Robert Watt, a senior leader in the civil service with responsibility for €58 billion in public expenditure, discusses his role as Secretary General of the Department of Expenditure & Public Reform.
Robert Watt first encountered the public sector in a professional capacity in the 1990s. Having trained as an economist and worked for a brief period in the IDA, he was offered a job in the Department of Finance in 1993 as an Administrative Officer. He then joined the private sector from 2000-2007 as an economic consultant, but returned to public service on 1 January 2008 – just in time for the bulk of the financial crisis.
Since then, Robert has risen from Assistant Secretary to Secretary General of the Department of Public Expenditure & Reform, which was established in 2011 to revitalise and modernise the public service.
The quest for efficiency
The two key elements of his department – expenditure and reform – bring with them unique challenges. On the expenditure side, there is never enough to go around while on the reform side, change is an often-torturous experience for staff and leaders alike. Despite the bleak context in which he became Secretary General, Robert is upbeat on progress to date and the outlook for the future. “It’s fair to say that, back in 2011, there was lots about the public sector that needed to change,” he said. “We embarked on that process, which is ongoing… but while challenging and busy, it’s been fantastically rewarding over the last few years.”
Indeed, Robert can take heart from the most recent OECD Assessment, which found that Ireland’s second Public Service Reform Plan (2014-2016) was “by-and-large successful in terms of completing the majority of the activities it set out to do”. The OECD did note, however, that “more could have been done to help the plan realise its message of achieving better outcomes for all stakeholders by helping sectors translate savings from corporate efficiencies into improved services and outcomes”. In other words, it could have been better – but this ambition to improve is clearly a key driver for Robert and his department. “The OECD report… said that we made a lot of progress and achieved a lot, but that we now need to look ahead to what the next stage of that reform will be,” he said.
It is likely that the next stage of reform will have two key elements – central procurement and shared services, both of which are ongoing projects within the public service. “In 2012, we did a study which showed that we weren’t maximising value for money when it came to the €12 billion in annual purchases of goods and services made by the Government,” he said. “We had a devolved system where departments and other entities were purchasing the same goods and services, in many cases from the same supplier, with a variation in service quality and price so we opted for consolidation. We established the Office of Government Procurement where we decided to professionalise the service, develop framework contracts and adopt a new approach to how we buy.”
The need for specialist skills
While the value of centralised procurement has “shown up in the numbers” according to Robert, a large-scale shared services project is also under way to transform the public service from a collection of disparate entities into a cohesive, efficient unit. The project has three main strands: HR, Payroll and Financial Management, with the latter resulting in a new Finance Shared Services Centre. “We’re in the process of managing that project and we will migrate the first offices and departments to the new shared services centre over the next 18 months or so,” said Robert. “We currently have 48 different public bodies with different financial systems… so this represents significant consolidation on a single technology platform, which will provide us with new functionality, better access to data and will enable us to move towards accrual accounting more quickly.”
While some aspects of accrual accounting have been adopted by the public service, Robert maintains that it will take “two to three years” to reach full implementation throughout the public service. “The project is very complex and detailed… we’re taking it slowly to ensure that everything is 100% right,” he said. “It may be two to three years before we have everybody on a new system, but it’ll bring enormous savings in terms of the number of people involved in managing transactions while providing us with much better information across the vast bulk of public spending.”
According to Robert, these projects form part of the “professionalisation” of the public service and he is keen to see more specialists from industry boost the quality of outputs emanating from government departments and other public entities. “As part of the Civil Service Renewal, we’re embarking on the professionalisation of several areas,” he said. “In the past, we probably went too far in the direction of generalists where there were general professional servants who were then asked to take up different functions but we’re now moving to a situation where finance, HR and other functions will be professionalised.”
One seemingly obvious obstacle to the recruitment of external specialists, however, is public sector pay policy – but Robert insists that its effects are under constant review. “The Public Service Pay Commission looked at this issue in detail and we don’t have a generalised challenge in terms of attracting people into the public service – we’re quite attractive for graduates and entry levels – but we do have an issue when it comes to specialist staff, senior leadership roles and certain other professional areas,” he said. “That’s something that we’re having an ongoing dialogue about. We keep [the cap] under review but we’re very much aware that pay policy needs to be market-facing in relevant areas.”
Tackling poor performance
While Robert is keen to drive the professionalisation of the public service, he is acutely aware that the wider issue of performance needs to be tackled more consistently. “There’s a question for us around how we address performance and under-performance, and how we sanction people who aren’t delivering for us,” he said. “It’s one of those issues where, in the past, the public service has had difficulty having robust conversations with people about performance, putting improvement plans in place, and exiting people who aren’t performing – but it’s an area we’re going to focus more on.”
Public servants have been laid off for under-performance, according to Robert, but he hopes for an improvement in this area in the years ahead. “It’s very hard to have a robust performance culture in an organisation if you don’t have a properly-funded and professionalised HR function, but it’s something we’re very keen to improve upon,” he added. “Under-performance should not be accepted and needs to be addressed. Indeed, the people who are performing and who work hard on behalf of the State want to see us address the people who aren’t performing.”
In the broader context of departmental productivity, Robert is more upbeat. “The civil service has gone through enormous reforms over the past few years and it’s in a much better place than it was,” he said. “We’ve seen significant improvements in performance and productivity… but we want to do better.” To do better, according to Robert, more leadership is required as opposed to structural change within the public service. “There’s nothing within our structures that inhibits us in terms of doing more or driving change and productivity. It’s really about culture and leadership, having the right people and the right incentives and the right mind-set to drive change… it’s really a question of having the leadership capacity and the skills to make the changes that are necessary.”
Public sector pensions
Robert’s focus on the future is evident and in that context, the future obligations in relation to public sector pensions is worthy of consideration. Indeed, Robert notes that much has already been done to put the State’s public service pensions on a more sustainable footing. “Public sector pensions have gone through a lot of reform over the past number of years. In 2012, we had the single pension scheme and new entrants are now on very different terms and conditions compared to those who joined the civil service before 2012,” he said. “We also have career averaging, which has reduced the benefit of those pensions considerably compared to people who came in before and, under the new Public Service Agreement, about 70% of public servants will be asked to pay a further contribution towards their pension.”
This contribution, a proposal Robert hopes will be accepted, will mean that the temporary pension levy which was introduced for most public servants will evolve into a pension contribution. Robert regards public sector pensions as “very valuable”. “There is a cost to the Exchequer; that cost will increase, but the measures we have taken put the system on a much more sustainable basis than has been the case in the past,” he said. “We’ve made a lot of changes and are happy with them. Obviously, we have to keep these things under review but for the moment, we will see how the main changes bed down and benefit the Exchequer.”
And while sustainability is the main goal, Robert isn’t concerned about the depletion of the National Pension Reserve Fund when it comes to the sustainability of public sector pensions into the future. “The Fund is there to meet future liabilities. It’s unclear at this stage the extent to which it will be helping to fund pensions or might be used to fund other liabilities the State might have in the future,” he said. “So it doesn’t really impact on the sustainability of the system. The changes we’ve made to reduce the cost of pensions and the higher contributions that people are making toward their pensions are critical from a sustainability perspective.”
A growing culture of good governance
As another Budget approaches, with all the preparatory work that entails for the Department of Public Expenditure & Reform, Robert is keeping his eye on some longer-term goals: modernising and professionalising the State’s HR function; maximising the value of data to improve policy outcomes and the lives of the State’s citizens; and developing new standards for governance.
Given the governance failures of the past across a range of public and private bodies, this will come in for particular scrutiny in the years ahead. “The question for us is: do we have the right culture to ensure that people are adhering to the governance standard we’ve set out? It’s about continuing that process of cultural improvement and learning, where people accept and understand that there are certain ways in which they can operate and certain ways in which they can’t.”
All this will require a change of thinking at all levels of the public sector but as the English theologian, John Henry Newman, once said, “To live is to change, and to be perfect is to have changed often.” A perfect public service might be a tall order, but the ambition is certainly there.
Robert Watt is Secretary General at the Department of Public Expenditure & Reform.