Tag Archives: Australia
By David Bicknell
The Australian state of Victoria has scrapped a A$500m e-health IT project intended to create electronic patient records and prescriptions and will replace it with a ‘patchwork approach.’
According to a report in Victoria’s Herald Sun, Health Minister David Davis confirmed that the government had made a decision to scrap any further rollout of HealthSMART, a project to modernise the health system’s IT which began in 2003.
Davis said the Government would now work on a hospital-by-hospital basis, setting up individual systems.
The HealthSMART rollout began under the previous state Labour government and is now fully operational at just four health services across Victoria.
In a telling quote, Mr Davis said the Government was determined not to “throw more good money after bad” and would now set up an expert panel to advise it on the best way to upgrade the hospital ICT system.
By David Bicknell
The struggles that a number of governments and agencies are having in coping with Freedom of Information (FOI) requests has raised questions over the need for – or the status of – their IT projects for records management.
The UK government is itself in a tizzy about the number of requests it receives. And it appears from this ZDNet article Down Under that state governments and public services in Australia are struggling to keep up too.
The article cites a recent report from the Victorian auditor-general that the Victorian Department of Human Services (DHS) needs a new electronic records-management system. It argues that not only is the department completely failing to fulfil FOI requests, which was the topic of the audit, but it is also probably losing hours of staff time as employees comb through its records for the information they need to do their jobs.
Apparently, the DHS received 1047 FOI requests in 2010-2011. However, instead of meeting the 45-day deadline for fulfilling these requests, the average fulfilment time was 75 days.
Admittedly, Australia has had 30 years of dealing with FOI, where here we have had twelve. But the report’s background and conclusions on FOI make for informative reading. I wonder how many government departments and councils it might apply to over in the UK; what IT projects (if any) they have underway in terms of electronic records management; and just how long it might be before a similar critical report is written here.
Freedom of information (FOI) is a cornerstone of a thriving democracy. FOI upholds the public’s fundamental right to access information held by the government. The community’s ability to scrutinise public sector activities and hold the government of the day accountable for its decisions is affected by the transparency and accessibility of government information.
Since the Freedom of Information Act 1982 (the Act) was introduced, both the number and the complexity of requests for information have increased considerably. In 2010–11 there were 34 052 FOI requests, compared to 4 702 requests in 1984–85, the first full year the Act was in operation.
The Victorian Ombudsman identified systemic problems in his 2006 review of FOI. These included a lack of timely responses, inconsistent application of the Act and lost or non‑existent documents. In his 2011 Annual Report the Ombudsman concluded that these problems still remained five years later.
The audit examined the extent to which all 11 Victorian public sector departments and Victoria Police meet the requirements of the Act and associated guidelines. A detailed assessment of the effectiveness and efficiency of FOI processes in Victoria Police and the Department of Human Services (DHS) was also performed. These two agencies were selected because they process 68 per cent of the FOI requests received by the 12 agencies audited.
Since FOI legislation was introduced 30 years ago, Victoria has gone from being at the forefront of FOI law and administration to one of the least progressive jurisdictions in Australia. Over time, apathy and resistance to scrutiny have adversely affected the operation of the Act, restricting the amount of information being released. As a result, agencies are not meeting the object of the Act, which is ‘to extend as far as possible the right of the community to access information’.
The public’s right to timely, comprehensive and accurate information is consequently being frustrated. The Victorian public sector’s systemic failure to support this right is a failure to deliver Parliament’s intent.
The prevailing culture and lack of transparent processes allow principal officers—secretaries and chief executive officers of agencies—to avoid fulfilling their responsibilities. Principal officers are not being held to account for their agency’s underperformance and non-compliance:
- In 2010–11, the average response time for eight of the 12 audited agencies exceeded the statutory deadline for responding to applicants’ requests.
- Of these agencies, four exceeded the 45-day time limit for over half of their requests.
- None of the agencies adequately complied with the mandatory reporting requirements of the Act.
- The principal officers of the Department of Premier and Cabinet (DPC), the Department of Health (DOH) and DHS have not managed adherence with ministerial noting periods consistent with the Attorney-General’s 2009 Guidelines on the Responsibilities and Obligations of Principal Officers and Agencies(the FOI Guidelines). This has led to delays in the release of documents.
- Agencies have not managed to reach agreement on a consistent, whole‑of‑government approach to the proactive release of information, which would reduce the reliance on FOI processes for the release of non-personal information.
- The more detailed review of DHS and Victoria Police revealed serious flaws in record keeping practices and FOI searches.
The cumulative effect of the multiple cultural and process issues is that the community does not receive the information it is entitled to receive, when it should receive it. Agency senior management is aware of these longstanding issues and their consequences, but has not taken sufficient action to address these systemic weaknesses.
This points to an absence of leadership and responsiveness, and a willingness of agencies to compromise the fundamental public service principles of integrity, accountability and respect. These are values that all public sector officials are expected to demonstrate under the Code of Conduct for Victorian Public Sector Employees. Principal officers who do not observe these values are failing the community and Parliament.
Embedding the appropriate pro-disclosure culture and processes, which underpin the intent of the Act, requires effective leadership. The Department of Justice (DOJ) has not adequately championed FOI across the public sector and, as such, has not satisfactorily fulfilled its role as the lead agency for FOI.
The introduction of the FOI Commissioner presents an opportunity for more proactive FOI leadership—in particular driving the cultural shift that is necessary to provide better quality services to the community. Significant change will only be possible if the commissioner is granted sufficient powers and resources. Since these amendments have not yet commenced, recommendations relating to the lead agency for FOI are addressed to DOJ, but will subsequently need to be reviewed once the FOI Commissioner has been appointed.
Department of Justice leadership
As the lead agency for FOI, DOJ is accountable for providing agencies with guidance and advising the minister responsible for the administration of the Act through the production of annual reports to Parliament on FOI performance. There have been significant shortcomings in the department’s approach in both of these areas.
Freedom of information culture and practices
DOJ has not adequately promoted and modelled the intent of the Act and accepted better practice, either in its own department or across the public sector. Specifically, DOJ has not:
- developed a proactive release framework for agencies
- addressed its own or other agencies’ processing delays
- complied with the reporting or timeliness requirements of the Act, nor encouraged other agencies to do so
- complied with the five-day ministerial noting time frame before documents are released.
The tolerance of these longstanding substandard practices, particularly with regard to proactive release, reflects an apathetic and obstructive culture. DOJ has acknowledged that it could have taken a stronger approach with agencies, but stated that its ability to address substandard practices is limited because it does not have adequate powers to mandate good practices. This lack of powers is not sufficient justification for DOJ to not exercise leadership. Further, there is no evidence that DOJ sought to extend its powers to address its inability to achieve an acceptable level of practice, consistent with the object of the legislation.
Proactively releasing information is an effective means of disseminating the maximum possible amount of information. It is recognised as better practice and, accordingly, is the approach adopted in other jurisdictions. Although Victorian agencies are publishing information, this does not necessarily constitute proactive release unless they have properly assessed the information to determine whether it is of significant public interest, appropriate, accurate, accessible and easy to use. This, combined with the continued reliance on formal FOI applications, means Victoria is less progressive than other jurisdictions.
The apathy with regard to FOI is also evident in the reporting regime. The minister responsible for the Act relies on DOJ to collect, check and prepare data for inclusion in the FOI Annual Report to Parliament. However, DOJ is not reporting to the minister aspects of agencies’ performance as the letter and spirit of the Act requires.
DOJ does not report on measures that are explicitly specified in the Act, including disciplinary action taken against officers in respect to the administration of the Act, such as a breach of duty or misconduct.
DOJ collects information on the timeliness of agencies’ responses to FOI requests but does not include this information in the minister’s report to Parliament. Although DOJ is not specifically required to disclose this information to the minister, it is not precluded from doing so. Releasing agencies’ timeliness statistics would be in the spirit of the Act and encourage better performance.
Parliament and the public have the right to know if agencies’ performance is unsatisfactory. DOJ’s lack of comprehensive and transparent reporting in relation to the minister’s annual report does not satisfy the community’s expectations of a public sector agency.
Training is an effective way to instil a positive FOI culture in agencies and to emphasise the importance of openness and transparency. DOJ’s FOI training program places too much emphasis on basic administrative process, rather than the intent of the Act. An important opportunity to promote a positive pro-release FOI culture has been missed.
Timeliness of response is a good indicator of senior management’s attitude towards the importance of FOI. The number and complexity of requests can influence performance against the statutory time limit, however, the onus is on principal officers to provide adequate resources and support to meet the timeliness requirements. Only two of the audited agencies meet both the 45-day time limit and the five-day ministerial noting period.
Of the 12 agencies audited, only four had average request processing times that met the 45-day statutory limit in 2010–11. These were the Department of Education and Early Childhood Development, Department of Transport, Department of Primary Industries and Department of Treasury and Finance. The worst performing agencies were Victoria Police, DPC and DHS, which averaged 98, 92 and 75 days respectively.
Victoria’s underperformance against its legislative target is even more concerning when compared with other states. Other states have better processing completion rates against shorter or similar standard time limits. Extensions to these time limits may be granted, in certain circumstances.
The five-day ministerial noting period recommended in the FOI Guidelines was exceeded by eight of the 12 agencies. The worst performing department was DPC, with an average noting period of 41 days. One FOI request was with the Office of the Premier for 88 days. DHS and DOH also recorded noting periods in excess of 20 days. Long noting periods delay the release of information and impede the effective operation of the Act.
When agencies do not respect the FOI Guidelines, this not only compounds the delays in processing FOI requests but also contributes to the public perception that there is political interference in the FOI process, particularly when there is repeated consultation between an agency and a minister’s office on requests.
Victoria Police and DHS have both attempted to improve the timeliness of their responses. At Victoria Police, timeliness improved when additional resources were temporarily assigned to the FOI unit, while DHS improved its response time by prioritising requests.
Department of Human Services and Victoria Police
An effective FOI system relies on strong agency leadership and support, a robust understanding and application of the Act, good records management, appropriately defined searches and open communication with applicants.
DHS and Victoria Police, the two agencies reviewed in more detail, have significant deficiencies in these areas. As a consequence, the public is being denied access to information.
Processing fees and waiver of time frame
DHS is offering applicants the opportunity to waive processing charges if they forgo the requirement for DHS to meet the 45-day processing time limit. DHS is not advising applicants who have little or no money and are seeking information that relates to their personal affairs that they have a right to request a waiver of charges under the Act without waiving the 45-day time limit.
This unacceptable practice was not observed in any of the other audited agencies. It allows DHS to extend its time frame for responding to requests without recording those requests as overdue, giving the mistaken impression that the department’s timeliness performance is better than it actually is.
DHS and Victoria Police need to address deficiencies in their record keeping practices as a priority. Records are being lost, disposed of incorrectly or rendered inaccessible.
DHS’s record management facility has inappropriate physical storage conditions—causing records to deteriorate—and inefficient indexing systems. As a result, information cannot be found when needed.
Although Victoria Police has a policy outlining the appropriate storage of records, it has not addressed the informal practice of police officers storing records, such as note books, at their homes. This practice increases the likelihood that these records may be lost or difficult for Victoria Police to locate.
DHS and Victoria Police both need to remedy weaknesses in their FOI searches to provide appropriately scoped responses.
DHS does not include records held by its contracted community service organisations (CSO) in the FOI requests the department processes. Instead, DHS refers applicants to the relevant CSOs. The quality of record keeping practices of CSOs varies widely and, consequently, so does the amount of information available to DHS’s clients.
DHS is failing to discharge its obligations to its clients. The Act refers to ‘possession’ when defining a document, not ownership. DHS has a right to possess CSO records under its service agreements, therefore CSO documents are subject to the Act. Furthermore, the department is contravening the specifications set out by the Public Records Office Victoria and the FOI Guidelines.
Victoria Police’s FOI unit does not conduct sufficiently thorough and diligent searches. The unit does not inspect proof of disposal documents to confirm whether documents cannot be provided because they no longer exist.
By David Bicknell
There is an intriguing row Down Under about the Australian Government’s decision to bar the Chinese telecomms company Huawei Technologies from competing for work on its national broadband network (NBN) project.
Australia told Huawei, one of the world’s largest telecomms equipment providers, that it could not tender for NBN contracts because of security concerns about cyber attacks emanating from China.
The Sydney Morning Herald reported that Australian Prime Minister Julia Gillard said she regarded the NBN as a crucial national infrastructure project.
”You would expect, as a government, we would make all of the prudent decisions to make sure that infrastructure project does what we want it to do, and we’ve taken one of those decisions,” she said, when asked about the Huawei decision at the ongoing nuclear security talks in Seoul.
The Australian Opposition said it regarded the government’s decision to ban Huawei from taking part in tenders as ”clumsy, offensive and unprofessional”.
Huawei’s spokesman Jeremy Mitchell said Australia was still getting used to privately owned Chinese companies, but Huawei would not give up on tendering for NBN projects, which are being managed by the Australian government-owned NBN Co Ltd.
”We’re not used to companies coming from China that are leading in technology and also global – 70 per cent of our work is outside of China,” Mr Mitchell said. “We see this as a setback. We’re obviously disappointed. But through looking at what we’ve done overseas, looking at what we’ve done in the United Kingdom, we can put in place measures that help the Australian government consider us as a partner in the NBN.”
Australian Financial Review: China’s Huawei banned from NBN
BBC Business News: China’s Huawei barred from Australia broadband deal
By David Bicknell
The Swiss banking software supplier Temenos has responded to overnight coverage of the end of an IT project with the Queensland Treasury Corporation in Australia.
Queensland Treasury Corporation said it had changed tack on the T24 project after experiencing problems developing a core banking system.
Temenos said today, “Temenos can confirm that the T24 project at Queensland Treasury Corporation (QTC) has been terminated. This decision was taken by QTC based on a change of requirements, which had become more specific; as a result it wanted an approach that was more in line with these unique requirements.
“It has therefore decided to run its IT upgrade in house. Temenos is pleased to have had the opportunity to assist QTC with their IT renewal project, and has enjoyed a constructive and mutually amicable relationship with the organisation.”
QTC, which manages public sector debt and investments, told the Brisbane Times it was now developing its own system and insisted it would be able to do so within the existing $27 million project budget. The organisation defended its handling of the IT contract, saying it has now acquired additional in-house capabilities.
The story had been extensively covered in the Australian IT and banking press earlier today.
By David Bicknell
It may be early 2012, but it sounds as it if will be later in the year before the Australian state of New South Wales gets on top of the latest in a series of public sector IT headaches that are challenging the Aussies.
Last last year, it was the state of Victoria that warned that an extra A$1.44bn of expenditure would be needed on failing IT projects. Now, it looks as remedial action to try and save a A$386m New South Wales schools administration system will be needed throughout 2012. A$176 million has already been spent for little tangible reward so far.
The ‘Learning Management and Business Reform (LMBR)’ project for the NSW Department of Education, has already failed to deliver what was promised, which was a system replacing finance, human resources, payroll and student administration systems.
According to reports Down Under late last year, IBM and Accenture are bidding for a multimillion dollar contract to implement the system. Accenture reportedly wrote the business case for the SAP-based system.
The LMBR project has been likened in a YouTube video to root canal therapy or even giving birth to a 20 pound baby – with teeth.
By David Bicknell
A critical report by the Ombudsman in the Australian state of Victoria has meant that taxpayers will have to bear an additional A$1.44bn of costs because of mismanaged IT projects.
The Victorian Ombudsman George Brouwer looked at 10 major IT projects which suffered cost overruns under the Labour government, including the public transport ticketing system myki.
Mr Brouwer found each that project failed to meet user expectations, was delivered late and overran on cost.
The original budget for the projects was $1.3 billion but new estimates suggest the costs have more than doubled.
The report found the two largest projects, myki and the hospital IT system HealthSMART, would need almost $600 million more than originally planned, while Victoria Police spent $5 9 million on a Link crime database over four years before it was cancelled. VicRoads spent $52 million on a licensing system RandL, which had not yet made it past the design phase.
The Ombudsman’s Report says:
“In Victoria over the last few years, in our respective roles as Auditor-General and Ombudsman, we have tabled in Parliament a number of reports relating to ICT-enabled projects. These reports have identified significant shortcomings in the public sector’s management of such projects and have included numerous recommendations about how such management can be improved.
“Despite these reports, we see little sign of lessons learnt in the public sector. The evidence to date is that the public sector is not managing ICT-enabled projects effectively, as demonstrated by the current difficulties that Victoria is facing in this area and the increasingly adverse public comment about major ICT-enabled projects. A new and more disciplined approach is required if the government is to avoid being faced with continuing cost overruns and failures to deliver.”
You can read the Ombudsman’s report here