Det klassiske hierarki vinder og projekterne taber
– et bud på en ny organisationsform for store og mellemstore projekter i den offentlige sektor.
Debatoplæg af Henrik Bachmann
Mange store og mellemstore offentlige projekter lider under en række problemer, som går igen på trods af megen god vilje til at gøre tingene rigtigt og effektivt. Rapporter fra it-råd, rigsrevision mv. og de gennemgående analyser og anbefalinger fokuserer meget ofte på de samme forhold.
Et eksempel som sammenfatter mange af de kommentarer der dukker op er It-projektrådets konklusioner i deres rapport om 2020:
”Når der i 2020 har været flere projekter med udfordringer i forhold til det, som It-projektrådet kalder projekthåndværket, så er det elementer som uklar projektmetode, urealistiske tids planer, udetaljerede implementerings – og aktivitetsplaner, uklare ansvarsområder for de involverede aktører, optimistiske risikologs mv.”
Og videre:
”Projekterne er udfordret på at få etableret governance modeller og ansvarsaftaler særligt i forhold til samarbejdet med driftsorganisationen undervejs i projektforløbet og overleveringen herefter til projektafslutning.”
Det sidste citat er lidt nyt i forhold til mængden af evalueringer. Og det er i dette sidste problem at denne artikel tager sit afsæt. Artiklen fokuserer på ansvarsproblemet, og spørger, om der er brug for en ny governance kultur, – en ny måde at organisere på særligt i relation til ansvarsplaceringen.
Problemerne er mangfoldige og komplekse, men et problem træder særligt frem:
Ansvarsplaceringen er uklar, -linjeorganisationen vinder (næsten) altid ”Bagom” rapporternes anbefalinger om værktøjsbrug mv. træder et problem frem som helt centralt: Den manglende ansvarsplacering: Skal man være meget firkantet kan man sige: Centrale problemer svæver rundt mellem personer og afdelinger og gør det i for lang tid. Når rapporterne peger på problemerne med
”governance” er det ofte problemer med ansvarsplaceringen der ligger bag.
Hvorfor opstår der ansvarsproblemer?
Der er 2 typer af problemer:
- Problemer som hænger sammen med ”forkert” og/eller mangelfuld brug af modeller og værktøjer:
- Projektmodeller anvendes ikke i praksis
Der kan være mange grunde til at projektmodeller ikke anvendes på den måde de er tænkt. De kan være for komplekse og for ambitiøse og ganske enkelt for langt fra virkeligheden. Men den overvejende grund til at de ikke anvendes er, at det klassiske linjehierarki ofte overtrumfer modellen. Hvis den reelle magt over projektet ligger et andet sted end i projektets/programmets styregruppe er modellerne jo selvfølgelig illusoriske. Netop projektmodellen er jo det ”værktøj” som i hele sin natur klarest adresserer governance og hermed ansvarsproblemerne. Følges programeller projektmodellerne ville meget være løst. Men det gør de ikke altid og mangen behjertet indsats for at bringe dem i spil er ikke nået i mål.
Uklar governance Hvis placeringen af det reelle mandat over projektet i realiteten svæver rundt mellem styregruppe, ressourceejere og måske en, jf. nedenfor, distant topledelse, åbner det selvfølgelig for en opportunistisk adfærd blandt de implicerede parter. I den situation kan det være en naturlig, – og på sin vis også fornuftig -, reaktion for ressourceejerne at holde egne, gode, medarbejderressourcer tæt på egen enhed og herigennem svække projektet. I evalueringsrapporten ”5 læringspunkter fra grunddataprogrammet 25. maj 2020” fremgår det, at ”Rolle- og ansvarsfordelingen har været uklar særligt i de første faser og at den burde have været tydeligere. Problemet blev løst af digitaliseringsstyrelsen, som satte sig for bordenden. Samme organisering bør benyttes ved andre tværoffentlige samarbejder.” Altså sagt med andre ord, – det er banalt, men sandt: der skal sidde en for bordenden. Det er klassisk projekt-governance-lærdom, men det er stadig et kerneproblem.
Uklare gevinster Både statens It-projektråd, Rigsrevisionen og Københavns Kommunes projektråd har i flere sammenhænge påpeget, at uklare gevinster er en væsentlig årsag til problemerne i
mange offentlige projekter. Samtidig er det et af de steder hvor mange peger på at det går bedre, – bl.a. Statens It-råd i deres rapport for 2021. Udfordringen er, at problemer med uklare formål og
gevinster har en forstærkende indvirkning på ansvarsproblemerne. Er det uklart, hvad den centrale gevinst er, bliver det også mindre oplagt hvem der skal have stolen for bordenden. Og der kan
sagtens være flere om buddet. En lidt løst sammensat styregruppe med uklart mandat, uklar gevinstdefinition og måske, jf. nedenfor, en top-ledelse som er travlt beskæftiget andet steds er en
skidt cocktail.
For lange projekter Mange offentlige projekter har selvfølgelig den længde de skal have. Tekniske, politiske og andre elementer i projektet fastlægger længden af projektet. Men, der er også rigtig
mange projekter som bare kører over alt for lang tid. Det er almindeligt kendt at lange projekter, forstærker de ”politiske” problemer i projektet. Det er en del af medicinen omkring
ansvarsproblemerne at forkorte mange projekters løbetid. Problemet med længden af projekterne er også et af de centrale problemer som statens it-råd påpeger i sin rapport om 2021.
Nogle problemer er systemiske, – dvs. hænger sammen med grundlæggende normer og kultur i den organisation de trives i:
Topledelserne er til tider for fjernt fra de store projekter:
Topledelserne i det offentlige ser det som deres fineste opgave at være strategisk på forkant og sikre innovation, sikre god ledelse, sikre digitalisering på et overordnet plan – mv. Og det er også
deres opgave! Men det duer ikke rigtigt, når det måske vigtigste topledelserne har ansvar for set fra et aktuelt, praktisk, værdimæssigt samfundssynspunkt er de store projekter.
For nogen offentlige ledelser kan det være det absolut vigtigste de har med at gøre. Alligevel møder man ikke få topledelser som opleves som meget fjerne i relation til projekterne, – selvfølgelig med fremragende undtagelser. Topledelserne følger, når det er bedst, projekterne via egen deltagelse på styregruppemøder, og, når det er værst, via en repræsentant uden reelt mandat. Både ved
detaljerede og mere summariske rapporteringer til styregruppen, kan det ske at problemet reelt bliver hængende i et tomrum; – der bliver ikke reageret tilstrækkeligt på de kritiske detaljer.
Projektledelsen bliver selvfølgelig bedt om at handle, men der bliver ikke fulgt tilstrækkeligt nidkært op på hvad der så faktisk sker. Mange af rigsrevisionens rapporter viser at djævlen ligger i detaljen, -hos en leverandør, i et samarbejde med en anden institution, i en regnemetode mv. – og de detaljer sidder projektlederne desværre til tider alene med.
Det fuldstændige billede af projekternes tilstand er til tider uklart
Der er i min erfaring, – og blandt dem jeg har talt med -, ingen oplevelse af, at der bliver talt usandt, men det forekommer, at afgørende problemer i projekterne underdrives.. ”Vandmelonsrapportering” (grøn udenpå og rød indeni) er et ord man kan støde på. Det er i de tilfælde tydeligt, at problemerne faktisk bliver rapporteret, men måske i en lidt pæn form…. En enkelt organisation fortæller, at der ret ofte kan være en cyklus hvor et projekt viser rødt eller gult i starten af projektet men herefter går over til grønt. Og hvis problemet så rent faktisk bliver rapporteret i sit fulde omfang er reaktionen i projekter med uklar ansvarsplacering den samme: Der bliver krævet handling!!! Nu!!! Og så går aktørerne fra styregruppemødet ud i virkeligheden, hvor der ofte ved de store projekter er mange aktører med forskellige interesser der skal finde en løsning sammen.
Når det går skidt foregår der to ting samtidig hvis den centrale ansvarsplacering er uklar, hvis der ikke sidder en for ”bordenden”:
Aktørerne skal, selvfølgelig, passe på dem selv og deres ressourcer, men der foregår også en øvelse som også handler om at undgå at stå med ansvaret for en fiasko. Hvis ansvarsplaceringen er klar, er det både min erfaring, og erfaringen hos mange jeg har talt med, at man tager ansvaret på sig og gør noget reelt, også når tilstanden i projektet ikke er god. Projektleder og projektejer prøver selvfølgelig at finde en løsning, men når ansvaret er uklart, er det også uklart hvem der bør/kan allokere de nødvendige ressourcer. Resultatet er at løsningerne tit er de rigtige, men til tider på ressource- og kompetencemæssigt kviksand fordi de ikke er funderet i realistiske estimater og vurderinger af, hvad de enkelte aktører kan levere.
En klarere ansvarsplacering og en entydig magt over ressourcerne, – som det også er tanken i statens egne program- og projektmodeller -, vil give et stort skub fremad. men det praktiseres ikke altid i virkeligheden. (*1)
Hvad kan man gøre?
Nedenfor skitseres 4 indsatser, som måske kan medvirke til at projektkulturen får et løft og først og flere projekter som når i mål til tiden med de rigtige løsninger. De 4 punkter er baseret på mine erfaringer, – der kan sagtens være andre punkter som er mindst lige så vigtige. De 4 punkter kan praktiseres hver for sig, men punkt 1, som er det mest radikale, bør/kan der efter min mening gennemføres forsøg med hurtigt.
Opret selvstændige afdelinger/kontorer for hvert stort/mellemstort offentligt projekt, som går
- på tværs af mange eksisterende afdelinger.
I virkeligheden er programmer udført rigtigt en måde at oprette selvstændige, tværgående, enheder. Det bliver bare kun sjældent opfattet og praktiseret sådan, slår ikke igennem i magthierarkiet og bliver ikke gennemført radikalt nok: Derfor: opret selvstændige enheder (kontor/afdeling/styrelse) for hvert projekt/program og sæt en topleder i form af minimum en underdirektør som chef for afdelingen og med entydigt ansvar for dets succes. Rekruttér fuldtidsmedarbejdere fra andre afdelinger og nedlæg afdelingen når projektet er gennemført. Lad afdelingen have helt egne administrative ressourcer m.v. Lad afdelingen være repræsenteret direkte i topledelsen. Lav en incitamentsstruktur for afdelingens medarbejdere som alene er knyttet til projektets succes. Styregruppen for disse projekter er direktionen. Kontoret/afdelingen, skal selvfølgelig være modulerbar hen over projektets levetid. Det afgørende er, at der er en chef med høj charge, en kerne af fuldtidsressourcer tilknyttet projektet hentet fra de centrale involverede organisationer, og en direkte adgang til topledelsen fordi man er en central og integreret del af linjeorganisationen og det magthierarki der findes der. En anden forudsætning er selvfølgelig at projektet i videst muligt omfang er gjort kort og intensivt.
En ulempe ved ovenstående ide er selvfølgelig, at det vil give endnu flere konstante organisationsændringer end tilfældet er i dag. Sagen er bare at det er min entydige erfaring (og mange af dem jeg har talt med, er enige), at den offentlige sektor generelt er dygtige til at håndtere hurtige, mindre, organisationsændringer som disse organisationsændringer vil være.
Iværksæt forsøg med det. I IT-tilsynets anbefalinger til SKAT, (artikel DigiTech 21.juni 2021) hedder det: ”It-tilsynet anbefaler en markant simplificering af programmets organisering og en radikal ny tilgang til ledelse, hvor der er fokus på ansvar, klare mandater, eksekvering og fremdrift.” Klar tale.
Det er tid til forsøg med mere radikale løsninger
Et centralt spørgsmål er selvfølgelig hvilke projekter og programmer der bør udsættes for denne organisationsform. Et foreløbigt bud på indikatorer som kunne tale for et forsøg med denne
organisationsform kunne være:
- Et vist volumen. ”Mindre” projekter kan komme på tale hvis kompleksiteten er særlig høj eller der f.eks. er store stridigheder om, hvilke gevinster der er de centrale.
- Tværgående over flere ministerier, styrelser, kommuner, centrale afdelinger.
- En særlig kompleks interessentkreds eller mange stærke interessenter med besluttende indflydelse.
- Udstrakt brug af konsulenter, som hører hjemme/anvendes af forskellige ministerier/styrelser/kommuner og hvor de primære kontakter til konsulenterne er spredt over mange enheder.
Som det fremgår, er disse indikatorer ikke entydige og de kan optræde hver for sig eller i kombination. Kort sagt: Der bør laves en konkret vurdering, hvor fordele og ulemper afvejes. Udover bare at prøve ideen af, (hvad enhver topledelse jo kan beslutte indenfor rammerne af projektets budget), kunne man forestille sig, at det statslige og de kommunale IT-råd kunne tage initiativ til at finde velegnede projekter, – og så følge erfaringerne tæt.
Lav minimumskrav for topledelsens arbejde med projekterne
Gør det til en central del af beskrivelsen for topledelsernes arbejde, at de skal være tæt på de store projekter og følge dem nøje. Beskriv deres ansvar og rolle i forhold til gevinsterne langt mere præcist end det sker i dag. Følges statens projekt- og programmodeller sker meget af dette automatisk, men det kunne med fordel fremhæves endnu mere. I ”Half double” konceptet (bog 2020, AUC og en række konsulentfirmaer) er der mange gode bud på hvordan problemet med distante topledelser kan håndteres. Som et skidt yderpunkt er det I nogle organisationer sådan, at det er en enkelt underdirektør der har ansvaret for ”projektområdet”, løsrevet fra og ved siden af ”forretningen”. Det er selvfølgelig helt galt.
Afvis alle projekter og programmer som ikke definerer klare gevinster og et klart scope. Giv magt til at de rådgivende projektråd i både stat og kommuner kan stoppe projekter med uklare gevinster og uklart scope.
I større projekter og programmer bør det som bekendt altid være en hovedindsats at definere klare gevinster og et klart scope for projektet/programmet, – jf. megen god litteratur og fine beskrivelser
om dette emne 2.
I både stat og mange store kommuner findes der IT-projekt råd m.v. som rådgiver omkring projekterne. Men de er stadig hovedsagelig rådgivende. Gør disse råd til en helt central del af den overordnede porteføljestyring og giv dem magt til at stoppe alle projekter som ikke lever op til disse krav. En supplerende mulighed er, at det er projektrådene som tildeler ”farven” på projekternes status, – som det allerede praktiseres nogen steder.
Reducér antallet af projekter og programmer i organisationernes porteføljer.
I nogle styrelser og i nogle kommuner er antallet af projekter simpelthen for stort, – og et simpelt overblik over ”lageret” af projekter og programmer viser ikke helt sjældent, at der arbejdes på på de samme temaer flere steder i organisationen. Topledelserne skal have større fokus på dette problem og måske kan projektrådene også her få en rådgivende opgave? Det helt centrale er, at få gang i forsøg og eksperimenter, hvor de gængse måder at arbejde på udfordres. Det går langt bedre i den offentlige sektor med projekterne, men det kunne være fint at starte en udvikling, hvor der i langt højere grad fokuseres på ansvarsplaceringen som et centralt problem.
*1)
I f.eks. evalueringsrapporten om grunddataprogrammet, 25.5. 2020 er der mange forslag, som peger frem mod løsninger af ansvarsproblemet. F.eks. hedder det: ”Således har målbilledet samt formuleringen af gevinster savnet en konkretisering. Der berettes endvidere om, at delprogrammernes autonomi har gjort, at oversættelsen af visionen er blevet fortolket forskelligt i delprogrammerne.” Endvidere fremgår det af artiklen at Rolle- og ansvarsfordelingen har været uklar særligt i de første faser og at den burde have været tydeligere. Problemet blev løst af digitaliseringsstyrelsen som satte sig for bordenden. ”Samme organisering bør benyttes ved andre tværoffentlige samarbejder”
*2) F.eks. ”Praktisk programledelse” Lau, Falholt og Højdahl, DJØF forlag 2022.
Baggrunden for artiklens iagttagelser og anbefalinger bygger på:
- Mit arbejde som konsulent og underviser i 20 år med projekt- og programledelse i offentlige projekter.
- Fra læsning af rapporter fra rigsrevision og/eller statsrevisorer, fra det statslige it-råd og Københavns Kommunes projektråd1
- Fra gennemgang af både den statslige programmodel og den statslige projektmodel
- Mange samtaler med projektledere og ledere i forbindelse med udarbejdelsen af dette debatindlæg.
– af Henrik Bachmann
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