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NOTE The designations employed and the presentation of the material in this publication do not imply the expression of any opinion whatsoever on the part of the Secretariat of the United Nations concerning the legal status of any country, territory, city or are a, or of its authorities, or concerning the delimitation of its frontiers or boundaries. This volume is issued in English and Russian only. ECE Information Unit Palais des Nations CH – 1211 Geneva 10 Switzerland Tel.: +41 (0)22 917 44 44 Fax: +41 (0)22 917 05 05 E – mail: info.ece@unece.org Website: http://www.unece.org ECE/CECI/ 23 UNITED NATIONS PUBLICATIONS Sales number E.17.II.E.20 ISBN 978 – 92 – 1 – 117141 – 9 eISBN 978 – 92 – 1 – 362799 – 0 ISSN Copyright © 2017 United Nations All rights reserved worldwide United Nations publication issued by the Economic Commission for Europe
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Innovation in the Public Sector iii FOREWORD The public sector play s a very significant role in modern economies. As in the business sector, innovation can be a major source of productivity growth, cost savings and improvements in service quality ; benefits which then also positively affect businesses and citizens who rely on an efficient and effective public sector . T he ability of the public sector to innovate is therefore increasingly seen as a critical element of economy – wide innovation performance . However, innovation policies and strategies relating to the public sector are far less developed than those targeting t he business sector . The re are important differences between the public and the private sector in terms of incentives and motivation, resource allocation, and attitudes towards risk , which are inherent in the different roles played by the two sectors in the economy, and which have a profound impact on how innovation is carried out and how policy can support it. Th e collection of contributions in this publication address a wide range of issues related to the promotion of innovation in the public sector as well as policy lessons learned in this area , drawing on the experiences of different countries. The issues discussed in this publication refer to a relatively new policy area. Countries are at different stages in the conceptuali z ation and implementation of relevant strategies. Overall, there is a need to further develop the understanding of innovation in the public sector and to increase policy awareness. This creat es significant scope for policy learning and the exchange of experiences through internationa l multilateral initiatives. I hope that this publication will contribute to the dissemination of good practices in the promotion of innovation in the public sector and provide a useful reference for policymakers and other innovation stakeholders in their activities. Olga Algayerova Executive Secretary United Nations Economic Commission for Europe
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iv Innovation in the Public Sector AC KNOWL E DG E MENTS This publication was prepared under the auspices of the UNECE Committee on Innovation, Competitiveness and Public – Private Partnerships as part of the programme of work of the UNECE Team of Specialists on Innovation and Competitiveness Policies. It is the o utcome of an applied policy seminar on Innovation in the Public Sector held as part of the series Policies for Innovation and Knowledge – Based Development in the 21st Century . The UNECE Secretariat thanks the authors of the chapters for generously sharing t heir expertise and the members of the Team of Specialists and seminar participants for their contributions to the discussion.
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vi Innovation in the Public Sector CONTENTS Foreword .. .. .. .. . iii Acknowledgements .. .. .. .. iv List of tables .. .. .. .. x List of boxes .. .. .. .. x List of figures .. .. .. .. xi Abbreviations .. .. .. . xii PART I. PROMOTING PU BLIC SECTOR INNOVATI ON: MAIN ISSUES AND POLICY CHALLENGES .. .. .. . 1 Chapter 1 Innovation in the Public Sector .. .. 2 Dennis Patrick Leyden, University of North Carolina at Greensboro, United States of America 1.1 Introduction .. .. .. . 2 1.2 Private versus public sector innovatio n .. .. 3 1.3 How is public sector innovation different ? .. 6 1.4 Creating an innovative public sector environ m ent .. 8 1.5 Why cannot a private sector model of innovation be applied directly to the public sector? .. .. .. .. . 9 1.6 What are the necessary conditions for public sector innovation? . 11 1.7 Conclusions .. .. .. .. 14 1.8 References .. .. .. . 15 Chapter 2 Towards A Better Understanding of Public Sector Innovation Piloting the European Public Sector Innovation Scoreboard .. .. 18 Tomasz Jerzyniak, European Commission, Directorate – General for Enterprise and Industry 2.1 Public sector matters .. .. 18 2.2 The need for a bet ter understanding of public sector innovation . 19 2.3 Measuring public sector innovations – key challenges and limitations .. 20 2.4 Preparatory work and the need for new data .. . 22 2.5 Towards a pilot European Public Sector Innovation Scoreboard .. 24 2.6 The pilot EPSIS 2013: The results, key messages and limitations 26 2.7 Next steps: Towards a better and policy – relevant measurement of public sector innovation .. .. .. . 30 2.8 References .. .. .. . 33 Chapter 3 Promoting Public Sector Innovation: Trends, Evidence and Practices from the EPSA .. .. .. .. . 35
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Innovation in the Public Sector vii Alexander Heichlinger and Julia Bosse, European Institute for Public Administration 3.1 Introduction .. .. .. .. 35 3.2 The EPSA A strong driver for public sector reform and the search for excellence .. .. .. . 35 3.3 The Need for a Strategic Framework (for services, partnerships and/or budget reform) .. .. .. 37 3.4 Transparency and Consensus through Citizen and Stakeholder Involvement 38 3.5 Importance of commitment/dedication at all levels and bold leadership .. 39 3.6 Continuing emphasis on partnership approaches and its related ownership importance .. .. .. 39 3.7 Intelligent ICT – enabled solutions and architectures to improve service delivery, but not at the risk of exclusivity .. .. .. 40 3.8 Innovative cross – border cooperation and driving social inclus ion despite (or because of) the c risis 41 3.9 The t rend towards more coordinated and smart procurement modes .. 42 3.10 EPSA spin – offs and knowledge transfer .. .. 42 3.11 Conclusions .. .. .. .. 44 3.12 References .. .. .. . 46 Chapter 4 Exploring the Role of ICT, Skills and Organi z ational Change in Public Sector Performance .. .. .. 48 Antonello Zanfei and Paolo Seri, DESP, University of Urbino, Italy 4.1 Introduction .. .. .. .. 48 4.2 The me asurement of public sector performance .. .. 49 4.3 The complexities of ICT adoption in the public sector .. 51 4.4 How the interactions between ICT, skills and organi z ation affect public sector performance .. .. .. . 56 4.5 Beyond traditional approaches to ICT and performance in the public sector . 59 4.6 References .. .. .. . 65 PART II. COUNTRY CAS ES .. .. 68 Chapter 5 Mainstreaming Public Sector Innovation through Governance e – Transformation – Moldova Case Stu dy .. .. 69 Stela Mocan, e – Government Centr e /Government CIO, Moldova 5.1 Introduction .. .. .. .. 69 5.2 The Moldova Governance e – Transformation Journey .. .. 70 5.3 Skills to sustain governance e – Transformation .. 80 5.4 Financing innovation in government .. .. .. 80 5.5 Lessons learned so far .. .. . 80 5.6 Immediate priorities and challenges to be addressed .. 81 5.7 References .. .. .. . 84
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viii Innovation in the Public Sector Chapter 6 Innovating in the Public Sector through Citizen Engagement (Fro m e – Government to Collaborative Governance ) .. .. .. 87 Matt Poelmans, CitizenVision, The Netherlands 6.1 Summary .. .. .. . 87 6.2 Introduction .. .. .. .. 87 6.3 Interope rability .. .. .. 88 6.4 Service q uality .. .. .. . 89 6.5 Satisfaction m easurement .. .. . 90 6.6 e – P articipation .. .. .. .. 91 6.7 Conclusions .. .. .. .. 92 6.8 Case d escriptions in T he Netherlands .. .. 94 6.9 References .. .. .. . 98 Annex: e – Citizen Charter .. .. .. 100 Chapter 7 Innovating to Modernise the Public Sector in France .. . 101 Françoise Waintrop and Tanguy Dennielou, SGMAP, France 7.1 Why innovate? .. .. .. 101 7.2 What is public sector innovation? .. .. .. 102 7.3 The French context: An imposing administration .. . 104 7.4 The choice of France to innovate .. .. 106 7.5 Some examples of public sector innovation in France .. 109 7.6 The challenges for public innovation .. .. 111 7.7 Conclusion .. .. .. 112 Chapter 8 US Public Sector Innovation Program me s .. . 114 Dennis Patrick Leyden, University of North Carolina at Greensboro, United States of America 8.1 Introduction .. .. .. 114 8.2 Potential benefit of Un ited States public sector innovation .. 114 8.3 E xamples of United States Public Sector Innovation Programmes 117 8.4 Conclusions .. .. .. 121 8.5 References .. .. .. .. 123 Chapter 9 New Evidence on the Innovation Climate in the Swedish Public Sector 124 Irene Ek, Swedish Agency for Growth Policy Analysis 9.1 Introduction .. .. .. 124 9.2 What constitutes innovation in the public sector and how is it measured? 127 9.3 Evidence to guide policy makers .. .. 127 9.4 Policy implications .. .. 134 9.5 References .. .. .. .. 136 Chapter 10 Swiss Federalism and Public Sector Innovation .. .. 137 Peter Grünenfelder and Matthias Schnyder, Canton of Aargau, Switzerland 10.1 Introduction .. .. .. 137
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Innovation in the Public Sector ix 10.2 Federalism in Switzerland .. .. . 137 10.3 Competition and the laboratory effect .. .. . 139 10.4 The case for cantonal debt brak e s .. .. .. 139 10.5 Conclusion .. .. .. .. 150 10.6 References .. .. .. .. 151 Chapter 11 Innovation in the Public Sector of Ukraine: Problems of Identification, Measurement and Promotion .. .. .. 153 Igor Yegorov, Institute of Economy and Forecasting, National Academy of Sciences of Ukraine 11.1 Introduction .. .. .. 153 11.2 Identification of innovation in the public sector of Ukraine . 153 11.3 Role of the state in supporting innovation activities .. .. 155 11.4 Organi z ational innovation .. .. . 157 11.5 Private – P ublic P artnership and innovation in the state sector .. 159 11.6 Conclusion .. .. .. .. 160 11.7 References .. .. .. .. 161
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