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Decision making by the Prime Minister and Cabinet is well informed and supported
The Prime Minister and the Cabinet are the centre of government. The Prime Minister plays a key role in maintaining and co-ordinating the government by overseeing its general policy direction, and by chairing and leading Cabinet. Ministers work together as Cabinet, and in Cabinet committees, to discuss and take decisions on a wide range of matters. DPMC, along with the wider public service, supports the Prime Minister and ministers by ensuring they are provided with good information and advice to enable sound decision making.
DPMC has a key role to play in promoting the effective operation of the public service and helping to achieve a co-ordinated state sector, which it does by ensuring that support is delivered to the Prime Minister and Cabinet to enable them to carry out the government’s business in a collective, well co-ordinated and organised way. This support is primarily the responsibility of the Policy Advisory Group (PAG), the Domestic and External Security Group (DESG), and the Cabinet Office, although the External Assessments Bureau (EAB) also plays a part.
PAG advises the Prime Minister on a very broad range of policy matters; and DESG provides policy advice to her on security matters in the widest sense, from natural disasters to counter-terrorism. Both groups help departments make links with other agencies working on related issues, and they attempt to ensure that officials do not lose sight of broader government priorities – in particular, sustainability and the three priority themes. They also help remove bottlenecks in the flow of departmental policy making, and they work to ensure state sector support for effective Cabinet decision making. To do this, they provide comment on draft papers and provide briefings to the Prime Minister across all government business (and other areas when relevant). Further, the two groups participate in a wide range of officials’ committees, attend Cabinet committee meetings in an advisory and support capacity, co-ordinate follow-up work, and, where appropriate, inform officials of the wider context in which decisions have been made.
In the medium term, both groups are looking to act more strategically. For PAG, that means a greater focus on emerging priorities - whether helping departments understand ministers’ perspectives, developing the policy that underlies government priorities, or implementing these priorities. For DESG, acting more strategically means a greater focus on its “strategic policy” role of assessing and advising on New Zealand’s security risk. DESG will also continue to think forward in areas such as counter-terrorism, emergency management, border management, and intelligence co-ordination; and it will continue to lead government co-ordination during times of emergency.
The Cabinet Office administers the Cabinet system, recording and circulating Cabinet decisions accurately and promptly. It maintains a record of all Cabinet decisions, helps co-ordinate the government’s legislative programme, and supports decision making by the Prime Minister and ministers on the awarding of honours. The Cabinet Office also works with ministers’ offices and departments to ensure that issues are presented to Cabinet in a way that supports good decision making. It does this through quality control and monitoring, developing and promulgating guidance, and education and training.
Responding to ministers’ concerns, DPMC will work with the other central agencies to build on existing work to improve the quality of Cabinet papers. The Cabinet Office will take a more active and targeted approach to advising departments on what ministers are looking for in Cabinet papers. Electronic tools will be used, including the launch of the CabGuide, a web-based version of the Cabinet Office Step by Step Guide to Cabinet and Committee Processes.
The External Assessments Bureau (EAB) contributes to Outcome 1 through assessments and reports to the Prime Minister and other key ministers on external developments that could significantly affect New Zealand’s interests.
Executive government is well conducted and continues in accordance with accepted conventions and practices
At the heart of New Zealand’s democratic and political system is stable and continuing executive government that is accountable to an elected House of Representatives. Executive government comprises the Governor-General, the Prime Minister, other ministers of the Crown, and the public service. The purpose of Outcome 2 is to provide the administrative support for the ongoing conduct of government business within accepted conventions and practices, and to ensure the smooth transfer of power between successive administrations, Prime Ministers, ministers, and Governors-General.
As the recognised source of expert knowledge on the systems of Cabinet and executive government, the Cabinet Office is the department’s primary contributor to this outcome. In carrying out its role, the Cabinet Office also works with the Crown Law Office, Parliamentary Counsel, Ministry of Justice, State Services Commission, and Treasury.
The Cabinet Office provides advice to the Governor-General, the Prime Minister and ministers on the constitutional issues and procedures that support the conduct and continuity of executive government. It ensures that constitutional procedures such as the appointment of ministers are well managed and administered correctly, and it provides policy advice on constitutional issues that have implications for executive government.
The trust of ministers and other stakeholders and a reputation for integrity and judgement are vital to the operation of the Cabinet Office. It is rigorous in maintaining impartiality between administrations, agencies, and individual ministers.
The Cabinet Manual is the authoritative guide to central government decision making, with successive governments using it as the basis on which to operate. While its fundamental features remain unchanged, it is updated from time to time to reflect changes in Cabinet procedures and constitutional developments. The current version (published in 2001) will be updated in 2007/08.
Other policy development work includes projects associated with the next general election (such as Cabinet Office guidance on election protocols), an updating of Executive Council procedures, a review of the formal requirements for appointment documents, and a range of New Zealand Royal Honours policy matters.
Cabinet Office publications contribute to a wider awareness and understanding of the formal roles, conventions, and workings of the system of executive government. This information is published in a number of forms including the Cabinet Manual, Cabinet Office circulars, the CabGuide, and material related to the Cabinet and Cabinet committees workspace on the public sector intranet and on DPMC’s website (www.dpmc.govt.nz).
The Governor-General is well supported
The Governor-General represents The Queen as New Zealand’s Head of State, and exercises important interlinking constitutional, ceremonial, and community duties and roles. The Governor-General’s constitutional duties ensure the legitimacy and continuity of government. In exercising these constitutional powers and functions, the Governor-General is supported by Government House and the Cabinet Office and, by convention, acts on the advice of ministers in almost all situations. As Clerk of the Executive Council, the Secretary of the Cabinet is responsible for liaison between the Governor-General and the government of the day.
The key role of the Governor-General within the New Zealand system of government contributes to the overall outcome of “good government”, and requires efficient and effective support. Maintaining the present and future credibility and status of the office of the Governor-General is integral to the effective performance of vice-regal constitutional, ceremonial, and community roles. Government House staff strive to provide skilled and responsive support to Their Excellencies. Performance improvements over the medium term, which will be achieved through training and development opportunities at all levels, will produce an appropriately qualified, more effective, and more efficient staff.
The ceremonial role of the Governor-General is broad. It includes not only many domestic national and local ceremonial events, but also the promotion of New Zealand interests overseas through state visits. Government House works closely with the Cabinet Office and the Ministry of Foreign Affairs and Trade, to ensure that state visits are well planned, well in advance.
The Governor-General provides non-partisan leadership in the community through a programme of speeches, patronage of many charities and community groups, attendance at special events and functions, and visits to specific interest groups throughout New Zealand. Government House supports the development of the Governor-General’s programme and, through ongoing review and feedback, seeks to ensure the programme is always relevant and balanced.
Government Houses in Wellington and Auckland are listed historic properties and provide venues for the many constitutional, ceremonial, and community functions undertaken by the Governor-General. Exploratory work began in 2006 at Government House Wellington to determine the extent of restorative work required. The results are being assessed and options developed for how restoration, incorporating measurable government sustainability policies and goals, could be undertaken over the next 3 to 5 years.
For more information see www.gov-gen.govt.nz.
The management of domestic and external security risks is well planned, informed and co-ordinated
The possible domestic and international risks to New Zealand’s wellbeing encompass such concerns as external threats to national security (for example from international organised crime or from illegal fishing), terrorist threats to New Zealand and to New Zealanders abroad, major accidents and natural disasters, the loss of essential infrastructure, and physical and bio-security hazards such as the threat of an avian influenza epidemic. In this context, “good government” for DPMC means assessing, preparing for, monitoring, and responding to such risks in a timely and structured way. The External Assessments Bureau (EAB) and the Domestic and External Security Group (DESG) have the prime responsibility for Outcome 4.
EAB plays its part by increasing New Zealand’s understanding of the external environment. Its assessments are intended to inform the Prime Minister, other senior ministers, senior officials, and New Zealand’s diplomatic representatives overseas about external political, economic, security, environmental, scientific, and biographic developments of significance to New Zealand. EAB’s reports are as objective as possible and do not contain policy advice or advocacy.
DESG’s contribution is in promoting effective planning and co-operation among other departments and agencies with operational responsibilities for managing security risks, in order to reduce the likelihood of an adverse event, lessen the severity of its impact if it occurs, and deal with the consequences. DESG has a centre-of-government function in overseeing the preparation of overarching national security strategies, providing leadership in policy development, and co-ordinating the work of others in developing their capacity to deal with specific security risks. DESG also has a particular responsibility for co-ordinating the activities of the New Zealand intelligence community. It provides support for the Cabinet Committee on Domestic and External Security Co-ordination and the Officials’ Committee on Domestic and External Security Co-ordination (ODESC), an inter-departmental body chaired by the Chief Executive of DPMC.
The responsibilities of both EAB and DESG are well established and ongoing, and they will continue in 2007/08. For both units, and especially for DESG because of its co-ordination functions, their networks of relationships with other departments and agencies will continue to be crucial. These networks include policy, operational and intelligence organisations such as the Ministry of Foreign Affairs and Trade, Treasury, Ministry of Agriculture and Forestry, Ministry of Fisheries, Ministry of Health, Ministry of Defence, New Zealand Defence Force, Customs, Police, Department of Labour, Security Intelligence Service, and Government Communications Security Bureau.
A high-performing, trusted and accessible state sector, delivering the right things, in the right way, at the right prices
The common purpose of the central agencies is a shared or mutual interest in a high-performing, trusted and accessible state sector. Central agencies have a key leadership role to play in aligning the activities of the state services with the government’s priorities and in making sure that ministers receive the best possible advice before making decisions.
Each central agency has its own key responsibilities, but each also requires contributions from the other two. DPMC exists to support the process of collective decision making, to convey Cabinet’s decisions to the relevant ministers and officials, and to ensure that the Cabinet receives well-conceived and co-ordinated advice. DPMC also has a leadership role in relation to government themes and priorities, including conveying the government’s priorities to officials. Treasury exists to monitor and manage the financial affairs of the government and to provide economic and fiscal policy advice. Treasury is the key agency for supporting ministers in balancing priorities through the budget process. It provides insight into the efficiency and effectiveness of government agencies and their interventions. State Services Commission exists to appoint and manage public service chief executives; to provide leadership in the capability of agencies, sectors and systems; and to ensure that state servants are appropriately focused on addressing the government’s priorities.
In 2006 an independent in-depth review of the central agencies was completed. While the review pointed to successes, ministers agreed that more is needed from the central agencies, both jointly and separately, if they are to lift performance in the state sector. They must:
Provide effective leadership: Central agencies need to take responsibility for making our devolved system work. To that end, central agencies will work alongside other agencies on specific issues.
Central agencies will work to give ministers better information and advice. They will ensure that the right guidance and monitoring is in place to enable the system to run smoothly so that agencies will have a clear understanding of ministers’ performance expectations.
Focus on the things that matter: Efforts need to be better targeted to where they are going to have the most impact on results. Central agencies will focus on priority issues and get action on these, while retaining responsibility for a system-wide view.
Work together more effectively: By sharing information and integrating aspects of planning, the central agencies will aim to develop joint views on where priority issues lie. They can then identify where there is value in taking joint action on issues, or where separate action is likely to be more productive.
In 2007/08 the central agencies will work in a number of areas. These include:
Cross-government policy issues: Central agencies will provide the leadership and support needed to achieve progress on complex issues where the government expects to see significant shifts in outcomes. These issues often cross agency and sector boundaries.
State systems improvement: Central agencies will work together where systems improvements would significantly assist the government to deliver on priorities.
Central agency organisational improvements: Each central agency is changing and better aligning its internal processes to more effectively carry out the shared central agency role.
The measurement of whether central agencies are adding value to state sector performance will be done through an annual survey of government agency leaders, and feedback from central agency ministers.