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Title page 1

Contents 6

Foreword 4

Acknowledgements 5

Abbreviations and acronyms 10

Executive summary 12

1. Introduction: Steering government through complexity: The evolving role of the centre of government 14

1.1. Introduction 15

1.2. Re-organising government to deliver 17

1.3. Prioritisation and planning to deliver 26

1.4. Capabilities for cross-government policy co-ordination and development 31

1.5. Conclusion 38

1.6. Key messages and practitioner tips 39

Part I. Re-organising government to deliver 41

2. Estonia: Guiding machinery of government change 42

2.1. Introduction 43

2.2. Context: Estonia's changing machinery of government 44

2.3. Challenges and enablers for effective machinery of government change 47

2.4. Options for further exploration 65

3. Portugal: Bridging the political-technical interface 66

3.1. Introduction 67

3.2. Context: Delivering on political priorities across government in Portugal 68

3.3. Challenges and enablers for an effective political-technical interface 71

3.4. Options for further exploration 83

Part II. Prioritisation and planning for delivery 84

4. Poland: Stewardship of key policy priorities 85

4.1. Introduction 86

4.2. Defining and managing priorities at the centre 88

4.3. Challenges and enablers to define and manage policy priorities 91

4.4. Options for further exploration 105

5. Bulgaria: Guiding the implementation of long-term priorities 106

5.1. Introduction 107

5.2. Steering long-term priorities - a demanding role for the centre of government 108

5.3. Challenges and enablers to managing long-term priorities at the centre 108

5.4. Options for further exploration 128

Part III. Capabilities for co-ordination and policy development 131

6. Greece: Monitoring the implementation of priority reforms 132

6.1. Introduction 133

6.2. Context: Monitoring key reforms from the centre of government 133

6.3. Challenges and enablers for the centre's role in monitoring key priorities 136

6.4. Options for further exploration 149

7. Ireland: Ensuring an effective and agile centre of government 150

7.1. Introduction 151

7.2. Context: The Irish Government's role in steering cross-cutting priorities 152

7.3. Challenges and enablers for the CoG in stewarding cross-cutting policies 154

7.4. Options for further exploration 171

References 172

Tables 8

Table 2.1. Types of transfers of functions within Round 1 and Round 2 of restructuring 48

Table 2.2. Co-operation, co-ordination, collaboration, integration 58

Table 2.3. Questions to ask when analysing structural changes 59

Table 6.1. Tasks for AI systems 140

Table 6.2. Overview of divisions and groups 142

Table 7.1. Cross-cutting initiatives involving the Department of the Taoiseach since 2012 153

Table 7.2. Factors leading to centre of government involvement in cross-cutting issues 155

Figures 7

Figure 1.1. Changes to the number of cross-cutting priorities handled by the centre 2020-2025 18

Figure 1.2. Rationales for machinery of government change (internal and external) 19

Figure 1.3. Creating new entities is a common type of MoG change 20

Figure 1.4. Challenges in co-ordinating policy development 21

Figure 1.5. Factors that contribute to the centre taking on cross-cutting issues in-house 22

Figure 1.6. Factors impacting on the ability of the CoG to deliver on political priorities 24

Figure 1.7. Change in CoG senior management within six-months following a transition 24

Figure 1.8. Skills gaps at the political-administrative interface 25

Figure 1.9. Number of priorities in the current government's manifesto or key strategic document 27

Figure 1.10. Connections between strategies and budgets, and actions when a priority is off track 29

Figure 1.11. CoG responsibilities for setting vision, priorities and strategic planning 30

Figure 1.12. Centre of government's typical roles on cross-cutting priorities 31

Figure 1.13. Capabilities CoGs identify as critical investment needs for stewarding cross-cutting priorities 33

Figure 1.14. The biggest challenges to sustaining monitoring at the centre of government 34

Figure 1.15. What most often limits the use of analysis and data on policy impact in decision-making 35

Figure 1.16. Priority for the CoG in monitoring whole-of-government performance 36

Figure 1.17. Managing long-term priorities when they are off track 37

Figure 2.1. The Government Office is led by the Secretary of State and comprises nine individual units 44

Figure 2.2. DSGs in the Ministry of Finance respond to the SG who works directly with the Minister 45

Figure 2.3. Mobility of civil servants across public administrations in central government in 2022 46

Figure 2.4. Workforce management challenges during MoG changes 50

Figure 2.5. Alternative arrangements to full MoG restructuring to support cross-cutting policy areas 52

Figure 2.6. What is the right intensity of model to use? 59

Figure 3.1. Change in navigating, influencing, or interacting with elected officials since 2019 67

Figure 4.1. The CoG's main roles are to support decision-making and set priorities 87

Figure 4.2. Monitoring and review are important functions of the CoG 89

Figure 4.3. Mechanisms used by the CoG to support co-ordination 97

Figure 6.1. Most CoGs undertake whole-of-government monitoring as a top or significant priority 134

Figure 6.2. The typical role of the CoG generating or commissioning impact evidence 135

Figure 6.3. OECD Framework for Trustworthy Artificial Intelligence (2025) 139

Figure 6.4. Most important challenges to the effective stewardship of long-term cross-cutting strategies 143

Figure 6.5. Theories of change can be used to assess and align long-term results 145

Figure 6.6. Project dashboards in Australia 147

Figure 7.1. Policy areas of the Department of the Taoiseach 152

Figure 7.2. CoG decision to take on a cross-cutting issue and the challenges it aims to resolve 154

Infographics 8

Infographic 1.1. Centre of Government Functions 15

Boxes 8

Box 1.1. Regulatory simplification led by centre of government institutions 32

Box 2.1. Machinery of government changes in the justice sector in Ireland and Latvia 48

Box 2.2. Multiple ministers within one ministry in Canada 52

Box 2.3. The role of state secretaries in enabling co-ordination across government in Finland 53

Box 2.4. Structures for ministerial appointments without a full line ministry 54

Box 2.5. Mission-oriented approaches 55

Box 2.6. Inter-ministerial working arrangements in Austria and Finland 56

Box 2.7. Frameworks for MoG change management in Australia and the United Kingdom 61

Box 2.8. Setting and communicating goals from the centre in Australia and Canada 63

Box 2.9. The European Union's Centre for Organisational Transformation 64

Box 3.1. Public service neutrality in Australia and Denmark 72

Box 3.2. Technical committees supporting decision making at the political level in Ireland 74

Box 3.3. Policy preparation through impact analyses in Australia 75

Box 3.4. Document management systems for Cabinets in Estonia and New Zealand 77

Box 3.5. Co-ordinating data governance through strategic investment in New Zealand 79

Box 3.6. Outcome Delivery Plans in the United Kingdom 80

Box 3.7. España 2050 and the National Office for Foresight and Strategy in Spain 82

Box 4.1. Digital tools for the management of Cabinet discussions in Latvia 91

Box 4.2. Setting standards and guidance from the centre to identify priorities 92

Box 4.3. Systems-based approach to cross-sectoral policy prioritisation in Finland 92

Box 4.4. Communication tools in Estonia and Portugal 94

Box 4.5. Fostering alignment around priorities through targeted communications 95

Box 4.6. Support for cabinet meetings in Finland and New Zealand 98

Box 4.7. Targeted sub-committees for specific policy areas in the United Kingdom 99

Box 4.8. The Public Administration Planning and Foresight Services Network in Portugal 100

Box 4.9. Policy Forum in Ireland 101

Box 4.10. The Government Analytical Unit in the Czech Republic 102

Box 4.11. The Irish Economic and Evaluation Service 104

Box 5.1. Co-ordination of sustainable development in Romania 114

Box 5.2. Strategic foresight in national planning in Singapore and Spain 117

Box 5.3. OECD Distance to Targets methodology 119

Box 5.4. SDG GeoHive: A centralised data hub for sustainable development in Ireland 121

Box 5.5. Spending reviews in the Netherlands 123

Box 5.6. Localising long-term priorities in Norway 124

Box 5.7. Digitalisation reform in Italy, and municipal reporting in Norway 125

Box 5.8. Municipal commitments to the 2030 Agenda in Portugal 127

Box 6.1. Risk-based business licensing reform in Israel 138

Box 6.2. Civil Service Renewal Plan in Ireland 139

Box 6.3. Frameworks for labelling policy areas for more effective monitoring 142

Box 6.4. Public policy indicators in interactive dashboards 146

Box 7.1. Major Projects Office in Canada 158

Box 7.2. Surveying departments to strengthen central support in the United Kingdom 158

Box 7.3. The Policy Project as a system-wide support platform in New Zealand 159

Box 7.4. Machinery of government changes in Estonia 160

Box 7.5. Facilitating policing reform at the centre of government 161

Box 7.6. Innosprint: A scalable policy sprint format in Estonia 164

Box 7.7. Measuring progress in the National Health Reform Agreement in Australia 166

Box 7.8. Embedding child poverty targets in budgeting in New Zealand 169

Box 7.9. Funding cross-departmental collaboration in the United Kingdom 169

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