Four - Outcomes-based approaches and the devolved administrations

Summary

Introduction

A relatively new common feature of the devolved administrations has been the emergence of outcome-based frameworks as key components of their policy-making processes. This trend has received comparatively little analysis or comment in academic work on devolved policy-making, and existing work has tended to focus mainly on other policy dimensions (Birrell, 2009; Cairney, 2011; Birrell and Gormley-Heenan, 2016; Cole and Stafford, 2015; Cairney et al, 2016). Coverage in more specialist forms in reports or articles is limited, as is any comparative analysis. There are a range of different outcomes-based models or frameworks (Penna and Williams, 2005) rooted in different methodological positions, including in England specific NHS, adult social care and public health outcomes frameworks. Therefore the use of the generic term ‘outcomesbased approaches’ in government narratives in all three countries has not helped provide clarity.

In the devolved jurisdictions there has been much attention on the influence of the outcomes- or results-based accountability methodology developed and promoted by Friedman (2005). Based on population measures and indicators, the Friedman model has been used in performance management, particularly in the US. Key features of the approach include working backwards from a set of desired outcomes and the use of three performance categories: ‘How much did we do?’, ‘How well did we do it?’ and ‘Is anyone better off?’ Although not extensively adopted by the Westminster government, the outcomesbased accountability (OBA) approach has been used by some local authorities in England, particularly with regard to children's services and education. This chapter is mainly concerned with the introduction and use of OBA in policy-making in the three devolved administrations where there has been divergence in its use and in the nature and scope of approaches. It examines the emergence of outcomes-based approaches in Scotland, Wales and Northern Ireland, the rationale for their adoption and arguments about benefits and criticisms. Conceptual and definitional issues associated with OBA are considered as are the choice and use of indicators and the policy implications arising from its use.

Development of outcomes-based approaches in the devolved Administrations

Scotland led the way in using an outcomes-based approach that has come to be associated with a Scottish approach to public sector performance (Cook, 2017a).