Policy paper

Government Project Delivery Function Strategy 2025 (HTML)

Published 31 March 2023

1. Ministerial foreword

Projects and programmes have a fundamentally important part to play in delivering our economic growth, improving our infrastructure and services and keeping us safe and secure as a nation.

Investing wisely, delivering efficiently and ensuring sustainable outcomes and benefits for the citizens of the United Kingdom is critical. Not only to help us respond to global economic challenges but also in transforming the lives of citizens and putting the UK at the forefront of innovation, digital delivery and sustainability for future decades to come.

This strategy sets out the Government Project Delivery Function’s commitment to continue to strengthen the delivery of projects and programmes, both those we deliver directly as a government and in working with delivery partners and industry across the UK and internationally to build expertise and share learning and good practice.

It forms a key part of our work on continuing government reform, and on driving greater efficiency and productivity across the United Kingdom.

Projects and programmes create jobs and touch the lives of many millions across the UK. They play a key role in our work internationally, where our expertise in infrastructure delivery is widely sought out and respected. They will be critical to how we sustain our economic recovery and meet our Net Zero commitments by 2050.

This is a critical area of national expertise and we must continue to develop it: ensuring world class delivery standards and skills. The Government Project Delivery Function will play a key role in driving this development. This strategy marks an important step on that journey.

The Right Honourable Jeremy Quin MP

Minister for the Cabinet Office

2. Chief Executive Officer’s foreword

I’m delighted to introduce the Government Project Delivery Function Strategy, setting

out the next steps in our ambition for delivery excellence across government and the UK.

The work of the Government Project Delivery Function spans the work of many hardworking and committed people across government, whether in departments, arms-length bodies or the wider public sector. We work with delivery partners from across industry and with professional bodies and academia to strengthen project delivery and support capability-building nationally and internationally.

This strategy sets out our strategic objectives as a function for 2025, how we plan to achieve them, and how we will track our progress.

Our shared ambition to deliver world-class projects and programmes has never been more important. The economic challenges facing this country, following hard on the heels of the coronavirus pandemic, make it vital to achieve government commitments on infrastructure and service delivery, and to use public resources efficiently and effectively in delivering government priorities.

Our function has many strengths and we have come a long way since its creation a decade ago. We need to build on these strengths, and the rich diversity of skills and talent across the function, as we adapt for the challenges ahead, to deliver our ambitions for 2025 and beyond.

Project delivery is ultimately about people and partnership. The Government Project Delivery Function is led collaboratively through its Projects Council and the work of Chief Project Delivery Officers in government departments, who, together, will own and oversee implementation of this strategy.

On behalf of the Projects Council, I would like to express our gratitude to everyone who works in government project delivery, and to the many people who have helped develop this, our first function strategy. I look forward to continuing to work with you all in delivering it.

Nick Smallwood

Chief Executive, Infrastructure and Projects Authority

3. Background

The UK government delivers some of the most complex and innovative projects and programmes in the world. Some are delivered directly, for example to transform services for citizens and people within government. Others are delivered through external delivery partners, improving national physical and digital infrastructure, providing humanitarian assistance, or creating new capabilities, for example in the health, environment, energy, defence and space sectors.

Government programmes and projects are overseen and managed at organisation level, as part of departmental portfolios or in arms-length bodies. The most complex and strategically important join the Government Major Projects Portfolio (GMPP), overseen by the Infrastructure and Projects Authority (IPA).

These account for significant public expenditure and deliver substantial public benefits, as shown below.

Big or small, however, all government projects, programmes and portfolios, and the public servants working within them, are part of the Government Project Delivery Function.

Summary of the 2021-22 GMPP*

*Figures include exempted data

Government Major Projects Portfolio

• 235 projects
• £678nb Whole life cost
• £726bn Monetised benefits

This comprises of:

Infrastructure and Construction

• 70 projects
• £339bn Whole life cost
• £356bn Monetised benefits

Government Transformation and Service Delivery

• 89 projects
• £128bn Whole life cost
• £326bn Monetised benefits

Military Capability

• 45 projects
• £174bn Whole life cost
• £7bn Monetised benefits

Information and Communications Technology (ICT)

• 31 projects
• £37bn Whole life cost
• £37bn Monetised benefits

The Government Project Delivery Function

The Government Project Delivery Function^{[footnote 1]} is the organisation of people in government departments and arms-length bodies who advise on, lead and manage project development and delivery.

The function operates on a distributed basis, with project delivery led and managed within individual departments or in their arms-length bodies and services, with leadership and support from departmental Chief Project Delivery Officers (CPDOs) and their delivery teams.

The Chief Executive of the IPA is the Government Head of Function and has ‘dotted line’ oversight of the work of departmental CPDOs. The function is governed through the Projects Council, which is attended by CPDOs and chaired by the Government Head of Function.

Over 26,000^{[footnote 2]} civil servants, and many others in the wider public sector, work together in the Government Project Delivery Function to deliver the government’s priorities. The function brings together the work of people from many professions - policy and operations, digital, science and engineering, commercial and property, analysis, finance, HR and others - as well as project delivery professionals.

The work of the function delivers government priorities by:

• setting up, developing, delivering and assuring projects, programmes and portfolios, whether directly or through other delivery partners
• setting strategies and standards
• building capability and driving continuous improvement
• giving expert advice and support

The function also plays an important role as the voice of government on project and infrastructure delivery, and through our work to support capability-building nationally and internationally.

The Government Project Delivery Profession

The Government Project Delivery Profession works collaboratively across government to develop the capability of people with professional skills, knowledge and expertise in government project delivery, and build a thriving professional community.

Around 16,000 people identify project delivery as their primary profession2. The profession forms a key part of the function, with leadership provided by Heads of Profession, working alongside CPDOs in departments, and by the Government Head of Profession, who sits in the IPA.

The Infrastructure and Projects Authority

The Infrastructure and Projects Authority (IPA) is the government’s centre of expertise for project delivery, reporting jointly to the Cabinet Office and His Majesty’s Treasury.

The IPA leads the Government Project Delivery Function and Profession, working closely with CPDOs and Heads of Profession in departments and arms-length bodies.

Under its ministerial mandate^{[footnote 3]}, the IPA has authority to oversee the Government Major Projects Portfolio, lead reform of government project delivery and provide ministers with advice to enable successful delivery of major projects and infrastructure. This also includes advice on projects delivered by the private sector so they can be set up for success and deliver value for money outcomes in line with government priorities.

• Government Functions - 149,040 people
• Government Project Delivery Function - 26,580 people from range of professions
• Government Project Delivery Profession - 15,890 people
• Infrastructure and Projects - 200 people
  • Policy, Operational Delivery, Analysis, Communications and other professions
  • Commercial Finance and HR
  • Science and Engineering, Digital, Property

4. Where are we today?

The Government Project Delivery Function was first established in 2013, together with the Government Project Delivery Profession. Since then, project delivery has continued to grow in significance within the work of government, particularly with the need to deliver major reforms at pace to support the UK’s exit from the EU and respond to the global pandemic.

Transforming government project delivery

Recent government publications such as the National Infrastructure Strategy^{[footnote 4]}, Transforming Infrastructure Performance: the Roadmap to 2030^{[footnote 5]} and Transforming for a Digital Future^{[footnote 6]} highlight the pressing need to modernise delivery and leverage the power of digital and data, supporting the UK’s commitments to the UN Sustainable Development Goals for 2030 and Net Zero by 2050. These strategic priorities underpin our function strategy.

The IPA’s Annual Report on Major Projects 2021-2022^{[footnote 7]} also shows continued growth in the number, scale and complexity of government major projects in recent years. It points particularly to the need to improve project set up and delivery, build capability and strengthen partnership working, and thereby improve confidence so that projects achieve their planned outcomes and benefits.

Global economic pressures are adding further challenges: increasing the cost of raw materials, energy and labour, tightening public spending and making it harder to attract and retain delivery skills. These challenges make it imperative to ensure investment is spent wisely: developing policy with feasibility in mind; defining outcomes and benefits up front; planning delivery to maximise efficiency and sustainability; and considering future asset management. These remain critical considerations for our future strategy.

So too must be the project delivery workforce. Project delivery is hard, and the pressures are often intense. Vacancies and skills shortages are a continuing problem. We need greater diversity in our project leadership, particularly in infrastructure and defence sectors, and a stronger focus on training and development, inclusion and wellbeing at the heart of our function strategy.

Evolving the Government Project Delivery Function

To meet these challenges, the function needs to evolve. We need a rigorous focus on feasibility, outcomes and benefits; to make the most of modern digital technology and data tools; to leverage innovation and share best practice.

We need government project delivery to be inspiring and rewarding: attracting and growing some of the best talent in the UK; equipping people with the skills they need; supporting their wellbeing; and helping them develop their potential.

Project delivery is multi-disciplinary and takes many forms: from big construction projects and social programmes to iterative digital transformation using product-based approaches. We embrace this diversity, working across different disciplines and using the best delivery approach for the job.

Ultimately, no matter how complex or innovative, and whatever form of delivery it takes, a successful project or programme is one that can realise its required outcomes and benefits, and is delivered to the schedule and cost envelope agreed in its full or programme business case. This must remain our priority.

Building on our strengths

We have many strengths on which to build. The UK has shown it can deliver to world-class standards: from the success of the 2022 Commonwealth Games to the Covid vaccine and job retention scheme, as well as the many other projects and programmes, big and small, delivered successfully each year.

We have a strong reputation globally. The function works with partners at national and international level to improve how projects and infrastructure are delivered. The IMF’s recent Public Investment Management Assessment ^{[footnote 8]} for the UK in April 2022 found the UK well placed to ramp up public investment and noted the robustness of institutions supporting it.

Our function needs to build on these strengths as well as addressing the challenges we face. The following pages say how we plan to do so.

5. Our ambition for 2025

Our ambition is for UK government projects to be recognised for world class delivery.

Our aim is that:

• Government project delivery is recognised for efficient modern practice and delivery of reliable, sustainable and inclusive outcomes
• People working in government projects have the skills and support they need and can develop their potential
• We work with partners at national and international level to share learning and experience, improve the delivery of complex projects, and adapt to new challenges and opportunities

Why does this matter?

For citizens: all improvements to government services and national infrastructure - our healthcare, education and social support, travel, energy and digital services, security and defence - are delivered through government-funded projects and programmes. Doing so more efficiently, effectively and sustainably means getting the best value we can from taxpayers’ money.

For people working in government: raising professional standards, and equipping and supporting people working in project delivery improves skills and job satisfaction. Better career pathways help attract, retain and develop a richer diversity of talent and expertise, helping the UK grow capability for the future.

For organisations working with government: transparent pipelines and stronger partnerships create opportunities to support wider investment and capability-building. A clear lead from government helps drive a system-wide approach to tackling barriers to efficiency and productivity, and sharing and embedding modern and efficient practices

For the United Kingdom: Establishing the UK as a leader and global partner in project delivery helps attract new investment and creates jobs. It helps us build diplomatic relationships, adapt to global economic challenges and respond to humanitarian needs. And it will be critical in meeting our commitments on net zero and building a strong and sustainable economy for the future.

6. Our strategic objectives for 2025

To achieve our ambition for world class delivery, we need to evolve how we deliver and build talent, skills and inclusion across all areas of our work.

We have agreed five strategic objectives for where we want to be as a function by 2025.

Strategic objective 1: Better outcomes

Enhanced planning and decision-making on government investment to deliver more efficient, reliable, inclusive and sustainable public outcomes and benefits.

Strategic objective 2: Skilled and valued people

A skilled, diverse and inclusive function, making best use of expertise and talent inside and outside government, where people feel safe, valued and work together for the public good.

Strategic objective 3: Efficient modern delivery

Embedding efficient, modern standards and practices and using digital tools, artificial intelligence and modern technology to transform government delivery and increase productivity.

Strategic objective 4: Data-driven performance

Using data, analysis and experience to drive continuing improvement in government project delivery planning, performance and outcomes.

Strategic objective 5: Influential leadership

Leveraging our influence and scale to transform delivery across government and industry, drive innovation and share expertise to benefit the UK and others, and enhance our reputation internationally.

7. How will we deliver this?

Strategic objective 1: Better outcomes

Enhanced planning and decision-making on government investment to deliver more efficient, reliable, inclusive and sustainable public outcomes and benefits.

What are we already doing?

• Launched the project set up toolkit, being embedded into use
• Required impact assessment as part of every project business case, including equality and Net Zero impacts
• Introduced portfolio assurance reviews to drive tighter management of departmental portfolios
• Introduced function assessments of feasibility and deliverability for Spending Reviews and Outcome Delivery Plans
• Established the PFI Centre of Excellence and expert associates pool, delivering training and expiry health checks until March 2025
• Published the National Infrastructure and Construction Pipeline

What else will we do by 2025?

• Use recognised project set up tools for all major projects to drive stronger focus on social value outcomes and efficiency
• Support feasibility assessment and portfolio prioritisation in departments to manage spending challenges and improve delivery confidence
• Clarify definitions of social value and sustainability outcomes and develop guidance to ensure benefits are fully identified through the project lifecycle
• Embed the Value Toolkit to support outcome definition and evaluation of value through project life
• Use the HMT/IPA Evaluation Task Force to develop further guidance and tools to strengthen project appraisal, selection and funding
• Produce guidance on project organisation, sponsorship, governance and client structures to improve efficiency, scrutiny and accountability

Strategic objective 2: Skilled and valued people

A skilled, diverse and inclusive function, making best use of expertise and talent inside and outside government, where people feel safe, valued and work together for the public good.

What are we already doing?

• Established the Government Projects Academy and new accreditation scheme for project professionals, rolling out across departments by March 2024
• Implemented new major project SRO training and time commitment requirements
• Expanded our training offer at all levels, with clearer career pathways and support via the new Government Project Delivery Hub
• Introduced strategic workforce planning to identify skills/workforce gaps and support decisions on deliverability and resourcing
• Launched our three-year diversity strategy and action plan
• Increased focus on inclusion in recruitment in early talent and leadership campaigns
• Promoted discussion on psychological safety and wellbeing in project delivery, led by the Ministry of Defence
• Continuing to build the Government Project Delivery Profession and thriving communities of practice across government

What else will we do by 2025?

• Encourage and recognise competence by boosting training and accreditation of project professionals at all levels through the Government Projects Academy
• Recognise major project director accountability by introducing new appointment, training and time requirements coupled with pivotal role allowances
• Reward expertise by establishing a new pay framework for project delivery professionals to improve retention and grow expertise
• Use strengthened strategic workforce planning as the evidence base to address skills gaps
• Increase the diversity of our leadership, broadening recruitment and ensuring training is accessible and inclusive
• Promote wellbeing within project delivery, providing a safe, flexible environment with health, safety and wellbeing at its core

Strategic objective 3: Efficient modern deliver

Embedding efficient, modern standards and practices and using digital tools, artificial intelligence and modern technology to transform government delivery and increase productivity.

What are we already doing?

• Rolled out the new Government Project Delivery Framework as part of our new Government Project Delivery Hub
• Implemented government project delivery principles, standard, guidance and assurance products, with development on an ongoing basis
• Published new cost estimation guidance
• Launched new guidance and training on digitising delivery, including new content in our leadership programmes

What else will we do by 2025?

• Create a new Project Delivery Body of Knowledge for government, consolidating standards, tools and guidance into a single online platform on the Government Project Delivery Hub
• Produce new guidance and tools on developing and delivering digital and transformation projects
• Require digitalisation plans for GMPP infrastructure projects
• Increase use of digital and data tools in the design, delivery, monitoring and evaluation of major projects
• Define standards to improve management of uncertainty, such as cost estimation and setting and holding contingency, in partnership with HMT
• Drive continuous improvement through assessment against the Project Delivery Functional Standard and through supporting communities of practice
• Work across functions and sectors to identify and share industry-leading practice, build capability and embed innovative approaches across the system

Strategic objective 4: Data-driven performance

Using data, analysis and experience to drive continuing improvement in government project delivery planning, performance and outcomes.

What are we already doing?

• Implemented the new Government Assurance Framework, embedding RAG assessment and response to red measures, and improved analysis of review data
• Improved GMPP reporting and analysis, including scoping OSCAR 2 replacement system
• Established the Benchmarking Hub and working group on construction metrics, widening access to benchmarking data and techniques, and trialling productivity measures
• Published transparency data on major project SROs, performance and delivery confidence annually alongside the IPA Annual Report

What else will we do by 2025?

• Review current practices in use of data in project controls and promote use of predictive metrics, diagnostics and interactive data tools to model, define, track and assure progress
• Establish interoperable and reliable data and performance reporting by defining and embedding cross-government project controls, data standards and reporting
• Improve scrutiny of delivery to cost, time and benefits, strengthening requirements for benefit evaluation plans, project closure reviews and post-project evaluation reviews
• Better data management and shared use across central project reporting

Strategic objective 5: Influential leadership

Leveraging our influence and scale to transform delivery across government and industry, drive innovation and share expertise to benefit the UK and others, and enhance our reputation internationally.

What are we already doing?

• Strengthened government functional leadership through new departmental Chief Project Delivery Officers and Projects Council
• Introduced ministerial training on sponsoring major projects
• Published the Transforming Infrastructure Performance Roadmap to 2030, with new modules on promotion and training ongoing
• Updated and published the Project Routemap suite for sponsors and clients of novel or complex projects in both public and private sectors, including an international version
• Introduced technology landscape scanning to identify areas of innovation
• Worked cross-sector with industry, professional bodies and academia to share and promote best practice in project and infrastructure delivery
• International work with 60 countries to support infrastructure development and capability-building, as well as the delivery of UK aid and humanitarian programmes

What else will we do by 2025?

• Leverage the collective power of the function, profession and industry to identify real world solutions for building a skilled, valued and inclusive project talent pipeline
• Champion IPA and ICE best practice on project oversight and provide training for executive board sponsors to equip them with tools to support delivery
• Lead cross-sector debate and consensus on managing long term projects and programmes in uncertainty, and on helping to meet the UK’s commitment to Net Zero by 2050
• Contribute to cross-sector thought-leadership on barriers to project feasibility, efficiency, effectiveness and sustainability and use government’s voice to help tackle them
• Use the voice of the function and profession to share learning and celebrate successful delivery, creativity and innovation across the UK and internationally

8. What will it take to get there?

To achieve our strategic objectives as a function we will need collective leadership and collaborative working across organisational boundaries, coupled with an inclusive, people-centred approach to delivery.

These principles, and the supporting behaviours, will need to underpin all our work as a function, wherever we work and whatever our skills and background, to ensure we make best use of our resources and meet our commitments.

Collective leadership

• Committed functional leadership and sponsorship within and across organisations and through our communities of practice
• A shared approach to transforming delivery and problem solving
• Valuing diversity of approach within delivery, while upholding core standards
• Willingness to embrace innovation, support research and play an active role in leading thinking across the function and beyond it

Collaborative working

• Multi-disciplinary teams, working across functions and professions
• Competent client relationships with delivery partners
• Close bonds with professional bodies and other national and international experts in industry and academia
• A continued focus on reliable data, transparency and data-sharing

An inclusive people-centred approach

• Valuing everyone’s contribution
• Growing diverse skills, expertise and talent
• An open, honest, safe environment
• Work that is inspiring and rewarding

Clear and effective governance

• Focus on efficiency, outcomes, social value and sustainability
• Being clear about accountability, with decision-making structures that work
• Expert advice and assurance
• Decisive action to address issues

9. What are our key success

Our aim over the two years to March 2025 is to show measurable progress against the following key indicators for the function.

First and foremost, our aim is to deliver an increase in delivery confidence against government major projects, measured through quarterly reporting on the Government Major Projects Portfolio.

The Projects Council has also agreed five further indicators which will show whether we are making fast enough progress in our work to evolve the function over the next two years, as set out in this strategy.

Headline indicator

Increase confidence in delivery to cost, time and benefit across government major projects

Supporting indicators

• All new major projects using recognised project set up tools
• All major projects have defined benefits baselines
• 2000 accredited project delivery professionals, including a third of major project directors and defence delivery team leaders
• All departments with major project portfolios manage these to ‘good’ standard or beyond against the Project Delivery Functional Standard
• Function scores rise in the Government Function Quality Survey

The Projects Council, as the overarching governing body for the function, will oversee progress on the aims and deliverables set out in this strategy, and on these key indicators.

All Projects Council Members have agreed to sponsor one of our five strategic objectives, working together collaboratively to champion action and lead progress across the function.

This strategy, though, is about the work of everyone working in government project delivery, and everyone has a part to play in delivering progress: so that, together, we can achieve our long term ambition as a function, to be recognised for world class project delivery.

1. In the UK government the term ‘project delivery’ covers projects, programmes and portfolios, and all delivery categories - infrastructure and construction, transformation, information communications technology, and defence. All are included within the ambit of the function ↩

2. Civil Service Statistics (2022): gov.uk ↩

3. Infrastructure and Projects Authority (2021), IPA Mandate: gov.uk ↩

4. HM Treasury (2020), National Infrastructure Strategy: Fairer, Faster, Greener: gov.uk ↩

5. Infrastructure and Projects Authority (2021), Transforming Infrastructure Performance: Roadmap to 2030: gov.uk ↩

6. Central Digital and Data Office (2022), Transforming for a Digital Future: the Roadmap for Digital and Data 2022-2025: gov.uk ↩

7. Infrastructure and Projects Authority (2022), Annual Report 2021-22: gov.uk ↩

8. International Monetary Fund (2022), United Kingdom: Technical Assistance Report – Public Investment Management Assessment ↩