of Conduct, merit, work/life balance, job satisfaction, whole-of-government issues, relations with the Minister and parliament, diversity, individual performance management, discrimination, bullying and harassment. The 2004 employee survey had a 50% response rate—down slightly from 2003 (51%) but a creditable result for a voluntary survey.

In addition to using the surveys to inform the Commissioner’s State of the Service Report 2003–04 we provided large agencies (that is, those with over 1000 APS employees) with summaries of their own employees’ responses to the employee survey where they were statistically valid. We also provided small and medium sized agencies with a benchmark summary of all small or medium sized agencies, respectively. In addition, we produced a publication, State of the Service Employee Survey Results 2003–04, which made the results of the employee survey available to the Australian public in a collated, aggregate form.

The Joint Committee of Public Accounts and Audit and the Secretary of the Department of the Prime Minister and Cabinet have approved the tabling of the State of the Service Report by the end of November each year. Consequently, the State of the Service Report 2003–04 was tabled in parliament on 30 November 2004.

We distributed hard copies of the report to APS agency heads, corporate heads of management, all SES staff, agency contact officers for surveys and the human resource directors network. Copies were also made available to diversity coordinators; state, territory, and New Zealand Public Service Commissioners; selected non-APS agency heads; relevant academics; and overseas contacts. Similarly, we provided hard copies of the State of the Service Employee Survey Results 2003–04 to APS agency heads, corporate heads of management, agency contact officers and state, territory and New Zealand Public Service Commissioners. Both publications are available on the Commission’s web site.

The 2003–04 report highlighted five critical challenges for the APS in the coming year:

Building and sustaining the capability of the APS—the need to balance leadership capabilities, management skills and technical or professional skills and ensure the APS is an employer of choice attracting and retaining the best.
Sustaining whole-of-government capacity—apart from the capacity to work productively across agencies, the challenge also involves the capacity to work productively with other jurisdictions and non-government organisations and to engage with citizens.
Ensuring diversity in the APS —there are two key diversity challenges: Indigenous employment and employment of people with a disability. Both groups of employees are in long-term decline in the APS and current strategies are not working well.
Ensuring an effective relationship between the APS and the Government and parliament—in particular, the importance of clearly understanding the APS Values as they relate to working with the Government and parliament and improving the confidence of APS employees in this interaction.
Embedding the APS Values and the Code of Conduct—building on recent progress, the challenge is to ensure that new employees are correctly inducted, new leaders appreciate their statutory responsibility to promote the APS Values and agencies have supportive management and assurance mechanisms.

APS Statistical Bulletin

The APS Statistical Bulletin 2003–04 presented a snapshot of APS-wide staffing at June 2004, and of staff movements during 2003–04. The bulletin also included summary data for the past 10 years. Its format followed that of the previous year.

We distributed the 2003–04 bulletin to all APS agency heads, members of the Corporate Management Network (COMNET), state, territory and New Zealand Public Service Commissioners and major public and university libraries. It is available in hard copy and electronically on the Commission’s web site. The electronic version allows users to download tables without needing to manually enter data. We improved the layout of the electronic version to enable users to move more easily between tables.

The bulletin provides useful information to agencies engaged in benchmarking themselves against APS-wide trends and workforce planning.

Table 21: Performance Information—Output 4.2.1— State of the Service Report (including Workplace Diversity Report) and Statistical Bulletin

Target	Result
Estimated price: $0.933 million	Actual: $0.978 million Consistent with estimated price
Quantity
Annual State of the Service Report (including the Workplace Diversity Report) and Statistical Bulletin.	Achieved: Produced State of the Service Report 2003–04 (including Workplace Diversity Report), APS Statistical Bulletin 2003–04 and State of the Service Employee Survey Results 2003–04.
Quality
100% compliance with tabling requirements for Government.	Achieved: State of the Service Report complied with Government tabling requirements. Reports produced to high standards of accuracy.
Accurate and useful reports to Government and parliament on the performance of the APS.	Positive feedback received on the State of the Service Report 2003–04 from senior public servants and agency contact officers. This included: 91% agreed the report was a useful resource; 93% agreed that the inclusion of the employee survey results added value; 78% agreed that they discussed report findings with other staff.

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Undertake specific-issue evaluations

We conduct research and undertake evaluations that support the Commissioner in promoting the APS Values and Code of Conduct and contribute to a sustainable, contemporary and vital public service. An element of our evaluation and assurance strategic priority for 2004–05 was the continuing programme of specific-issue evaluation projects.

The major project we completed in 2004–05 was an evaluation of agency management of suspected breaches of the Code of Conduct. Work on this project began in 2003–04 and the results of the evaluation were reported in the State of the Service Report 2003–04. The evaluation examined the management of suspected breaches of the Code of Conduct in six agencies. We found that all six agencies treated misconduct seriously and had established Code of Conduct and whistleblower procedures. However, we also found inconsistency in their application within agencies and a number of quality assurance issues that required attention. A good practice guide for agencies drawing on the findings of the evaluation is being prepared and is due for release in 2005–06.

The evaluation programme also included a number of other projects:

Preparation of a good practice guide on interactions with ministerial offices, based on an evaluation conducted in 2003–04 (results were published in the State of the Service Report 2003–04). The evaluation found that employees’ confidence in balancing the APS Values when dealing with ministerial offices was enhanced when documentation and agency leadership target the issue. At the same time, it found that agency documentation and promotion of relevant protocols varied. Publication of the guide is expected in 2005–06.
A rolling review of all APS agencies’ written workplace diversity programmes to determine whether agencies are effectively meeting statutory requirements. In 2004–05, we finalised the first stage of this review and results were reported in the State of the Service Report 2003–04. The evaluation concluded that most agencies have taken substantial and positive steps towards satisfying the requirements of workplace diversity programmes. However, it also concluded that the quality of performance indicators could be improved. More specifically, the investigation revealed that a broad approach to workplace diversity appeared, in some cases, to be being implemented at the expense of more specific initiatives aimed at removing employment disadvantage for target groups. The second stage of the rolling evaluation has also been completed and results will be reported in the State of the Service Report 2004–05.
An evaluation of agencies’ written remuneration policies was begun in late 2004–05: it is expected to be completed in the first quarter of 2005–06 and results reported in the State of the Service Report 2004–05.
An evaluation of agencies’ approaches to employing Aboriginal and Torres Strait Islander people was started in late 2004–05. It is scheduled for completion in the second half of 2005–06, with results to be reported in the State of the Service Report 2005–06.

Table 22: Performance Information—Output 4.2.2—Undertake specific-issue evaluations

Target	Result
Estimated price: $0.444 million	Actual: $0.244 million Lower than estimated owing to reallocation of resources to other areas of higher priority, including the State of the Service Report.
Quantity
At least one new evaluation and ‘good practice’ guide aimed at improving the performance of APS departments and agencies.	Achieved: One major evaluation of agency management of suspected breaches of the Code of Conduct completed. Two stages of a rolling review of workplace diversity programs completed. Two ‘good practice’ guides near completion (‘Reporting and Managing Misconduct’ and ‘Supporting Ministers, Upholding the Values’).
Quality
High level of satisfaction of agencies directly involved in the evaluation that the evaluation and ‘good practice’ guide will assist in improving future performance.	Achieved: A broad consensus among the reference group of participating agencies about the accuracy of the conclusions of the overall evaluation report regarding the evaluation of agency management of suspected breaches of the Code of Conduct.
More general feedback from other APS agencies that the ‘good practice’ guide will assist in improving performance.	Informal feedback received from the majority of participating agencies on the usefulness of their specific agency reports for improving agency procedures.

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Maintain APS Employment Database and undertake related research

We maintain APSED—the central database on APS employment. APSED is an important source of information for cross-service accountability, particularly for the State of the Service Report. It is also used as the sampling frame for the State of the Service employee survey.

Data specifications and quality

Agencies’ provision of data continues to improve. Almost all agencies are now providing data regularly, and through automated processes. We work closely with vendors of human resource systems and agencies to ensure APSED requirements are incorporated into updates to human resource systems. In addition, we collaborate closely with agencies to ensure integrity of the data they send.

This year we issued revised data specifications for APSED. The specification document provides agencies with information about the codes, definitions and use of the data items. The revised specifications include two innovations: Comsuper’s new member number and an email address for all employees. The scope of the collection now encompasses agency heads.

We also implemented a system that allows us to use data from the Public Service Gazette to supplement that sent by agencies.

However, we remain concerned about the provision of diversity and qualifications data by some agencies relating to people with a disability, race or ethnicity and Indigenous status. To help agencies collect this information from their employees we have prepared questionnaire templates that agencies can access through our web site.

Trends in engagements paper

A substantial component of the analysis undertaken for the trends in engagements paper has been included in the Management Advisory Committee project on managing and sustaining the APS workforce. This year we also undertook some analysis of diversity data for new engagements, as part of a broader project to model the high non-response rate. We intend to update the analysis and publish the paper in 2005–06.

Table 23: Performance Information—Output 4.2.3—Maintain APS Employment Database and undertake related research

Target	Result
Estimated price: $1.094 million	Actual: $1.036 million Consistent with estimated price
Quantity
Number of publications produced – estimate 2.	Significant progress but resources were directed towards providing significant data input into the MAC report on managing and sustaining the APS workforce. Analysis for trends in engagements paper will be updated and published in 2005–06.
Quality
Reliable and comprehensive information on the composition of the APS in a useful format.	Achieved. High quality and timely data has been used in a number of publications, including the State of the Service Report and various ministerial and Commission briefings on particular issues. Improved presentation of Internet version of the APS Statistical Bulletin.

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Price for Output 4

The total price for Output 4 for 2004–05 was $2.406 million. This is lower than the estimated price of $2.531 million published in the Portfolio Budget Statements 2004–05.