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Implementation of SAFe elements in a public administration

Realistically implementing agile methods in public administrations brings with it many challenges - and offers many opportunities

by Oliver Strub

Senior Consultant

October 1, 2024

In this blog post, we use a real-life use case to describe how agile transformation was implemented in a public administration, the challenges that arose and the solutions that were developed. It shows how a multi-layered approach based on SAFe, the implementation of the Agile Manifesto and continuous improvement laid the foundation for success.

SAFe

SAFe (Scaled Agile Framework) describes on its portal that the introduction of Lean and Agile in the private sector has led to higher success rates in software and system development. Governments and public administrations have also recognized this and are beginning to adopt these mindsets and methods more widely. However, public administrations face unique challenges in Lean-Agile transformations. SAFe recommends a multi-layered approach for the transition to an agile organization in the public sector, based on the vision and strategy, the SAFe framework, lean budgeting and continuous improvement.

SAFe offers recommendations and best practices in "SAFe for Government", which contain specific instructions for overcoming these challenges. Since the complexity of such organizations cannot simply be generalized, greater challenges arise in practice and the recommendations of SAFe can only be implemented to some extent at the beginning.

In this use case, the agile approach was to be implemented in a specific area - for a standardized service that is available to all administrative units.

The topics for setting up the service included the development, introduction and operation of a new platform as well as the operation of the existing solution and the migration to the new platform.

One of the biggest challenges was the complexity of the organizational structure. Three different organizations are involved in providing this service, each of which is structured and organized completely differently. In addition, the agile transformation status of the three organizations was at different levels.

The three organizations - how they work

The service for the core functions of the service is provided by an external service provider (first organization). This organization is responsible for setting up, operating and further developing the platform. This service provider is already well advanced in agile transformation and works according to the SAFe method. 

The internal service provider (second organization) integrates the services and is responsible for operational service management. It represents the administration in dealings with external suppliers and bears operational responsibility for execution, particularly with regard to compliance with specifications and the further development of the service. This organization was in the middle of the agile transformation at the start of this initiative.

The third organization is responsible for management and control tasks, in particular for requirements and process management, release management, knowledge management and overarching architecture and technology management. The agile transformation had not yet started in this organization.

Service financing

Operational product and service management, the external service provider and the funds for replacement investments and lifecycles are included in the service tariffs and are passed on to the administrative units by the internal service provider.

One-off expenses for innovations, new functionalities and additional requirements to expand the service are financed centrally by the management and control organization within the scope of available funds.

Budget process

Another major challenge was and is the budget process. The operating expenses for standard services are generally budgeted annually on a decentralized basis by the customers and then invoiced by the service provider. The budget planning of the administrative units follows a clearly defined process with fixed deadlines for budget submission. This contradicts the principles of agile and lean budgeting as described in SAFe.

Agile implementation

In the course of the service development programme, it turned out that the introduction of agile elements along the value stream across the three organizations was more difficult than expected. Although the external supplier was already working according to SAFe, in practice the responsibilities were not clearly defined and sometimes overlapped. The definition and implementation of consistent processes for an agile release train and its interfaces proved to be challenging. In addition, too few people were involved to introduce several agile release trains within or across organizations. The introduction of lean budgeting was also not possible due to the existing processes.

After several meetings, workshops and escalations, a new approach was developed. With the support of internal agile coaches, management and key stakeholders from the three organizations, an agile setup based on SAFe and the agile manifesto was developed in several iterations. The following points were developed in these workshops:

  • Clarification of staffing and the contractual situation for implementation
  • Development of a common vision, mission and goals
  • Creation of a common understanding of the agile setup (target image, roadmap)
  • Definition of cooperation (necessary ceremonies at all levels, e.g. weekly meetings, refinements, system demos, and sharpening of roles)
  • Development of an agile infrastructure with Jira and Confluence, including solutions for media discontinuity between the internal organizations and the service provider
  • Definition of DoR (Definition of Ready) and DoD (Definition of Done)
  • Structure of the backlog
  • Setting dates and ceremonies
  • Training the teams
  • Continuous optimization of the agile setup

Result

The result was the creation of a cross-functional leading team consisting of employees with core functions from all three organizations in the value stream. The leading team is made up of the following roles:

  • Business owner of the service
  • Corporate architect
  • Solution architect
  • Product Manager of Services (internal)
  • Provider Manager
  • Representation of the service provider
  • Epic Owners
  • Technical experts as required
  • Overall managers of the internal organizations (at the start of implementation)
  • Agile coaches
Development of the agile "cross-functional" leading team
Development of the agile "cross-functional" leading team

Requirements management plays an important role within the value stream. Requirements management is central to the further development of the service. In general, this is reflected in the migration of the existing technology to the new platform and the resulting technical requirements. This leading team acts as a steering committee that records and channels all requirements and needs and inserts them into the leading team backlog.
The main task of the leading team is planning and steering. Here, the requirements are consolidated and the "Definition of Ready" (DoR) is determined. Together with the supplier, a cost estimate is prepared and it is checked whether the requirement will have an impact on operations in the future. The requirements are prioritized in collaboration with the customer representatives, either using the SAFe prioritization method (WSJF) or through "prioritization poker". The prioritized features (epics) are then released for commissioning and transferred to the supplier's backlog. After development, the features are approved within the leading team based on the "Definition of Done" (DoD).

Conclusion

The introduction of the Leading Team has noticeably improved collaboration. The stakeholders involved are better informed and coordination between the three organizations is much more efficient than before. Thanks to the clear definition of DoR and DoD and the close involvement of the supplier, the features (epics) can be developed and implemented more efficiently.
With the introduction of the service, the current migrations and the necessary expansion of the service, the workload for all stakeholders involved is high. This highlights existing weaknesses and emphasizes the importance of continuous improvements to the value stream and the associated processes.

One area that can still be optimized in the future is the introduction of lean budgeting. This is challenging due to existing processes, but would further simplify the value stream and support the organization on its path to agile transformation in the long term.


How can atrete help?

We support you in successfully implementing your agile transformation.

Our consultants have many years of expertise in the implementation of agile transformations in various companies. We are happy to bring this experience to you in order to realize your transformation projects efficiently and successfully. Certifications in SAFe SPC, ITIL 4 and project management underline our professional expertise.