Considering the current state of ERP capabilities, as outlined in section 3.2, APS entities have expressed hesitation regarding Tier 1 reuse (see Reference 1).
Eminent Panel Member Insight - Ms Catherine D’Elia, 12 May 2024
One of the greatest hurdles in the delivery of the ERP system in NSW has been changing mindsets to overcome past negative experiences of poor project delivery or outcomes that do not sufficiently meet users’ needs. Even where there are entities willing to invest to adapt and reuse the system, broader ongoing adoption can see resistance from users unless these negative perceptions are addressed.
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One of the greatest hurdles in the delivery of the ERP system in NSW has been changing mindsets to overcome past negative experiences of poor project delivery or outcomes that do not sufficiently meet users’ needs. Even where there are entities willing to invest to adapt and reuse the system, broader ongoing adoption can see resistance from users unless these negative perceptions are addressed.
4.1.2 Tier 2 reuse opportunities
The Panel considers there is greater potential for Tier 2 or Tier 3 reusability. Building on existing GovERP capabilities with a separate ERP instance may be desirable for larger entities grappling with complex ERP requirements and integrations, particularly where those agencies have substantial in-house functional and technical skills in their digital and ICT workforces (such as Services Australia). In such a case, GovERP could serve as a potential accelerator.
The GovERP build to date had 167 customisations to workflows, reports, interfaces, conversions, enhancements, or forms (WRICEFs). Given the size of the GovERP program, development beyond standard configuration and customisation to meet the needs of government is to be expected.
That said, the Panel considers that larger, highly skilled entities with complex ERP requirements are best placed to make use of, and maintain, the existing GovERP capabilities and their related customisations.
Most notable from the Assessment’s engagements with the Consultative Committee, is the Department of Health and Aged Care stakeholders’ interest in leveraging GovERP’s reusable architectural patterns/architectural documents and architectural decisions. The Department of Health and Aged Care’s currently proposed approach to its own ERP upgrade is to reuse GovERP’s capabilities wherever they are assessed as being fit for purpose.
The cost of reusing GovERP capabilities to support ERP delivery in smaller entities with less complex requirements may be a challenge, particularly given the need for strong in-house functional and technical skills to support delivery and operations. Ensuring that any commercial arrangements already in place are leveraged to their full effect (where applicable) may help offset ERP delivery and operating costs.
An entity intending to reuse any aspect of the GovERP product as an accelerator must assess the effort and financial investment required to develop capabilities based on the current build and test status. The Panel heard that any potential opportunity to save effort in implementing a process would have to be balanced against the effort to modify an existing entity’s business process to fit the GovERP implementation (or added effort to modify) (see Reference 1).
The following decision-making principles may provide a useful basis for entities considering Tier 2 reuse opportunities:
first preference is to consider other SaaS or out-of-the-box solutions (SAP or alternatives)
if not appropriate, then build on existing GovERP capabilities, and leverage any commercial arrangements already in place, or
if SaaS or out-of-the-box solutions or building on existing GovERP capabilities are not appropriate, customised configuration will only be considered where assessed as necessary.
The Panel notes any on-premises specific solutions will likely have limited reusability.
Eminent Panel Member - Mr Chris Fechner, 16 May 2024
Insight Private cloud or on-premises, self-managed, and highly customised ERP implementations were the dominant pattern for large enterprises in the previous decade. Contemporary ERP providers are increasingly progressing to cloud-based Software as a Service (SaaS) models. Over time, there may be opportunity costs associated with GovERP’s private-cloud implementation as entities may not get access to features and services related to cloud/SaaS-only technology advancements.
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Insight Private cloud or on-premises, self-managed, and highly customised ERP implementations were the dominant pattern for large enterprises in the previous decade. Contemporary ERP providers are increasingly progressing to cloud-based Software as a Service (SaaS) models. Over time, there may be opportunity costs associated with GovERP’s private-cloud implementation as entities may not get access to features and services related to cloud/SaaS-only technology advancements.
4.1.3 Tier 3 reuse opportunities
There is strong demand from government entities for GovERP’s existing business process maps, designs, patterns, and related documentation to be made available for reuse by other entities (a Tier 3 reuse opportunity). Reason Group’s technical analysis indicates that all existing process mapping work should be reuseable by many entities with some basic validation. Most of the work in Signavio™ (see Reference 2) should be a quick pick-up for many government entities to implement future cost effective GOVERP uplifts. Entities such as the Department of Infrastructure, Department of Health and Aged Care, Australian Taxation Office, AGD and the Department of Foreign Affairs and Trade have raised interest in accessing GovERP’s different artifacts, designs, architecture, and Infosec Register Assessors Program (IRAP) Assessments as Tier 3 reuse opportunities.
The DTA’s Digital Marketplace provides a response to concerns from some stakeholders regarding APS wide management of larger commercial agreements and licensing arrangements. The DTA’s Australian Government Architecture (AGA) provides an existing centralised site for this purpose, as well as providing centralised access to reusable products. Preliminary proposed contributions to the AGA identified though this Assessment include a significant number of reusable business process maps, designs, patterns, and related documentation. There may also be merit in a secure sharing facility, internal to government, to disseminate sensitive GovERP materials that are not suitable for publication on the AGA website. Care will need to be taken to ensure the integrity of original documentation versus subsequent entity-specific modifications and customisations.
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Data and Digital Government Strategy - What we heard.pdf (pdf, 378.03 KB)
4.1.4 Other reuse opportunities
Table 3 outlines an assessment of possible reusability, by tier and by value stream.
Table 3 Value stream and/or technology reusability summary
Value stream
Technology
Tier 1
Tier 2
Tier 3
Finance, including Revenue to Bank (R2B) and Budget to Report (B2R
SAP S/4 HANA
not reusable
reusable
reusable
Hire to Retire (H2R)
SAP Success Factors
not reusable
reusable
reusable
Procure-to-pay (P2P)
SAP S/4 HANA
not reusable
not reusable
reusable
Travel and expense management (TEMS)
Expense8
reusable (see note)
not reusable
reusable
Table 3 note: While the development and testing of TEMS is not completed, this relates to the integration of Expense8 to S/4 HANA. In isolation, Expense8 is reusable and has been integrated into several other technologies, including SAP ECC6 and TechnologyOne.
Many of the ancillary components necessary in delivering an ERP (such as platforms, gateway services, reporting, and application interfaces (APIs)) have been well defined and, to some capacity, built. These ancillary components represent an additional potential reuse opportunity beyond GovERP capabilities themselves. Where they are incomplete, ancillary components could be built out to a standard that allows for them to be incorporated into other ERP implementations. If this progresses, care should be taken to minimise the technical complexity of ERP-supporting capabilities.
4.2 Potential ongoing reuse costs to entities
As the current state of GovERP diverges significantly from its initial whole-of-government vision, entities will likely need to invest additional resources to customise and configure the templates to some degree to ensure they are fit for purpose (while adhering to the data standards currently built into the GovERP solution).
In this context, even if capitalising on the reuse opportunities identified in Chapter 4, the resources required to cater to the diverse complexities and requirements of different entities across the APS appears to be prohibitive for many entities, particularly if each entity was to pursue its own uplift. The Panel notes that while there are many opportunities to re-use components, licences, environments, and documentation from GovERP, only large and complex entities with sufficient capability could implement one or more instances of GovERP as proposed, and have it represented as reasonable value for money.
In an individual entity-based ERP scenario, the ongoing maintenance costs are also likely to have a substantial impost posing an increasing challenge in an environment with scarce financial resources and available skills. For example, any bespoke customisations or WRICEFs would need to be maintained in a re-use scenario, with an associated resourcing impact. Of the 167 WRICEFs potentially applicable to whole-of-government needs, 58 (35 per cent) are considered medium-high effort to maintain.
The Panel also considers there needs to more challenge against entity-specific customisations seeing to address “complex” requirements. Instead, the Panel considers that a greater focus on adoption of SaaS / “out of the box” capabilities, and avoiding designing in legacy process, could help to reduced costs.
With no single value stream completely built or viable for adoption as-is, clarity is required regarding what work arounds would be needed for any reuse opportunities.
Eminent Panel Member Insight - Ms Maile Carnegie – 11 May 2024
From a banking industry perspective, previous experience suggests reuse is most successful where “out of the box” capabilities have been adopted, rather than having to customise and adapt to legacy processes and such processes related complexity.
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From a banking industry perspective, previous experience suggests reuse is most successful where “out of the box” capabilities have been adopted, rather than having to customise and adapt to legacy processes and such processes related complexity.
Consultative Committee Bilateral Engagement notes, ATO, 17 May 2024
Signavio™ is a web-based modelling tool for creating, managing, and optimising business process maps.
5. Alternate designs or delivery pathways
Noting the new APS ERP approach is underpinned by the principles of choice, market competition, and affordability, the Panel recognises the cost of ERP upgrades (as a core underpinning capability of all government entities) can be prohibitive for some entities.
As a mechanism for reducing ERP development and maintenance costs, alternate designs and pathways could include:
Componentisation of ERP capabilities.
While the GovERP solution was not originally conceived with componentisation in mind, there was consideration given to implementing an iterative go-live approach, indicating that some level of modularisation may be feasible.
In considering a modular approach to ERP delivery, the Panel considers maintaining a clean or common core solution across entities would help maximise ERP uplift success. This approach still provides opportunities for greater complexity and entity-specific customisation as solution add-ons at the ERP edge (i.e. the development of unique or customised requirements using integration techniques that leave the ERP itself unmodified.) o The Panel notes substantial work needs to be completed to achieve true modularisation, such as establishing commercial agreements, hosting solutions, completing components, and adhering to data standards. As such, while treating each capability as a separate reusable component is possible, the cost-effectiveness of this has not been confirmed.
Considering the sequencing of ERP uplifts to focus on like-entities.
Given the scarcity of resources available for ERP uplifts, there is still merit in pursuing economies of scale from grouping ERP services. Rather than pursuing a whole-of-government, one-size-fits-all approach (or conversely if the divergent requirements of the different agencies make instances for each entity critical), the Panel considers the grouping of entity cohorts with like needs warrants consideration and support.
This grouping could be pursued based on portfolio, entity size, purpose, ERP needs, or other similar characteristics.
The Department of Finance’s work to support a small-entity solution, may help to identify next steps for a collective or group-based approach.
Considering the scope and scale of ERP uplift projects to focus on smaller initiatives with lower delivery risks and faster onboarding.
DTA analysis through its Assurance Framework (see note below) highlights that larger-scale, higher complexity digital and ICT projects present a heightened delivery risk. Scoping ERP uplift projects into smaller staged initiatives delivered over shorter timeframes may help to reduce the risk of large-scale digital failures.
Note: The DTA is currently tracking 103 in-flight projects across 35 agencies. Of the 13 digital and ICT projects escalated for Ministerial attention over the period August – October 2023, nine were large-scale, flagship investments that represented some 43.1 per cent of the total value of all in-flight digital investments.
The Australian Government will deliver simple, secure and connected public services, for all people and business, through world class data and digital capabilities
On 28 November 2023, the Finance Minister, Senator the Hon Katy Gallagher, announced the new Enterprise Resource Planning (ERP) approach for the Australian Public Service (APS) that replaces the Shared Services Transformation Program. This new approach sets the strategic direction for APS ERP system management, which is underpinned by the principles of choice, market competition, and affordability. As part of the announcement, an independent assessment (the Assessment) will evaluate the suitability of Services Australia
ERP (GovERP) use by Services Australia, and reuse by Commonwealth entities to support Commonwealth entities to implement future cost-effective ERP uplifts.
Independent Reuse Assessment
The Assessment will be led by an independent eminent person(s), with support from a Secretariat with expertise drawn from the DTA, and experts from across the APS and the private sector, to evaluate work undertaken to date to deliver GOVERP.
Term
The Assessment will be completed by 30 June 2024.
Objectives
The Assessment will focus on the following areas to leverage work already completed, draw out lessons learned, and uncover opportunities for reuse of GOVERP to support the new APS ERP approach. The objectives of the Assessment are to:
Evaluate and understand what has been delivered to date.
Evaluate and understand what has been spent to date against what has been delivered.
Evaluate and understand the suitability of delivered outputs for reuse across the Commonwealth.
Contribute standard designs, patterns and other related guidance to the Australian Government Architecture.
Articulate recommendations and guidance for reuse including information that will support entities to plan future ERP uplifts.
Advise on potential costs, risks, and associated benefits, to carry out any remaining work envisaged by Services Australia to complete GovERP.
Advise on potential ongoing costs to entities from reusing GovERP, if reuse can be supported.
Identify alternative designs and pathways that might provide more cost-effective options for any remaining work.
Identify any existing ‘readymade’ deployment configurations deemed suitable to allow direct onboarding of entities.
Deliverables
The Assessment will produce a report, and where relevant, industry standard reference materials that will be made available through the Australian Government Architecture. A draft report will be provided to the Minister by 31 May 2024 with the final report provided by 30 June 2024. Secretaries Data and Digital, and the Digital Leaders, Committees will be provided progressive updates on the Assessment.
Summary of how terms of reference have been addressed in this report
TOR
Related Report Section
1.
Evaluate and understand what has been delivered to date.
Section 3.2 Delivery to date
2.
Evaluate and understand what has been spent to date against what has been delivered.
Section 3.1 Expenditure to date
3.
Evaluate and understand the suitability of delivered outputs for reuse across the Commonwealth.
Section 4 Reuse assessment
4.
Contribute standard designs, patterns and other related guidance to the Australian Government Architecture.
Reusable business process maps, designs, patterns, and related documentation have been identified as potential Australia Government Architecture contributions.
5.
Articulate recommendations and guidance for reuse including information that will support entities to plan future ERP uplifts.
Section 1.1 Summary of recommendations
6.
Advise on potential costs, risks, and associated benefits, to carry out any remaining work envisaged by Services Australia to complete GovERP.
Section 3.3 Remaining work to complete GovERP
7.
Advise on potential ongoing costs to entities from reusing GovERP, if reuse can be supported.
Section 4.2 Potential ongoing reuse costs to entities
8.
Identify alternative designs and pathways that might provide more cost-effective options for any remaining work.
Section 5 Alternate designs or delivery pathways
9.
Identify any existing ‘readymade’ deployment configurations deemed suitable to allow direct onboarding of entities.
Section 4.1 Reusability by tier (4.1.1 Tier 1 reuse opportunities)
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Appendix A: Terms of reference
Context
New APS ERP approach
On 28 November 2023, the Finance Minister, Senator the Hon Katy Gallagher, announced the new Enterprise Resource Planning (ERP) approach for the Australian Public Service (APS) that replaces the Shared Services Transformation Program. This new approach sets the strategic direction for APS ERP system management, which is underpinned by the principles of choice, market competition, and affordability. As part of the announcement, an independent assessment (the Assessment) will evaluate the suitability of Services Australia
ERP (GovERP) use by Services Australia, and reuse by Commonwealth entities to support Commonwealth entities to implement future cost-effective ERP uplifts.
Independent Reuse Assessment
The Assessment will be led by an independent eminent person(s), with support from a Secretariat with expertise drawn from the DTA, and experts from across the APS and the private sector, to evaluate work undertaken to date to deliver GOVERP.
Term
The Assessment will be completed by 30 June 2024.
Objectives
The Assessment will focus on the following areas to leverage work already completed, draw out lessons learned, and uncover opportunities for reuse of GOVERP to support the new APS ERP approach. The objectives of the Assessment are to:
Evaluate and understand what has been delivered to date.
Evaluate and understand what has been spent to date against what has been delivered.
Evaluate and understand the suitability of delivered outputs for reuse across the Commonwealth.
Contribute standard designs, patterns and other related guidance to the Australian Government Architecture.
Articulate recommendations and guidance for reuse including information that will support entities to plan future ERP uplifts.
Advise on potential costs, risks, and associated benefits, to carry out any remaining work envisaged by Services Australia to complete GovERP.
Advise on potential ongoing costs to entities from reusing GovERP, if reuse can be supported.
Identify alternative designs and pathways that might provide more cost-effective options for any remaining work.
Identify any existing ‘readymade’ deployment configurations deemed suitable to allow direct onboarding of entities.
Deliverables
The Assessment will produce a report, and where relevant, industry standard reference materials that will be made available through the Australian Government Architecture. A draft report will be provided to the Minister by 31 May 2024 with the final report provided by 30 June 2024. Secretaries Data and Digital, and the Digital Leaders, Committees will be provided progressive updates on the Assessment.
Summary of how terms of reference have been addressed in this report
TOR
Related Report Section
1.
Evaluate and understand what has been delivered to date.
Section 3.2 Delivery to date
2.
Evaluate and understand what has been spent to date against what has been delivered.
Section 3.1 Expenditure to date
3.
Evaluate and understand the suitability of delivered outputs for reuse across the Commonwealth.
Section 4 Reuse assessment
4.
Contribute standard designs, patterns and other related guidance to the Australian Government Architecture.
Reusable business process maps, designs, patterns, and related documentation have been identified as potential Australia Government Architecture contributions.
5.
Articulate recommendations and guidance for reuse including information that will support entities to plan future ERP uplifts.
Section 1.1 Summary of recommendations
6.
Advise on potential costs, risks, and associated benefits, to carry out any remaining work envisaged by Services Australia to complete GovERP.
Section 3.3 Remaining work to complete GovERP
7.
Advise on potential ongoing costs to entities from reusing GovERP, if reuse can be supported.
Section 4.2 Potential ongoing reuse costs to entities
8.
Identify alternative designs and pathways that might provide more cost-effective options for any remaining work.
Section 5 Alternate designs or delivery pathways
9.
Identify any existing ‘readymade’ deployment configurations deemed suitable to allow direct onboarding of entities.
Section 4.1 Reusability by tier (4.1.1 Tier 1 reuse opportunities)
Appendix B: Eminent Panel biographies
Appendix B:Eminent Panel biographies
Ms Maile Carnegie
Maile is Group Executive Australia Retail, ANZ’s largest business which serves around five million retail customers through an extensive network of branches, ATMs and leading online and mobile banking applications and digital solutions. Since joining ANZ, she has been developing enterprise-wide digital capability, including
the transformation of the Australia Business which aims to improve the financial wellbeing of ANZ customers. Maile also holds Group accountability for design and marketing which includes ANZ’s brand, advertising and sponsorships. She is a Non-Executive Director on the Board of ANZ Bank New Zealand Limited.
Maile is keenly focused on customer centric innovation and design. She joined ANZ in 2016 from Google where she was Managing Director Australia and New Zealand. She also spent over 20 years with Proctor and Gamble in roles including Managing Director Australia and New Zealand, General Manager for Asia Strategy, Marketing and Design based in Singapore and a number of senior commercial roles in the United States.
With a passion for helping future generations, Maile contributed as one of six members on the independent review of the Australian Public Service, was previously Vice-Chair of the ASIC External Advisory Panel and a board member of Innovation and Science Australia. She is currently a member of the Board at University of Technology, Sydney and a Trustee of the Australian Museum.
Maile holds a degree in Business Administration in Finance, Economics and Marketing from the University of Technology Sydney.
Ms Catherine D’Elia
Catherine is a senior executive with an excellent track record in leading people centred, innovative, strategic, service-oriented solutions, leveraging technology, transforming culture and streamlining processes across geographies.
With a strong background in strategic leadership, large scale change management, executive level collaboration, Catherine has a proven track record in fostering a positive work environment, complex problem resolution, and internal and external relationship management.
Catherine has held senior positions in the NSW public service for the last 16 years, including as a Deputy Secretary in the Department of Communities and Justice Department. Prior to joining the public service, Catherine held senior positions in the banking sector at NAB and Citizens Bank in the US.
Catherine holds a Masters in Education, Human Resource Development from Boston University, as well as a Bachelor of Arts in International Relations from the University of New Hampshire.
Mr Chris Cawood
Chris has over 30 years’ leadership and technical experience across heavy industry sectors including manufacturing, oil and gas, mining and transport.
Chris joined Ixom in late 2021 and was previously the Chief
Information Officer of OceanaGold for eight years. Prior to this he had an extensive career with BHP, where he held CIO roles in various business units.
Chris developed a passion for technology transformation and change in his early career in the BHP Steel (now BlueScope) marketing team. From there, he progressed into leadership roles with the BHP Petroleum division in Western Australia and for five years was involved in the expansion of its oil and gas assets. He was appointed to CIO roles in the coal and marketing divisions of BHP and was responsible for large technology transformation projects as well as a number of M&A integrations and divestments.
Chris has significant experience working in multicultural environments and with diverse teams. He has lived in Europe and worked closely with colleagues and external stakeholders in Pakistan, Japan, China, Africa, Singapore, The Philippines and North America.
Chris holds a Bachelor of Science and Education degree from Melbourne University.
Mr Chris Fechner
Chris Fechner was appointed the Chief Executive Officer at the Digital Transformation Agency on 13 October 2021.
Chris is also the Head of the Digital Profession; he started his two-year term in January 2023.
Chris has extensive experience in state government
services, focusing on large scale digital and ICT reform and transformation programs as well as implementing contemporary investment, contestability, and governance frameworks.
Before joining the Australian Public Service, Chris was the Queensland Government Chief
Customer and Digital Officer throughout 2020 and 2021. Chris was previously the Chief Digital and Product Officer at Service NSW. Prior to that, Chris held a number of senior positions across the NSW and Queensland governments as well as in freight and rail organisations.
Chris holds an Executive Masters of Business Administration and a Bachelor of Applied Science and Computing, both from the Queensland University of Technology.
As CEO, Chris is responsible for leading the agency to ensure we deliver on the government’s digital transformation agenda, in accordance with our agency’s executive order and the Public Governance, Performance and Accountability Act 2013.
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