Issue 05 July 2014

Feature Voice, choice and control: the Girl Summit 2014 Bagging the benefits of the carrier bag charge Measuring school success Review of The Blunders of Our Governments

#CSQuarterly 1

Issue 5 » July 2014 Civil Service Quarterly Contents

2 3 9

Bagging the benefits Editorial Voice, choice and control of the carrier bag charge

12 15 17

The Blunders of Our Governments – Measuring Review by Sir David school success Normington GCB Resource nationalism

21 25 31

Reforming child Interview with Duncan maintenance – taking Selbie, Chief Executive How I got here a fresh approach of Public Health England

Civil Service Quarterly opens Contact us Editorial Board up the Civil Service to greater [email protected] Sir Jeremy Heywood, 4th Floor, 1 Horseguards Road, Cabinet Secretary (chair) collaboration and challenge, London SW1A 2HQ showcases excellence, and The Right Honourable Oliver Letwin, invites discussion. If the Civil Editorial Team Minister for Government Policy, Service is to be truly world- Chris Barrett, Cabinet Office Cabinet Office [email protected] leading it needs to collaborate Alex Aiken, Executive Director

more, learn from experts of Government Communications Design by DESIGN102 outside the Civil Service, listen Lin Homer, Chief Executive, Sanita Raju, Creative Designer more to the public and front- HM Revenue & Customs line staff and respond to new And thanks to Sam Raff and Sir Richard Lambert, Lead Non- Elkie Symes challenges with innovation Executive Director, Foreign and and boldness. Commonwealth Office Christopher Lockwood, Deputy Head Any civil servant can write of Policy Unit, Prime Minister’s Office for Civil Service Quarterly Dave Ramsden, Chief Economic – contact csq@cabinet- Adviser, HM Treasury office.gsi.gov.uk Charles Roxburgh, Director General Financial Services, HM Treasury Cover image: Picture: Jessica Jill Rutter, Programme Director, Institute for Government Lea/DFID. Breaking the cycle Contact us at: of Female Genital Mutilation/ [email protected] Chris Wormald, Permanent Secretary, Cutting (FGM/C). Department for Education 2

Issue 5 » July 2014 Civil Service Quarterly Editorial

» Civil Service Quarterly July 2014

The summer 2014 edition of and use of the best available Civil Service Quarterly leads evidence to underpin decision with a tremendously important making, in all branches of the issue: what the Civil Service is Civil Service, is of paramount doing to reduce some of the importance; and there are dangers that girls and young evident dangers if we do women around the world face. not make use of it. Sir David The number of girls subjected Normington’s review of The to forced marriages and female Blunders of Our Governments genital mutilation in some areas – a challenging book by the of the world, highlighted in Liz academics Anthony King and Ditchburn and John O'Brien's Ivor Crewe – is a salutary read

Sir Jeremy Heywood article, is shocking. The 2014 for all public sector workers. If Girls Summit, co-hosted by the we are to aspire to be among UK Government and UNICEF, the very best, as I believe we is due to take place next week, should, we in the Civil Service and I would encourage people need to be open about and inside and outside the Civil learn from previous mistakes. Service to think how they can Recently I visited Ark support this cause. Conway Primary in Acton where The theme of protecting I saw an education trial which and nurturing children runs forms part of the What Works through other articles in this Initiative. What Works, and edition. Tim Leunig’s article other new structures such as looks at changes to the way the the Major Projects Authority, quality of teaching in secondary are intended to ensure that schools is measured; and Ian Government decisions are Wright’s article discusses made on the best evidence, improvements made to child and are subject to thorough maintenance arrangements and incisive re-examination. where parents have separated. With the help of such The other salient theme to initiatives, we will significantly this edition of Civil Service reduce the risks of committing Quarterly is the value of costly and embarrassing evidence and testing. Duncan blunders. But I believe the Selbie’s forthright interview message is applicable much on his role in Public Health more broadly across the England has evidence at its Civil Service: we must avoid heart; Matthew Quinn’s article complacency. It is never on the introduction of a charge enough just to assume we have for carrier bags in Wales is the right answers to the tough informed by evaluation of questions we face: we must be the policy’s impact; and Pete able to prove it. Thompson’s reflections on his career show him tracing a route through roles where testing Let us know what you think and evidence sometimes by email (csq@cabinet- inform life-and-death decisions office.gsi.gov.uk) or on on questions of defence and twitter #CSQuarterly. national security. Sir Jeremy Heywood The effective dissemination Cabinet Secretary 3

Issue 5 » July 2014 Civil Service Quarterly Voice, choice and control

» Women everywhere should have the right to decide when and whether they have children. No child should be malnourished – undermining their health and future potential. Together we can wipe killer diseases like malaria and TB off the face of the planet. Liz Ditchburn, Director of Policy at the Department for International Development (DFID), and John O’Brien, Director of Safeguarding at the Home Office, write about one way the Civil Service can make a difference.

Every year, the Department These summits have led causes of under-nutrition, for International to significant results. At and the development of a Development (DFID) our Nutrition for Growth number of new research takes a huge development event last year, over 100 partnerships to identify issue and rallies a global organisations committed to innovative solutions to this movement for change around improve the nutrition of 500 global challenge1. an international summit, million pregnant women and The Bill and Melinda Gates at which we bring together young children. Progress Foundation has been a key governments, charities, since then includes the partner in recent years. businesses and activists, to expansion of programmes in In 2012, the London Summit agree transformative policy Africa and Asia to address the on Family Planning and funding commitments. immediate and underlying achieved ground-

Picture: Russell Watkins/DFID. London, 11th July 2012. Prime Minister David Cameron and Melinda Gates talk about family planning issues and volunteering with young people at the London Summit on Family Planning.

1 https://www.gov.uk/government/publications/nutrition-for-growth-one-year-on. 4

Issue 5 » July 2014 Civil Service Quarterly

breaking commitments to enable 120 million more women and girls to use modern contraception. Two years on from the summit and progress has been good. We are working with Family Planning (FP) 2020 (a global partnership that supports the rights of women and girls to decide whether, when and how many children they want to have) to drive forward and monitor progress against summit commitments. FP 2020 is promoting national accountability for summit Picture: The Children's Investment Fund commitments by publishing Foundatio/DFID. Bill Gates at the Nutrition for Growth event today (8 June 2013). progress online2. As a result of the summit, countries such as Zambia, Senegal, Burkina Faso, Niger and • An issue which captures • The political will to take Kenya now have family the public’s imagination, on the challenge. In the planning action plans. like saving children’s UK, this often means the lives, giving women in active involvement of the other countries the same Prime Minister. Key essentials for a opportunities we have • An active and engaged successful summit in the UK, and helping civil society, to help people help themselves. galvanise governments The format and nature of • A clear ‘ask’, like and support citizens. each event is tailored to providing more money the objective we are trying or resources, to achieve. Some are about showing your gathering support to scale support for up efforts, like the successful change (on Global Alliance for Vaccines social media and Immunisation (GAVI) etc.), or replenishment3 in 2011, where legislating major public and private and using your donors committed funding influence. to immunise more than 250 million of the world’s poorest children against life-threatening diseases. Others are aimed at achieving significant shifts in thinking and acting on particular issues. All must have at their core a few key essentials:

2 http://progress. familyplanning2020.org/fp2020- progress. 3 http://www.gavialliance.org/ funding/how-gavi-is-funded/ resource-mobilisation-process/gavi- pledging-conference-june-2011/.

Picture: Martin Malungu/HarvestPlus. 5

Issue 5 » July 2014 Civil Service Quarterly

Voice, choice and control

DFID and the Home Office, Girl Summit 2014 with additional involvement from other departments, Later this month the UK including the Department of will hold its first Girl Health and the Department Summit. This event, co- for Education. The Home hosted with UNICEF, will Office and other domestic mobilise global efforts to departments are working end the practices of child, together on a cross early and forced marriage government package of (CEFM) and female genital domestic announcements mutilation (FGM) within a to be made at the summit, generation. This year, for including significant new the first time, the event measures to tackle FGM will focus on issues from and forced marriage here both the international and in the UK. The Girl Summit the domestic perspective, follows on from the Foreign because these practices are and Commonwealth Office's not limited to the developing recent Global Summit to End world – they happen to Sexual Violence in Conflict, British girls, both here and the largest ever summit held overseas. The Government on this issue. One aspect recognises that we will not of the Global Summit was see an end to these practices to examine the impact that unless we work together, sexual violence in conflict stepping up our efforts both has on women and girls, at home and partnering and this complements the with other countries’ efforts broader UK Government overseas, to end FGM and support for girls and women child, early and forced across the world. marriage forever. The Prime The Girl Summit issues Minister David Cameron, have, in the past, been the Secretary of State for considered too difficult to International Development tackle, or people have avoided Justine Greening and the them for the fear of being Home Secretary Theresa May accused of racism or cultural want it to be a breakthrough imperialism. Millions of girls moment for millions of girls worldwide are affected by FGM and women here in the UK and child, early and forced and around the world. marriage every year, causing The Summit is being a lifetime of physical and organised jointly between mental damage.

This year’s Girl Summit will: • Be about changing values and behaviours, overseas and in the UK. • Engage the UK public, including diaspora groups, on these issues.

The main outcomes will be: • Sharing What Works - learning and celebrating success. • Agreeing an agenda for change - securing commitments to action. • Engaging people for change - inspiring a generation to declare support to end CEFM and FGM. 6

Picture: Jessica Lea/DFID. Breaking the cycle of Female Genital Mutilation/Cutting (FGM/C) in Burkina Faso. 7

Issue 5 » July 2014 Civil Service Quarterly

Voice, choice and control

In England and Wales it is estimated that over 20,000 A High Level Event team, led by Alice Hall (Leader girls under the age of 15 of the Girl Summit Team in DFID’s Policy Division), could be at high risk of FGM has been put together from across DFID and the each year. FGM is a form of Home Office to manage the event. They are working violence against women and girls, and one of the most closely with our co-hosts, UNICEF, as well as the extreme ways in which girls key domestic Departments including Cabinet and women are controlled Office and No.10. The Nike Foundation which has and disempowered. In high- pioneered new approaches to girls’ development prevalence countries – such is a key partner offering strategic advice, creative as Somalia, Sudan, Egypt, Sierra Leone and Ethiopia – input, finance and resources. The team are securing FGM is carried out because policy commitments, liaising with civil society, it is considered essential managing invitations and organising speakers. for marriage. As well as achieving maximum value for money by Girls who marry young are securing a low-cost venue and sponsorship. It is a often under pressure to have children soon after marriage. huge challenge to ensure that we end up with an In low and middle-income event that is truly inspiring, runs smoothly and, countries, complications most importantly, delivers real change for millions from pregnancy and of girls and women in this country and overseas. childbirth are a leading cause of death among girls aged 15-194. Victims of forced marriage can suffer UK and British nationals at the United Nations physical, psychological, overseas), but we know that passed a resolution calling emotional, financial and this does not reflect the full for a global ban on FGM. In sexual abuse including being scale of the abuse, and many December last year, Ministers held unlawfully captive, more cases are not reported. of Education and Health from and being assaulted and 21 countries in Eastern and repeatedly raped. In 2013 Southern Africa committed in the UK the Government’s Progress to eliminating child marriage Forced Marriage Unit (a joint by 2020, and in May 2014, Foreign and Commonwealth The good news is there is the African Union (AU) Office and Home Office Unit) a growing movement for announced a two-year provided advice or support change. In 2012, the regional campaign to end the practice. in 1300 cases (covering the grouping of African Countries Last year DFID launched a programme that will work in 17 countries to support the Africa-led movement to end FGM. DFID also has a flagship programme on child, early and forced marriage in Ethiopia’s Amhara region, which focuses on engaging with the whole community to change attitudes, and will soon be scaling up this work. In Asia DFID is working in India, Bangladesh and Nepal to address some of the drivers of child marriage, © Stephanie Sinclair / VII Photo / TooYoungToWed.org including support for protective legislation, 4 Early Marriages, Adolescents and Young Pregnancies WHO 2012. quality education and 8

Issue 5 » July 2014 Civil Service Quarterly

economic empowerment. population each month; the bring together heads of We are also stepping up Home Office has launched an state, practitioners, our efforts to end these awareness campaign aimed survivors, charities, the practices here in the UK. at mothers from communities diaspora and the private Forcing someone to marry where FGM is prevalent; and sector. We know from past is now a criminal offence in in April, the Department for experience that if we can England and Wales under new Education issued updated build momentum around a big legislation that came into guidance to schools that event like this, working with force on 16 June 2014. contained specific information international and domestic In February this year, to about FGM. partners, we can achieve a mark the International Day The Girl Summit 2014 will transformative shift. of Zero Tolerance to FGM, eight Government Ministers signed a joint declaration to demonstrate our ongoing commitment to end this terrible form of abuse. In addition, the Department of Health has announced that all acute hospitals will report information on the prevalence of FGM within their patient

We hope everyone reading this will join in our big moment later in July to add their voice to the chorus. We have launched a social media pledge campaign where people will be able to play their part by pledging support through their Twitter or Facebook accounts. We have launched a social media pledge campaign at www. girlsummitpledge. com where people can show solidarity with those who are affected by these issues. Please add your voice and pledge your support …tell your friends, networks and colleagues too. Infographic: DFID 9

Issue 5 » July 2014 Civil Service Quarterly Bagging the benefits of the carrier bag charge

» Governments aren’t often praised for introducing new costs on an everyday item. But the introduction of the single-use carrier bag charge in Wales has won the support of retailers and consumers alike, says Matthew Quinn from the Welsh Government.

With an estimated 445 million disposable carrier bags hoarded thickness of the plastic bags used in Wales in at home, consumers needed a bag and its size? 2009, the single-use carrier strong message about how a Should paper and bag had become a symbol of small change in their purchasing biodegradable bags our throwaway society at a time and disposal behaviours could be included? And when reusable alternatives quickly deliver a large change for what level should we are readily available. When the the environment. Evidence from pitch the charge? It needed to be Welsh Government introduced countries such as the Republic enough to influence behaviour its plans to become a zero- of Ireland, Bangladesh and China change without placing an waste nation by 2050, reducing indicated that imposing a charge unnecessary burden on retailers the environmental impact of or ban reduced consumption of or the public. single-use carrier bags was one carrier bags and litter. Introduced in 2011, the scheme of the first steps in the long is simple. It places a 5p levy on road ahead. the purchase of all single-use Plastic bags contribute Welsh carrier bag charge carrier bags irrespective of the between 0.1-1 percent of visible material they’re made from. No litter in the UK with around Starting as a public petition to retailer is exempt; consumers are 2 percent ending up on our address a growing issue, the idea charged a minimum of 5p per bag beaches. Although this may seem of charging for carrier bags was whether packing up the weekly small, they are a highly visible developed into a proposal that supermarket shop or bagging form of litter which can take went through the consultation a Saturday night takeaway. The hundreds of years to biodegrade. and legislative process, before proceeds of the levy are then The Welsh Government becoming a law that changed the donated to good causes. recognised that intervention was way single-use carrier bags are This simplicity was important needed to control the issuing of thought about today in Wales. in winning over the support single-use carrier bags. Following At the outset it was important of retailers and consumers, a 2009 poll by the Department to agree the definition of a single- and it set the Welsh approach for Environment, Food and Rural use carrier bag and what types of apart from schemes in places Affairs, in which 88 percent of bag to include. Is what it’s used elsewhere. Last December respondents said they had 40 for important? What about the the parliamentary

First year (2012) reductions in use of plastic bags among various retail sectors (source http://wales.gov.uk/about/cabinet/cabinetstatements/2012/carrierbags/?lang=en):

Food retail Fashion Home improvement Food service Telecommunications

Between Between 96% 75% and and 95% 45% 85% 70% 68% 10

Issue 5 » July 2014 Civil Service Quarterly

Environment Audit Committee minded approach proved donate the net proceeds of praised the Welsh scheme essential to negotiations. The the charge to a good cause of as easy for consumers to Welsh Government set the wider their choice. understand and straightforward scheme parameters and worked Working closely with a for retailers to run. with the retail sector from the range of different stakeholders outset to discuss the particulars enabled us to deliver a scheme of how the scheme would work. that meets the Government’s Welsh carrier bag charge Some were concerned about commitment whilst being – how it works the knock-on administrative tailored to the differing needs effects of implementing the of retailers across the sector. All retailers, irrespective scheme. For example, the of their size or line of sales, are expected to charge original proposals required all consumers a minimum of companies to keep detailed Benefits beyond aims 5p for the purchase of any records of net proceeds from single-use carrier bag. charging for carrier bags. Smaller Reducing the environmental retailers, due to their limited impact of carrier bag usage These bags include: staff capacity in comparison – from production to disposal – • paper with larger employers, felt this was, and remains, the over-riding • plastic would be an unhelpful extra call aim of the scheme. A Welsh • part plastic on their workers’ time. Following Government study1 six months • recycled and their feedback the regulations in found a 90 percent reduction • degradable plastic were amended to reduce the in carrier bag usage for some Bags from other materials, administrative burden on small retail sectors, while a similar 2 such as hessian or cotton, and medium-sized enterprises by study by the waste reduction and the stronger plastic requiring only those retailers with agency WRAP recorded an ‘bags for life’ are exempt ten or more full time employees 81 percent fall in usage in the from the scheme. to keep such records. major supermarkets between Whilst all retailers in Wales 2010 and 2012. As a knock-on There are a few exemptions are required by law to charge for effect of reduced demand, the to the scheme beyond this. single-use carrier bags, several manufacture of unsustainable These include, for example, consortia representing the materials fell, road miles shrank food stuffs that are not pre- larger retail sectors said they through fewer deliveries, packed such as loose fruit would prefer to see a voluntary and fewer bags in circulation or fast food fries. approach to the donation of meant that fewer end up as the net proceeds instead of damaging and unsightly litter. being legally required to do so by the Single-Use Carrier Bags Working with retailers (Wales) Regulations 2010. After a year of negotiations with the From the start the Welsh sector, retailers entered into Government’s Local a voluntary agreement Environment Quality team with the Welsh recognised that long-term Government to success depended on backing by the retail sector. Their challenge was to develop a scheme that would work for all retailers, from the big four supermarkets to small-scale independent traders. Early stakeholder engagement and an open-

1 http://wales.gov.uk/about/cabinet/ cabinetstatements/2012/carrierbags/?lang=en. 2 http://www.wrap.org.uk/content/carrier-bags- reducing-their-environmental-impact. 11

Issue 5 » July 2014 Civil Service Quarterly

Bagging the benefits of the carrier bag charge

Independent research3 carried At a glance — carrier bag out by Cardiff University reported Next steps charges in the UK that 82 percent of shoppers claimed to reuse their bags Three years on from the On 1 October 2011 Wales following the introduction of the introduction of the charge, the became the first UK country to charge, compared to 61 percent Welsh Government continues to introduce a charge for single- prior to the charge. In March 2013 gain insight into how to reduce use carrier bags. studies4 into behaviour trends by the usage of single-use carrier Northern Ireland followed Exodus Research reported that bags and to measure the impact in 2013 and the requirements 70 percent of shoppers were of the charge to date. of the 5p levy there are similar, observed reusing their bags. A review of the first three but not identical, to the Yet the benefits reach beyond years of the charge is due to scheme in Wales. Retailers in environmental factors. Retailers start in autumn 2014 and will Northern Ireland are required are saving money by purchasing be undertaken by a specialist to pass the proceeds of the fewer bags, and are building independent organisation. The levy (£4.1 million in 2013/14) community networks through review will investigate if bag to the Department of the their charitable donations. The purchasing trends continue to Environment. These funds are Association of Convenience drop, whether single-use carrier used to support community- Stores reported that one member bag litter has reduced as a result, based environmental projects. had saved up to £14,000 a year: the effect the charge has on To encourage shoppers to big bucks for a small independent businesses in Wales, and the reuse their bags, the 5p levy retailer. Meanwhile the Co- effectiveness of the voluntary will be extended to reusable operative Group has seen costs agreement in encouraging bags (retailing at less than fall5 and an 81 percent reduction retailers to donate the proceeds 20p) in January 2015. in carrier bag usage in their Welsh of the charge to good causes. Retailers in Scotland will be stores thanks to the scheme. Proposals are also in place to required to charge for carrier And then there are the cut down further the production bags from 20 October 2014. beneficiaries of the charge; of unsustainable materials by The charge will be similar retailers pass on the money bringing other types of carrier bags to the Welsh scheme both raised through the sale of single- into the charge. The Environment on the scope of the charge use bags to good causes of Bill consultation, which closed in and voluntary donations to their choice, from schools and January 2014, included proposals good causes, but due to the small local community groups to enable an amendment to the differences between the to national charities. As of April Climate Change Act to bring Climate Change Act 2008 and 2013, over £4 million has been this into force, if evidence and the Climate Change (Scotland) passed on to good causes since monitoring demonstrate that Act 2009 there are some the introduction of the charge. there is a need. administrative differences. Beneficiaries include the RSPB After success in the The UK Government will who have received over £1 million supermarkets, the next stage introduce a 5p charge in from Tesco as a direct result of the Welsh Government's England in the autumn of 2015. of the Welsh bag charge. The consumer insight work will The charge will be broadly money has been used to support focus on the high street similar to the Welsh model. several Welsh based RSPB shopping behaviours of the However in England it will focus projects such as enhancing the younger generation. Branded on single-use plastic bags visitor experience at the charity’s bags by the latest on-trend and businesses with fewer Carngafallt site. Locally-run retailers are as much a fashion than 250 employees will be charities such as the Snowdonia accessory as the items they exempt. The UK Government Society, which received around hold. Encouraging youngsters is developing standards to £800 from a chain of family-run to change their behaviour and enable an exemption for convenience stores in North opt for more sustainable bags is biodegradable bags to be Wales, are also benefiting. the next challenge. introduced at a later date. 3 http://wales.gov.uk/topics/environmentcountryside/epq/waste_recycling/ As is the case in Wales, the substance/carrierbags/attituderesearch/?lang=en. UK Government wants and 4 http://wales.gov.uk/topics/environmentcountryside/epq/waste_recycling/ expects retailers to donate the substance/carrierbags/behaviour-study-on-use-of-carrier-bags-2012/?lang=en. 5 http://www.thegrocer.co.uk/opinion/the-grocer-blog-daily-bread/bagging- proceeds to good causes. order/354328.blog. 12

Issue 5 » July 2014 Civil Service Quarterly Measuring school success

» English secondary schools are held accountable in two ways. The government publishes data about exam results, and Ofsted inspects schools, taking the data into account. But a major shift in how success is measured for GCSEs is coming, writes Tim Leunig, Chief Analyst and Senior Ministerial Policy Adviser at the Department for Education.

The UK’s school accountability be “below the floor”. Such grammar school will never be framework is generally seen as schools would be inspected below the floor, whereas some world-leading, with the OECD’s by Ofsted. Should Ofsted schools have intakes that are education head Andreas confirm that the school’s much more challenging. This Schleicher telling Parliament performance is poor, a change makes jobs in schools with this year that “strong public of management would follow. challenging intakes more accountability” is an important This approach encourages pressured, and less attractive. part of “the most successful schools to concentrate on These criticisms have been education systems”. C/D borderline pupils. Getting widely understood for some Prior to 2010, a school was a pupil from Cs to A*s, or from time. One education expert, “above the floor” if three in Fs to Ds gets no credit. It also Loic Menzies, wrote “I hate ten pupils were awarded 5 means that intake, not the the distortive effects of the 5 of more GCSEs of grade C or quality of teaching, largely A*-C at GCSE accountability better. Schools failing to meet determines whether a school measure. Don’t all teachers? this standard were deemed to is defined as doing well. A Doesn’t any parent who has seen the effect it has on their children’s education?”. We took the overwhelming consensus that the previous system was not fit for purpose 13

Issue 5 » July 2014 Civil Service Quarterly

Measuring school success

seriously. As civil servants, we pupils should be included, and academic GCSEs. It is clear set ourselves a number of criteria that every grade should count. that these schools will change by which to judge any proposals. The third criterion led us to their behaviour to offer a more These criteria embodied argue that English and Maths appropriate mix of subjects. Ministers’ aims. should be double weighted The consultation document in the calculations, reflecting was broadly well-received, with 1. Can a school do well, their importance for young generally supportive responses whatever its intake? people. The fourth criterion led from parents, teachers, 2. Does a school improve us to require that at least three heads, and educationalists. its score if any pupil further subjects were traditional Notwithstanding the positive improves their grades? academic subjects, as defined response, we took concerns 3. Are we rewarding by the English Baccalaureate. seriously. For example, the schools that do well in Criterion five led us to assess consultation document English and Maths? schools as to how well they proposed keeping a C threshold 4. Are we rewarding do over eight subjects, rather in English and Maths, but all schools that do well in than the current five. The final of the maths organisations traditional subjects? criterion led us to propose argued that this distorted 5. Are we rewarding that every grade improvement maths teaching, with too much schools that offer a should be reflected in the “teaching to the test” and too broad and balanced proposals, rather than just little development of deeper curriculum? having a C threshold. learning and understanding. 6. Are we rewarding The Department for We listened, and took out the C schools that achieve A Education maintains the threshold in both subjects. and A* grades? National Pupil Database, which The new system has at its records the grades of each and core the progress that all pupils This led us to a set of proposals every pupil. This allowed us to make in their time at secondary in the consultation document. model different ideas against school. All pupils count equally, The first criterion led us to these criteria very accurately. so there is no incentive for argue that schools should be Analysts were key and worked schools to prioritise any pupil judged not on their pupils’ tirelessly to analyse and present over another. A school’s intake results per se, but on their their conclusions. We were able of pupils doesn’t matter, pupils’ results given their to assess the likely number of because the new system is grades at age 11. The second schools that would be below based on the progress pupils criterion led us to argue that all the floor, as well as to look at make, not their final attainment. the likely behavioural responses Schools will receive points from schools. For example, for grades in 8 GCSE subjects. some schools currently offer a A G grade gets 1 point, up curriculum that is tailored to an to 8 for an A*. English and accountability regime that does Maths have to be in the mix, not require many traditional and are doubled weighted, reflecting their importance. A further three subjects have to be traditional academic subjects (sciences, humanities, languages) and three are open – they could be more academic subjects or creative or vocational subjects. Each pupil’s GCSE score is compared with that of other pupils who performed equally well at age 11. This gives us a measure of the pupil’s progress relative to reasonable expectations. A school’s progress score is the 14

average of its pupils’ progress new system is a fairer approach. Network, who have been scores. This is the key measure: The proposal has been critical of most of the current if pupils in a school average half universally welcomed. Graham government’s changes said a grade lower than the same Stuart, (Conservative) chair that “this is one of the most mix of children typically achieve of the Education Select well-thought out papers to elsewhere, the school is below Committee described it as come out of the DfE recently, the floor, and will be inspected. “an educational breakthrough”, asking the right questions and Furthermore, every school will while by his (Labour) raising the right issues”. have to declare their progress predecessor, Barry Sheerman The likely impact of these score on their website. Parents said it was “the best statement changes is large. University of will know whether children I have heard from a Minister Bristol academics looked at typically learn more or less in since 2010”. the effect of changes in the each of their local schools. The Independent experts agreed. accountability system in Wales. formal national accountability To quote Loic Menzies again: They found that the abolition system will support local, “it is *the* most important of accountability worsened informal, accountability at the (positive) change the Coalition grades in around three quarters school gate. is making in education.” One of schools, to the same extent It is generally good practice head described it as “a real as increasing class sizes by 8 to pilot major changes, but in game changer”, while another people. This is a large effect. this case that would be difficult. said “these new measures are The ‘5 A-to-Cs’ standard Accountability affects how challenging and fair”. covered all schools in England, children are taught for five years. ASCL, the principal heads’ but in reality schools had little A pilot would take at least that union stated that they had incentive to care about pupils long – and that would be five argued “for a change to this who were not close to the more cohorts of children who kind of measure for many threshold. The new system would suffer the distorting years”1. Even the NUT, who means that schools will have effects of the current system. argue against quantitative an incentive to care about the For that reason we will not be accountability measures, progress of these pupils as well. piloting the new system, which described the changes as a There are some 300,000 such takes effect from 2016. We are, “step in the right direction”, pupils each year, and therefore however, allowing schools to opt particularly welcoming “the we expect that these changes in a year early, if they would like move away from a ‘spotlight’ will improve the education to do so. Many have said that on pupils on the C/D of around this number of they will, recognising that the borderline”. The Local Schools England’s children.

1 Press release 14.10.2013. 15

Issue 5 » July 2014 Civil Service Quarterly The Blunders of Our Governments – Review by Sir David Normington GCB

» For someone like me who has spent 40 years in and around Whitehall, The Blunders of Our Governments by Anthony King and Ivor Crewe is a compelling read.

– ID cards – was underway when I went to head the Home Office. Many would say it was a policy mistake, but, on the accept that in almost all the authors’ definition (“blunder, cases the intentions of the a gross mistake; an error due individuals concerned were to stupidity or carelessness”) laudable and honourable. I am not sure it qualifies as a Some of the blunders, like blunder on the scale of others the poll tax, the Child Support in the book. The politicians who Agency and tax credits are gave birth to it knew what they well known. One or two, like wanted and the Home Office the late 1990s public/private delivered on their commitment partnership to modernise the to have ID cards in at least a few London Underground, never “Our subject in this book is the people’s hands by 2010. No one hit the headlines, though numerous blunders that have suffered. No money was actually the authors describe it as a been committed by British lost; though a lot was spent on “blunder-plus, one of the most governments of all parties in a programme which never came idiotic decisions made by a recent decades. We believe fully to fruition. British Government in modern there have been far too many of But this book is not just times”. As policies, programmes them and that most, perhaps a chance for people like me and projects plummet to all, of them could have been to have a painful walk down disaster, there are times when avoided.” (Page 1, The Blunders memory lane. It is very much a you can hardly turn the page of Our Governments) text for today with lessons for for fear it will get worse: for I watched many of these all politicians and civil servants. the Exchequer, for innocent, blunders unfold, thankfully It is a “must read” for anyone vulnerable citizens, or for both. from a safe distance. I knew coming new to Government. The later part of the book many of the people involved. The core of the book is 12 seeks to draw out the lessons I was even directly involved in detailed case studies, plus a learned and here it is stronger two myself – individual learning briefer canter through some on analysis than on solutions. accounts and ID cards. The of the IT disasters of the last The list of lessons is familiar former was undoubtedly a 30 years. Complex stories are and the authors have to a blunder. I inherited it when I told with brilliant clarity and large extent drawn them from became Permanent Secretary at simplicity. They are all the more interviews with experienced the Department for Education powerful because there is no politicians and civil servants. and Skills. My main role was malice and no exaggerated But that begs the question, to close it down as fraud attempt to pin blame on why then aren’t the lessons approached £100 million; individuals. Politicians generally learned? Why don’t things and then to appear before the come out of it worse, but only get better? A recurring theme Public Accounts Committee to because more is known about in the book provides, I think, explain the failure. The second their role; and the authors most of the answer. 16

Issue 5 » July 2014 Civil Service Quarterly

and those charged with desire to listen to, and license, A common implementing them...Most of dissenting voices; and to test the policy makers responsible policy ideas to destruction. We feature of the for the blunders...assumed they need more of that kind of Minister, “blunders” is the had done the hard bit when they and more encouragement to civil had decided what Government servants to make the obligation to extent to which policy should be. Clearly they “speak truth to power” a reality. policy development were wrong.” If you are reading The book ends at 2010 but gets separated from this in HMRC, DWP or any other has a Postscript about the big operational department, you performance of the present the realities are probably already cheering Government. This is the weakest of the world. the authors on. part because, as the authors There is one other factor, admit, it is far too soon to make which can seriously increase the such judgments. They produce a In the worst cases policy is risk: the authors call it “Ministers list of possible mistakes which the developed by small groups of like- as activists”. Their argument, Coalition has made, but none yet minded people in Whitehall who which I believe is broadly true, is is a proven blunder. share the same set of assumptions that since the days of Margaret However, what seems to me and fail to test those assumptions Thatcher, Ministers have been likely, having read this book, is outside the group. The group often judged by how active they are: by that somewhere in Government assumes that there is only one their ability to get things done, to right now – maybe in several way of doing things: a common set short deadlines, to drive things places – a blunder is brewing, example until recently was the forward. This can sometimes despite the great efforts being assumption that the private sector make it difficult for civil servants made to minimise blunders is always superior in know-how and to get their concerns and through initiatives like the Major efficiency. They often have little reservations heard. Those who Projects Authority and the understanding of how people on have expressed doubts or argued Implementation Unit. It is likely to the receiving end of the policy will for slower implementation, say be the result of well intentioned behave or react – what the authors the authors, have increasingly policy objectives being call, “cultural disconnect”. seen their careers blighted disconnected from operational In the featured case studies and been characterised as the reality, driven forward by activist all this is frequently made worse blockers of change. Ministers working with a like- by “operational disconnect”. There is a real dilemma here. minded group which fails to get “No feature of the blunders My most exhilarating time in or hear the advice they need. The we have studied”, say the Government was when I was problem is that we won’t know authors, “stands out more working for active Ministers with where the blunder is, until prominently than the ambitions to change the world for it comes blinking into the light; divorce between the better. If risks are never taken, then we will all say, once more, those who then nothing will ever change. ‘How on earth could they make policies But the best Ministers I worked let that happen?!’. for combined activism with a real 17

Issue 5 » July 2014 Civil Service Quarterly Resource nationalism

» Is the UK economy at risk of countries or companies restricting the supply of key resources? Ian Mitchell and Serina Ng, economists from the Department of Environment, Food and Rural Affairs, assess the risks.

Last year, a new horizon- area for investigation. They the international supply scanning programme was commissioned a community of resources. established in the UK Civil of departments, led by the Alongside well-known key Service. Its job is to identify Department of Environment, resources like energy, food a wide range of potential Food and Rural Affairs (Defra), and water, a wide range of opportunities and threats, to undertake a study into other natural resources are and bring together experts what the evidence was saying used in everyday products from across the Civil Service and what the potential policy – for example, the materials and externally to obtain new implications are. in the components of our insights and challenge. mobile phones, computers and At an early stage, the rechargeable batteries. Many oversight group for the Why is resource nationalism of these are not widely known, programme – the Cabinet an issue? but could be important to the Secretary’s Advisory Group, UK economy. chaired by Sir Jeremy Resource nationalism refers Demand for resources Heywood – identified to negative, anti-competitive is growing – there are ‘resource nationalism’ as an action designed to restrict expected to be more than 18

Issue 5 » July 2014 Civil Service Quarterly

3 billion extra middle-class technology can change the The European Commission consumers by 20301. This nature of existing markets and formally adopted this list in should create opportunities for help create new and better 2011, using it to support trade UK manufacturing businesses products that require less of negotiations and challenge to grow and prosper; but these unevenly distributed trade distortion measures, in some cases the natural natural resources, this process and has committed to resources or reserves required takes time and money. In the update it every 3 years4. The are unevenly distributed meantime economic damage Commission also implemented around the world. This uneven from supply constraints could the Raw Materials Initiative in distribution represents a be considerable. 20135, an integrated strategy potential risk to supply chains. Individual businesses are to respond to different There can be incentives for likely to assess and manage challenges related to access countries to act in a way that risks to their own supply to non-energy and non- restricts the international chains. The work of the agricultural raw materials. supply of a natural resource. Defra-led team considered None of these metals are For example businesses or the complexity of identifying physically scarce. However, the nations may expropriate economy-wide risks and UK relies on imports of these resources or change the terms potential impacts. critical 14 metals to satisfy the on which they are extracted, needs of our manufacturing to capture profit, or ensure industry, including those they can satisfy their own ‘Critical metals’ embedded in products and domestic demand. These components. They are not acts of resource nationalism Our analysis indicates the risk only used in many consumer can impact on UK economic of resource nationalism may be electronic products but are also activity through higher supply higher in some lesser-known critical raw materials for wind chain costs or, in the most metals and minerals than turbines and hybrid car motors, extreme circumstances, the higher-profile resources key developing industries. For disrupted supply. such oil, coal and gas. These example, the motors of some Although it may not be materials are essential in hybrid vehicles require up to 1kg the main driver for short- everyday products such as of neodymium oxide6 which is term restrictive behaviour, mobile phones, computers and reliant on neodymium, a ‘rare there is, however, a strong rechargeable batteries. earth’ element largely mined profit incentive to maintain There are numerous in China. supplies to the global market. studies that have attempted Inevitably, the list of In the long-term, countries to assess which critical critical metals and minerals with valuable resources minerals and materials are at will alter over time. As noted are likely to best maximise risk of disruption to supply2. above, high prices and supply returns by accessing An EU study3 of 41 metals risk can drive innovation, customers overseas as well and materials identified 14 and some businesses are as domestically. Experience metals that are both of global addressing risks of supply with other resources such as economic importance and through development of oil and gas bears this out. It have supply risks including other technologies; the is extremely unlikely for the concentration of supply, fast-changing consumer supply to be completely cut stability of producing environment can make demand off, as profits are still to be countries and ease of for previously essential had in the global market. substitution. These are shown items disappear; and new While innovation and in Figure 1 circled in yellow. supply of a resource can

1 McKinsey Report, November 2011: Resource Revolution: Meeting the World’s Energy, Materials, Food and Water Needs. 2 For example: US Department of Energy: 2010 Critical Materials Strategy; Defra: A review of resource risks to business and an assessment of future viability; Defra & BIS: Resource Security Action Plan: making the most of valuable materials , SEPA: Raw Materials critical to the Scottish Economy 2011; Science and technology committee: Strategically important metals 2010-12, British Geological Survey: Risk List 2012. 3 http://ec.europa.eu/enterprise/policies/raw-materials/files/docs/report-b_en.pdf Note the European Commission has released an updated list as this article was going to press, available here http://ec.europa.eu/enterprise/policies/raw-materials/critical/index_en.htm. 4 The list was formally updated in May 2014. 5 http://register.consilium.europa.eu/doc/srv?l=EN&f=ST%2011876%202013%20INIT. 6 For example http://www.toyota-global.com/innovation/environmental_technology/technology_file/plug-in_hybrid.html. 19

Issue 5 » July 2014 Civil Service Quarterly

Resource nationalism

Figure 1: EU 14 critical raw materials identified by supply risk and economic importance

5 Rare Earths

4.5

4

3.5 PGM

3 Germanium Niobium Antimony 2.5 Magnesium Gallium Supply risk Supply 2 Indium Tungsten Barytes 1.5 Fluorspar Beryllium Cobalt Graphite Tantalum 1 Magnesite Lithium Rhenium Chromium Limestone Vanadium Borates Tellurium Molybdenum 0.5 Diatomite Perlite Gypsum Bentonite Bauxite Manganese Silver Iron Nickel Talc Clays Silica Zinc Feldspar Copper Aluminium 0 Titanium 3 4 5 6 7 8 9 10 Economic importance Source: Critical raw material for the EU: report of the Ad-hoc Working Group on defining critical raw materials. European Commission, June 2010.

also help limit the impact of restrictions and quotas are manipulate global prices, an resource nationalism, making, ways of securing a reliable OECD study8 found incidents for example, previously domestic supply at the of export restrictions on 8 of mothballed production sites expense of other countries. the EU 14 metals in 39 isolated economically viable7. Windfall taxes or compulsory incidents. Of these, China is But at present, substitution nationalisation can raise responsible for 33, particularly of these metals is difficult. governments’ revenue. in the markets for rare earth Although often used in small Geographical production elements and tungsten. quantities, they are critical concentration can create a Although there are to manufacturing processes. situation in which countries incentives for engaging in Therefore any restriction that and or nations can gain from resource nationalism, doing limits physical supply could resource nationalism. Producer so can often back-fire – no disrupt the whole production concentration is a factor in country is immune to the process. It is clear that some several key metals: notably impacts of retaliation by acts of resource nationalism Brazil for niobium, USA for others, or from their customers could do real economic beryllium, China and South developing alternative harm to individual products, Africa for platinum group supplies. This can reduce companies and supply chains. metals and Congo for cobalt the likelihood that the risks (see Figure 2). identified are realised. It may not be headline Political motivations grabbing news, but there have been a surprising number of So what can be done? The underlying motive for acts acts of resource nationalism of resource nationalism is for these lesser-known The Civil Service is already often to increase or maintain but important materials. drawing on its strengths to national access to resources Although there are few cases minimise the risks – using and the revenue flow from of more extreme action, like its global influence to them. For example, export co-ordinated attempts to increase international

7 http://www.reuters.com/article/2012/01/23/us-toyota-rare-earth-idUSTRE80M0JK20120123. 8 http://www.oecd.org/tad/ntm/43934153.pdf. 20

Issue 5 » July 2014 Civil Service Quarterly

Figure 2: EU 14 metals - Proportion of global output in main producer country (2012)

100%

90%

80%

70%

60%

50%

Concentration % Concentration 40%

30%

20%

10%

0%

Niobium Beryllium Rare Earths Tungsten Antimony Platinum Magnesium Germanium Graphite Fluorspar Indium Cobalt Tantalum Group Metals Compound

China Brazil USA South Africa Congo Mozambique

Source: US Geological Survey 2013 awareness and promote the negotiations9. Secondly, the Recovery13, bringing together benefits of trade, working EU, jointly with the USA and participants across the supply with a range of partners, Mexico launched a successful chain to stimulate innovation including the EU and other World Trade Organisation in design and recovery of international institutions. (WTO) challenge, to China's these materials. Many states are part of export restrictions on a So the next time you trade blocs, with unified number of key raw materials10. pick up your mobile phone trade barriers and regulation Domestically, we have or tablet, pause to think which adds a supranational been working in partnership about what exactly is in your dimension to aspects of with business to better device and how it got there. resource nationalism. Nations understand resource issues as Resource Nationalism will must work together, and part of the Resource Security remain an important and alongside international Action Plan11, working for evolving risk for businesses institutions and trading blocs example with the electrical and governments to monitor in order to tackle market sector to catalyse action and counter. That’s why it barriers and supply chain issues. and seek commitments on is important for the Civil Within the framework of design for longer life, keeping Service to be prepared the European Union’s raw products and materials in for the potential future, materials trade strategy, circulation for longer12. And, joining-up expertise across several actions have been through the Technology and beyond Whitehall to pursued including rules on Strategy Board, the UK understand and address the export restrictions in all Government is participating issues that affect major areas bilateral Free Trade Agreement in projects such as the Great of policy.

9 The EU-Korea Free Trade Agreement (FTA) includes the prohibition of duties, taxes or other fees on exportation, and the upcoming EU-Singapore FTA includes the prohibition of duties, taxes or measures of an equivalent effect on exportation. The EU and Central America, and Colombia/Peru trade agreements include a prohibition of export duties or taxes, with some minor exceptions. 10 This challenge, which covered bauxite, coke, fluorspar, magnesium, manganese, silicon carbide, silicon metal, yellow phosphorus and zinc, was launched in November 2009. A second successful WTO case was launched in 2012 against export restrictions applied by China on rare earths, tungsten and molybdenum. 11 https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/69511/pb13719-resource-security-action-plan.pdf. 12 http://www.wrap.org.uk/content/industry-action-electricals-sector-set-boost-uk-economy. 13 http://www.greatrecovery.org.uk/. 21

Issue 5 » July 2014 Civil Service Quarterly How I got here

» Pete Thompson is Deputy Chief Executive of the Defence Science and Technology Laboratory, a government agency that applies science and technology to the defence and security of the UK. How did he get there?

I’ve had a varied and interesting the virtues of being a broader career so far. But it could so systems-level thinker and Malvern and the Mojave easily not have happened. not an expert in “ion mobility Leaving university in 1992, spectrometry”! Bingo – that My early career, in what was having just completed the was what they wanted! As then the Defence Research research for a PhD but still I’ve come to learn over the Agency, later the Defence struggling to finish the write- years, few things in science Evaluation and Research up, jobs were hard to come by and technology for defence or Agency, was at two of their sites – or they were if you wanted a security are exactly what they in Dorset – both of which have career in science and weren’t say on the tin. since closed as government looking to stay in academia. I spent the next five years labs. After the Defence I got lucky by getting an applying niche technology Research Agency, I moved to interview through the “milk ideas to national security Malvern in Worcestershire to round” (a process where challenges, supplying “kit” for take a promotion, becoming graduates left their details use in the field the very next what I would now describe as with prospective employers week. Often it would come something between a project at recruitment fairs). back broken, which taught me manager and programme However, having prepared that clever technology is only manager. Not being an expert for one type of job in “the part of the story. in remote sensing of the Ministry”, when I turned up During that time I worked battlefield (spotting tanks at the interview it seemed with some folks who have under trees using radar, and they were looking for specific gone on to do some pretty things like that) I brought skills in another area. special things including little technical background to Thinking on my feet, I nodded someone who, in 2013, led the area; but found a niche in politely at the point when the team that provided the helping world-class scientists they check you are at the key chemical analysis to focus on the customers’ needs right interview, then spent support the government’s (rather than the sophistication the next 45 minutes extolling policy on Syria. of the science). By 2000 I found myself in California, assessing sensors on board Predator Remotely- Piloted Air Vehicles - now regularly in use in Afghanistan. Flying alongside one over the Mojave Desert in a four-seat aircraft, possibly one of the first Brits to do so, was one of many memorable events in my career. A year later, following 9/11, I was leading a team trying to bring remote surveillance techniques into service in Afghanistan to help find the perpetrators of the events in New York and Washington. We worked with colleagues in the U.S to Pete Thompson get “tech” to the front line 22

Issue 5 » July 2014 Civil Service Quarterly

quickly, and we succeeded. first place by making the best on the most difficult issues. For We got an enormous sense use of all kinds of information. me innovation occurs at the of the impact technology can This led me to become Head of interface between seemingly have if you get it into in the the Counter Terrorism Science disconnected disciplines, and hands of the right user at the and Technology Centre within enabling those conversations right time. As a result of this MOD. This was an interesting away from the laboratory or work the whole team received job, as most of the science computer was a way of achieving a Meritorious Citation from the and technology community in that. At our innovation lab we U.S. Government. the MOD, as well as the rest of pursued emerging technologies government, were unsure of our for numerous counter terrorism role. I had 8 months to turn it activities. I remember watching Dstl and counter-terrorism round. That doesn’t sound very a screen with two of our team long, but given the quality and “tweeting” messages to each By now the organisation I had drive of most of the people in other and tracking them joined in the early nineties the Centre it wasn’t as difficult across London, whilst reading had become the Defence as it might sound. We worked what they were saying. Quite Science and Technology out who our 3 or 4 key senior advanced for the time. Laboratory (Dstl) and I moved stakeholders were, identified We also led a transformation to take on wider management what they wanted from us and of how we approached responsibilities across the then went all-out to give countering Improvised Explosive organisation. Big Data, as it it to them. Devices (IEDs). Instead of is known now, was merely We created an innovation focusing on how best to deal medium or maybe slightly- lab (Google may have been with the device once it was in oversized data in 2008; but I just ahead of us at the time). place and ready to cause injury became increasingly motivated This was all about having a and damage, we focussed on to apply it to specific security different work environment: how to stop it being there in the challenges. We wanted to the soft furnishings and walls first place; or, if it was there, move away from having to ask you could write on were just how to detect it before we got “Something bad has happened, part of encouraging a different anywhere near it. This was a what do we do?” to stopping mind-set to problem solving, real example of making the bad thing happening in the and to making breakthroughs the best use of data and

Picture: MoD. The Unmanned Aerial System, Predator aircraft ready for take-off on the runway. 23

Issue 5 » July 2014 Civil Service Quarterly

information we had available. scientists and military personnel back to the lab and our wider We took people who were all working together towards a innovation network (including experts in their field but knew single goal. academia and industry), to nothing about this subject (I had By then I was overseeing provide technical advice in the some previous on this…), and Counter-IED Science & field within hours. For example, asked them what they would do. Technology across MOD, Felicity Brantingham, one of By early 2009 we had taken and leading our Support to our scientists, has been to the IED challenge to as many Operations activities for Dstl as Afghanistan three times in people inside and outside part of my role as a Programme different roles, and is keen to of government as we could, Director. Support to Operations go there again. She worked seeking the inventors in their is a catch-all for the embedded on a project that could only garage as well as industry civilian support Dstl provides have happened because of experts, leaving no stone to the military in times of the commitment to invest in unturned in seeking to prevent conflict and crisis. Since 2002, certain key technologies that we the deaths of servicemen we have deployed 670 posts believed would have an impact and women and injuries in in the various operations we on operations in the future. The action. One team, 12 months, support. A typical period in the future came a bit quicker than 8 companies contributing field can be four months, and we expected, but with strong 1 technologist each, no during that time our scientist international collaboration we Intellectual Property issues will advise the operational were able to rapidly field or commercial drivers: Dstl Commander, often reaching both smart scientists and

Picture: MoD. A soldier of Bravo Company, 1 Rifles is pictured manning a Desert Hawk UAV (Unmanned Aerial Vehicle) from a remote controlling unit in Afghanistan. 24

Issue 5 » July 2014 Civil Service Quarterly

technologies that helped to issues, communications, to exotic sounding locations remove many of the precursors strategic relations, governance around the globe, but usually to IEDs from the battlefield and assurance. only to spend long days in before they became bombs. The last three years have facilities with no windows. been a necessary learning What next? The future is less curve, as we wrestle with predictable than ever before, and What next? financial challenges, a shrinking there will be even greater reliance Civil Service and our desire on technology for Defence and I spent a hugely informative to operate successfully at Security. Dstl must be at the year in Whitehall, contributing the centre of an innovation centre of that system to meet our to Defence Reform and leading “system”, working with the customers’ needs and access the the science and technology best of the best in industry, best technical solutions. contribution to a White Paper, academia, other government From that first interview National Security Through labs and international partners. in 1992, I’ve recognised the Technology, before taking Working internationally, both to importance of agility and seizing on my current role as Deputy support UK interests abroad as opportunities as they arise – I Chief Executive of Dstl. The well as accessing technologies will encourage my people to do current role encompasses and systems not available in the same, and will continue to organisational and technical the UK is incredibly important do so myself as I continue to strategy for the lab, bringing and something I am proud develop my fascinating career as together technical and people to contribute to. It takes me a Senior Civil Servant. 25

Issue 5 » July 2014 Civil Service Quarterly Reforming child maintenance – taking a fresh approach

» Supporting separated families and securing children’s futures is a powerful motivator for Ian Wright, Change Director for Child Maintenance at the Department for Work and Pensions, as he helps to deliver a fresh approach to child maintenance.

The challenge is a powerful In the past the child Even after the one – to produce a system maintenance landscape implementation of a new of child maintenance that has largely been focused system in 2003, the CSA meets the needs of the two on one thing – the Child was struggling with an IT and a half million separated Support Agency (CSA). The system that was totally families in Great Britain and CSA frequently made the inadequate and notoriously in particular the one in three headlines in the 1990s and riddled with defects. Cases children not living with both early 2000s: were regularly disappearing their biological parents. off the system. The number The evidence suggests of expensively-managed that it’s important that both Payers angry at clerical cases hit 100,000 parents remain actively victimisation – and the IT system was involved in their children’s the agency has costing £74 million a year in lives, because children created a nightmare world operating costs alone. tend to enjoy better life The message was clear – outcomes when the same say fathers facing demands. child maintenance wasn’t two parents are able to give Guardian, 18 September 1993 working. Reform of the them support and protection whole landscape of child throughout their childhood1. CSA drove my gulf hostage maintenance was needed Children who have a positive son over the edge. to help parents reduce relationship with both Daily Mirror, 4 January 1994 levels of conflict after parents are more likely to do a separation and work better at school, stay out of Child support together more effectively. trouble, have higher levels complaints up of self-esteem and develop healthier relationships as by a third. The child maintenance an adult. BBC, 3 July 2001 landscape

Turning to the statutory What is child maintenance? service doesn’t need to be the default option. Child maintenance is usually money that the parent Government intervention without the main day-to-day care of a child pays to the is expensive (every £1 of other parent to provide help with a child’s everyday maintenance collected costs living costs. This includes things like food and clothes, the taxpayer 35p) and it can and helping to provide a home. Sharing the care of also put an unnecessary barrier between parents, children and buying things directly for them can also reducing the incentive to be considered to be maintenance. collaborate and increasing levels of conflict.

1 Coleman, L and Glenn, F, 2009, When Couples Part: Understanding the Consequences for Adults and Children, One Plus One. 26

Picture: Department for Work and Pensions

There’s another way, and think for parents. as Susan Park, Child Providing an opportunity for Maintenance Group Director, them to think again about explains: “Family-based child whether they could set up maintenance arrangements their own family-based child 2.5m are often the best option for maintenance arrangement. separated families everyone involved. They can be arranged privately without Supporting parents to Government intervention, work together are flexible and can be easily tailored to individual Child maintenance is circumstances. Working just one of the many issues 1 in 3 together to agree a child that parents face following Children not living maintenance arrangement can a separation. The Help with biological parents also help reduce conflict and and Support for Separated keep both parents involved in Families initiative, working their children’s lives.” in collaboration with the We knew there were voluntary and community opportunities to help sector, helps co-ordinate Every £1 of maintenance parents to collaborate in the existing support services collected costs the £1 interests of their children for those going through taxpayer – but we had to do more a separation. than just provide a statutory scheme. So, we set out A reason to pause and think a twin approach. Firstly, Taxpayer supporting parents to work In December 2012 we started together on the whole range to introduce a new statutory 35p of issues faced following child maintenance scheme. a separation. Secondly, To make sure this is only providing a reason to pause used by those who really 27

Issue 5 » July 2014 Civil Service Quarterly

Reforming child maintenance – taking a fresh approach

need it, in 2014 we are Help and Support doing two things. First, we are introducing for Separated Families charging for use of this initiative scheme. This includes an application fee (we will not A Steering Group of experts from the apply this fee to victims of voluntary and community sector, academia domestic violence or abuse and across Government set out their vision for how or to applicants aged 18 or child maintenance could be transformed to provide under) and ongoing charges for use of the collection better co-ordinated support for separating and service. Charging is designed separated parents. to act as an incentive, The Steering Group came up with an approach encouraging parents to think again before automatically where the Government acts as an enabler to help putting in an application. co-ordinate support services that already exist. This Both parents have a consists of: responsibility to set up an effective arrangement and • A web application that can sit on existing websites; both will make a financial co-ordinated telephone networks; and local and contribution towards the face-to-face support. cost of the service, which remains heavily subsidised • A new quality mark promoted and endorsed by by the taxpayer. stakeholders, so people know they are dealing Second, we will begin with organisations they can trust. gradually closing cases in the existing CSA schemes. By • A new Innovation Fund testing and evaluating closing existing scheme cases a range of interventions that help parents to – rather than just moving work together in the best interests of their them to the new scheme – children. Seventeen voluntary and private sector we will encourage clients organisations have already been awarded funding. involved with these cases to think again about their child maintenance arrangements.

Building a new system

Even with incentives and support, for some parents a statutory child maintenance service is the only option and in 2012 we launched a new child maintenance scheme supported by a new IT system. In the past the system has been the source of so many issues – remember those headlines? We’ve been intent on learning from the past in building this new system, and there are plenty of lessons to learn. So, Picture: Department for Work and Pensions we’ve done things 28

Issue 5 » July 2014 Civil Service Quarterly

Picture: Department for Work and Pensions differently: we used off-the- and business needs.” means, instead of going shelf – tried and tested – Marcus had five years live with a ‘big bang’, we software packages instead experience working in carefully controlled the of building a complicated operations before joining volume of applications to the new system from scratch; the programme. He says: new scheme, and ramping up we made sure there are very “My role was to make the the number in stages over 12 few data transfers from those systems and processes as months. This safe and slow existing systems that have seamless and friendly as build-up allowed us to be been so problematic; and possible for caseworkers, so confident in the performance we designed the system in we can focus on managing of the system from go-live – it conjunction with our policy client relationships instead has meant we are constantly and operations colleagues of fighting with the system. learning and improving and – using their practical A big part of making things have avoided those headlines experience and knowledge. easier is that the system which dogged us in the past. Denise, who came from will issue the right letters We initially micro- operations to work on the at the right part in the managed every application programme, says: “My 18 process automatically.” and proactively made sure years operational experience everything was working as means I’ve a firm grasp of we intended. This meant what will work and what A different approach to we could spot problems won’t, on a practical level. implementation and quickly resolve them One of my roles on the before they were visible to programme has been as a More than just designing our clients. We constantly subject matter expert and and building the system assured colleagues that we’d I checked process maps, differently, we’ve also learnt only increase volumes to the compared processes with from the past: introducing new scheme when we were child maintenance policy and the new scheme and system content that everything was made sure the design of the using a pathfinder approach. working as it should – a new system met client The pathfinder approach promise we stuck to, and 29

Issue 5 » July 2014 Civil Service Quarterly

Reforming child maintenance – taking a fresh approach

which bought us a great improving colleagues’ All with the aim of making deal of support. understanding, and applying workflow more efficient Tom McCormack, Programme lessons learnt. and the service parents Delivery Director, picks up “Learning was shared get better. the story: “The first few with colleagues through We also used the weeks were pretty much as face-to-face education pathfinder to test our clients’ we expected – we did find events, and guidance experiences – identifying issues along the way and as is available in new and some crucial client touch we came across them we improved procedures points in the application fixed them. for caseworkers to refer to process to see if our clients’ “We were able to identify when needed.” experience matched up the wrinkles and deal to the experience we with them while we had a intended. The touch points small number of cases. For A learning approach included things like how example, we identified an long it took for our initial issue with setting up Direct The pathfinder approach information pack to be sent Debits. When setting them allowed us to identify a to the applicant, how long up everything looked fine number of areas to focus on it took for a provisional on our system, but the final before we completed our calculation letter to be sent, step did not work – meaning rollout. We worked hard to and whether the clients that the payment was not capture the experiences and responded to the letter. set up correctly at the bank. learning from colleagues in This has helped resolve Micro-managing the system the initial stages, to prepare some initial issues, and meant we were able to fix new colleagues joining as the monitor which interactions this before clients even knew rollout continued. have the biggest impact on there was a problem. For example, feedback our clients’ experiences. “Part of the reason to go from training and from The pathfinder has been live with the new scheme and operational performance led a real example of learning system as a pathfinder was Training Design colleagues to by doing, allowing us to to test and assure our new expand one particular aspect introduce the new scheme systems and processes, and of training for team leaders, and system in a way that spot and resolve issues in the to include additional learning worked best for clients and real working environment – it on topics such as work avoid the mistakes of achieved that.” allocation and querying. the past. An important part of our pathfinder approach was having a series of escalation points for colleagues to raise The benefits of a pathfinder approach issues to, Tom continues: “Our aim was to make sure You can test your systems, processes, and clients’ we provided the necessary and colleagues’ journeys in a live environment with support to colleagues when controls in place to manage issues. all self-help avenues had been exhausted. The next • You can make improvements and learn before step was for colleagues to you roll out fully. discuss it with their team leader and then one of the • Colleagues in future ‘waves’ benefit from more operational support floor- robust processes, communications and training. walkers we had in place in • Clients benefit from micro-management of their each site. If resolution was cases as processes are embedded. not possible, then issues were raised to an Area Advice • Assurance can be given to Ministers that the Centre and filtered to a system is working well before any additional National Advice Team. It’s all rollout occurs. about client service – getting and keeping cases moving, 30

Issue 5 » July 2014 Civil Service Quarterly

statutory scheme is there Rebalancing the child to support them. maintenance system I’m pleased that we’re learning from the past We’re well on the way to to fulfil our vision to providing encouragement, support separated families incentives and support to and secure children’s parents to make their own futures by providing family-based arrangements a child maintenance for child maintenance, while system that meets the maximising value for the expectations of children, taxpayer. When parents parents, stakeholders, can’t come to their own the Government and its arrangement, then the new, taxpayers. That’s a powerful more effective and efficient, motivator for me.

Picture: Department for Work and Pensions 31

Issue 5 » July 2014 Civil Service Quarterly Interview with Duncan Selbie, Chief Executive of Public Health England

» Trying to shift the nation’s attitudes to healthcare is an important, but difficult task. Civil Service Quarterly interviewed Duncan Selbie, who has a key role to play as Chief Executive of Public Health England.

“I’ll tell you a story by way of introduction…” Duncan Selbie cares deeply about the mission of Public Health England: to protect and improve the nation’s health. And he tells a good story. So good, in fact, that Civil Service Quarterly has to wait twenty minutes to get a word in. There is a lot to say about the restructuring of health responsibilities, and the creation of Public Health England in April 2013. But Duncan is clear that it isn’t the most important thing. Picture: PHE What comes first is the public’s health. “The NHS has achieved Having joined the NHS aged conflate good health with the a huge amount. But what it 17, Duncan made his way up role of the NHS, and it’s simply hasn’t done is also notable. to become Chief Executive of wrong. This is not a hug-a-tree It could address to a major psychiatric service, of moment; the science and some extent the a strategic health authority, evidence behind this is as consequences and of an acute teaching strong as anything we do in of poor health. hospital. But he doesn’t rely clinical medicine.” What it hasn’t on his personal experience. On a whistle-stop tour of done — and it Throughout the interview, he key studies, Duncan talks never could — talks about ‘the evidence’. about reports by Derek is address the “As a nation, politically, Wanless1 and Michael drivers of good through the media, through Marmot2. If the nation is health.” our own selves if you like, we to be able to afford a top-

1 Securing Our Future Health: Taking a Long-Term View, 2002. http://webarchive.nationalarchives.gov.uk/+/http:/www.hm-treasury.gov.uk/consult_wanless_final.htm. 2 Fair Society, Healthy Lives, 2008. https://www.instituteofhealthequity.org/projects/fair-society-healthy-lives-the-marmot-review. 32

Issue 5 » July 2014 Civil Service Quarterly

people the statutory services “What’s hoped for is that can’t reach, in relevant and we’ll be a fearless exposer, meaningful ways.” a defender for the public’s health; and that’s a difficult one in a political environment. 2013 reforms and the role of Because the public’s health is Public Health England political. I mean we’ve agreed quality health service in years that it’s political, which is to come, Wanless told us, Public Health England has why we’ve given it to local people need to engage better brought together experts from government; and we exist to in managing their own health. the Health Protection Agency, serve the local system, led by Marmot’s contribution was the National Treatment local government. to reveal the power of social Agency for Substance Misuse “One of our contributions factors on our health. and elsewhere as part of the is to publish the evidence “Marmot was making the Civil Service. At the same time on health issues, like with argument, from the evidence, the Department of Health obesity. The Daily Mail that there are many other has decreased in size as runs it as ‘So-and- things that drive good health responsibility for the day-to- so’s the fattest before you get to health care. day running of the NHS has place in Britain’, About half of everything that transferred to NHS England. but we don’t do matters about length of life, This has shifted the emphasis it to tell people and quality of life when alive, from a health civil service they’re wrong, are the choices that people focused on healthcare to or to put local make. About a further third, one concerned with health authorities in a the environment in which more broadly. league table, or to people find themselves, and Changes happened locally tell people what their there’s a genetic component as well and Duncan argues priorities should be. That’s as well, your start in life in the that of the big changes that been tried before, and in genes you inherit. But only happened in 2013, the biggest any event local government after that do you get into the was giving the 152 upper-tier don’t react well to being told impact of healthcare itself.” and unitary local authorities what to do.” If Public Health England the statutory duty to improve They are also looking to is to protect and improve the the health of their residents. use technology, and the nation’s health, then it needs “Half of the people that behavioural sciences, to help to work in new ways. And the were in the public health make a difference. evidence suggests this means profession, in Primary Care “We need to find maybe influencing people’s choices Trusts, have moved into local four or five big corporates and their environment. government; and they’ve that are relevant to people — “So if half of the facts been given what the NHS was so Sainsbury’s, Tesco, Lidl, affecting good health, length spending on the public health have millions of people on of life and life without misery service. I’m saying that with their databases — to reach in it, are the choices we make, some care because what the people. So let’s say I went to health inequalities are largely NHS was spending on the Tesco on Sunday and I got a driven by the width of your public health service before till receipt and it said I bought choices. And those that are was 3% of its budget. Not 13%, various things, and it said wealthier, and are better off not 30%, but 3%.” you’ve saved £2.21. I think and have often had a better Given what Wanless, Sainsbury’s do the same thing. educational experience have Marmot and others have What if we gave Sainsbury’s wider choices. shown about the importance the algorithms, that they could “Who are the most relevant of and the mechanisms for personalise to their customer to people, who can reach them improving good health, this database, so they give their and make a difference? Well, sounds like a small budget. customer base advice about it’s not us. Local government, But Public Health England is how they could improve their the big retailers, the big working to support the new health. It doesn’t have to cost corporates, the voluntary arrangements in a variety of customers anything more, sector, they are reaching creative ways. but it may help them make 33

Issue 5 » July 2014 Civil Service Quarterly

Interview with Duncan Selbie, Chief Executive of Public Health England

a difficult process. “I’ve got people on every conceivable term and condition. I wasn’t able to offer them access to the Civil Service Pension Scheme on any comparable basis, so they’ve been brought in on their existing terms and conditions, but the consequence is no pay rise. And if we thought the health service was an organisation that had rules about recruitment and procurement and the like, it’s as nothing. At some level, of course, it’s entirely understandable, because the Government needs to prove it’s dropping its costs; but this has been far from straightforward. “In this sort of organisation we need people to move through and out, it’s important for new experience. I need people moving in and out of Picture: PHE the health service, I need people moving in and out of local government. But how am choices that are better for survey results3. I going to get people to come their health.” Equally clear, however, is that into this organisation? Because Public Health England fact that this new organisation their first question will be ‘Why do a range of other things faces challenges of leadership, should I give up my right to this, too. “We have nine or ten change management, and that, and the next thing?’. responsibilities which are organisational purpose. These sorts of challenges are unique. They happen to be Duncan does not try to duck familiar to many public sector with Public Health England, the issue. “I suppose what organisations. But Duncan but they are unique for the I'm supposed to say is: ‘Look, believes Public Health England nation. They are well-regarded nine months in, we’ve just faces more unique challenges. internationally — we earn 40% brought together 130 different “A big part of it, and I’ll be of our income, about £175 organisational cultures — completely blunt about it, is million, through the science what can you expect?’ Well I our scientists and public health that we do and the services expect a lot more than that. I professionals did not want to that we offer.” was very concerned [about the be in the Civil Service. Their people survey results], because perception of being in the Civil we have such a compelling Service was to be constrained, PHE as an organisation mission. What people to be suppressed. This have said is that they is anathema to our Public Health England has a feel good about what people, who are compelling mission (“what’s they do, they feel used to having the not to like about protecting and they’re making a freedom to speak improving the nation’s health? I difference. It’s just and to publish. And mean, honestly, it’s a cracker”), this organisation…!” to be told at the and motivated staff. That much Setting up Public same time that you is clear from the 2013 people Health England has been won’t get a pay rise…

3 https://www.gov.uk/government/publications/civil-service-people-survey-public-health-england-results-2013. 34

Issue 5 » July 2014 Civil Service Quarterly

“So we’ve put in months of know you don’t care about X, organisation. They are effort to reach agreement about Y, and Z. But more importantly, independent, autonomous, our freedom, to speak and to they say ‘Well, if you’re not and report straight to the publish. The code of conduct telling the truth about that, Chief Executive. They walk the for our staff incorporates the what else aren’t you telling floor, they talk to people — Civil Service code of conduct the truth about?’ anyone can talk to them about but it goes much further than “Another important anybody’s behaviour. Their that, and it enshrines as a behaviour is ‘keep your job is to help the individual contractual right for our people promises’. Because the and, if necessary, intercede. that they have a right, and evidence says people expect John Lewis invest hugely in ultimately a duty, to speak the you to. So don’t be cautious assuring the behaviours of their truth. And no other organisation about making promises, just managers and their leaders.” that I know of in the Civil know that if you make one Service has that enshrined as a people expect you to try, contractual right.” even if you can’t deliver on This is about winning everything you’ve promised. “And the third behaviour, in Duncan’s passion for his The right behaviours no particular order, is ‘speak organisation, and that well of each other’. Someone organisation’s mission, is The weaving together of is always listening. There are clear. He paints a picture of different terms and conditions, no secrets. I didn’t know when what he wants Public Health and establishing the new code my mother said ‘If you’ve got England to be. of conduct are important nothing good to say, don’t say “We need to be fierce, and structural points. But Duncan anything’ that she was quoting independently fierce. Not expresses himself strongly on academic research; but this policy-makers, but informing the significance of ‘softer’ steps. is straight from the evidence policy. And being fearless about “Often organisations say about high-performing teams.” what we say — but not stupid. ‘We care about our people, How are Duncan and his “On standardised our people are our greatest team going to make a positive packaging for asset’ — they take the usual difference to the behaviour of cigarettes, when words and jumble them all up. the organisation? the Government But it’s all rubbish, if you’re at “I’ve got a big part to play changed its the wrong end of it. Because in modelling these behaviours mind and said you say that’s not what I think, and saying what matters. ‘we’ve decided that’s not been my experience. You wouldn’t put me on the not to go ahead “People don’t leave sofa on Daybreak to talk at the moment organisations because they’ve about obesity, or put me in and wait for more been asked to do too much a laboratory to have a good evidence’, we were work, or because of pay, look at a tuberculosis case or, very disappointed. they leave because of their frankly, anything that involved But my point about not manager. What matters to our version of frontline care. being stupid is that having the them is their immediate line But that’s not what I’m for. My evidence isn’t always enough, manager. What I’ve got to do job is to create a team capable the timing also needs to be is create an environment and of extraordinary things. right. So we are delighted a culture based on a set of “So what I’m emphatically about the independent review behaviours that are present not saying is ‘It’s early days, of standardised packaging”. in high-performing teams, what do you expect?’ I’m “We don’t want organisations that do better.” saying ‘It’s early days; blimey, glorious defeat where the Not for the first time, this isn’t good’. We need to commentariat says ‘Isn’t that Duncan emphasises what make it better. As part of this marvellous, Public Health research has shown works. we’re trying a concept from England is out there being a “One behaviour people search John Lewis. pain in the arse, that’s exactly for is alignment between what “The role of the registrar what the public health service you say and what you do. If you team in John Lewis is to be should be about’. No. The say ‘I care about X, Y, and Z...’ an assurance of leadership public health service should but you do A, B, and C, they behaviour throughout the be about winning. © Crown copyright 2014 You may re-use this information (excluding logos) free of charge in any format or medium, under the terms of the Open Government Licence. To view this licence, visit www.nationalarchives.gov.uk/doc/open-government-licence/version/2/ or email [email protected]