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RedevelopingDenversDevelopmentServicesFunctionwith
PurposeandValueAnApplicationoftheTripleBottomLineBalanced
Scorecard

Scott D. J ohnson, PH.D
Executive Vice President, reVision, Inc.

When you l ook at a c i t y, i t s l i ke r eadi ng t he hopes , as pi r at i ons , and pr i de of
ever yone who bui l t i t .
Hugh Newel l J ac obs en

Introduction
Twoobjectivesincreasinglydriveimprovementinitiativeswithingovernmentorganizations,particularlycities.One
isthequestforsustainability,whichseemstoincreaseinimportancedaily.Atthesametime,theseorganizations
areoftenbeingforcedtoreducecostsandexpenditures,andmustfindwaystodomorewithlessmoney.Onthe
surface,thesetwoobjectivesmightseematodds.Itispossible,however,fororganizationstoachieveboth
objectivesconcurrently.
Sustainabilityisnotanewconcept,especiallyforgovernmentorganizationslikecities.Theprovisionofagood,
sustainablelifestylesafe,secureneighborhoods,cleanairandwater,affordablehousingandfood,effective
transportation,etc.isatthecoreofanycitysmissionandstrategy.Unfortunately,manymunicipalitiesdont
takeasystemsbasedviewofthewhole.Instead,theyfocustheirenergyandeffortonindividualshortcomingsof
anunsustainablesystem.Symptomssuchassprawl,spiralinghouseprices,poorwaterqualityandquantity,poor
airquality,crime,andotherstressesroutinelycapturetheattentionofcitycouncils,employees,andthepublic.
Missing,however,isanoverarchingframeworktoguidetheorganizationsplanninganddecisionmakinga
strategiclensthroughwhicheconomic,social,andenvironmentalchallengesareviewedasinterdependentparts
ofthesamesystem.
Pressuretoreducecostscanresultinindiscriminantcutsinserviceandstaff(ashappensmostoften)oritcandrive
motivatedorganizationstoseekthoughtfulimprovementsinefficiencyandeffectiveness.Buthowiseffectiveness
definedforgovernmentalorganizationslikeFederalagencies,cities,counties,andstates?Fortheseorganizations,
theRinReturnonInvestment(ROI)isnotmeasuredindollarsandcents,butratherbyimprovementsinvarious
aspectsofqualityoflife.
Theultimategoalofanygovernmentorganizationistoimprovethequalityoflifeforitscitizens.Qualityoflife,in
turn,canbetranslatedintosomesetofeconomic,environmental,and/orsocial(orequity)benefitsoften
referredtoasthetriplebottomline,orthreeleggedstoolofsustainability.Thus,itstandstoreasonthe
purposeofnearlyallgovernmentagenciesisindeedsustainability(orsubsetofsustainabilityobjectives).This
statementringstrueregardlessofwhetheranorganizationconsidersitselfparticularlygreen.
Oncethesequalityoflifestrategicobjectivesareidentifiedforaparticularorganization,interconnectionsand
interdependenciesimplicitintheorganizationsstrategicobjectivescanbemadeexplicitbyutilizingasystems
basedframeworkliketheBalancedScorecard.Keyperformancemeasurestrackingtheorganizationssustainability
objectivescanthenbeimplementedtochangethewaybudgetsandresourcesareallocated.Onceresourcesare
properlyallocated,performancemeasuresaredevelopedatamoregranularlevelandusedtodriveincentive
structuresandcatalyzeperformanceimprovement.
Redeveloping Denvers Development Services Function with Purpose and Value
By Scott D. Johnson, Ph.D.
3|2010,reVisionInc.

Suchanapproachseamlesslyintegratesboththesustainabilityandcostreductionobjectivesmanygovernment
organizationsface;itpromotesamoreefficientandeffectivedeliveryofservices(reducedcosts,improvedROI,
andincreasedservicelevelsofservice)whileconcurrentlyimprovingqualityoflife.Whiletheseconceptsare
applicableacrossalllevelsofgovernment,theyareperhapsmostrelevanttocities,wheresustainabilityis
immediateandtangibleforcitizensandemployees.TheCityandCountyofDenver(theCity)hasbeenparticularly
successfulinimplementingtheTripleBottomLineBalancedScorecardmethodologylayingthegroundworkfor
significantimprovementoftheDevelopmentServicesfunction.Thispaperfirstdiscussestheunderlyingtenetsof
theapproachandmethodology,andthendelvesintotheCityssuccessfulapplicationofthemethod.
TheChallengeofStrategyImplementation
Fornearly20years,accumulatingamountsofempiricalandanecdotalevidencesuggesttheoverwhelming
majorityofstrategiesfailnotbecausetheyreflawed,butbecauseofpoorimplementation(Mintzberget.al.2005,
pg.32).Inbothpublicandprivatesectors,thistypicallyoccursatmultiplepointsalongthestrategicplanningpath:
Highlevelgoalsetting.Organizationsaregenerallygoodatperformingan(almostritualistic)annual
objectivesettingexercise.Formunicipalities,thisistypicallyanannualcitycouncil/mayoralretreat,
oftenproducingthesame10goalsthateveryothercityinthecountryidentified.Evenwhenthe
objectivesarewellfocusedandunique,however,theorganizationsfinancedepartmentand
budgetingfunctionoftendonthaveaconcretemethodtointegratethehighlevelobjectivesinto
resourceallocationdecisions(a.k.a.operatingbudgetsandcapitalinvestments).
Departmentallinkages.Evenwitheffectivegoalsetting,organizationsoftenfailtoconnecthigher
levelgoalsandobjectivessuchasComprehensivePlans,annualbudgets,etc.(goalsonpaper)with
individualdepartmentprogramsandactivities(actionsontheground).Thedepartmentsarewhere
theworkactuallygetsdone.So,ifcitywideobjectivesarenttranslatedintodepartmentobjectives,
theywonthappen.Thisisparticularlyimportantwhenonegoalissignificantlyinfluencedbyanother
departmentsactivities.Forexample,crimeratesaregenerallythefocusofthepolicedepartment.
However,conventionalpolicinghasverylimitedsuccessinreducingcrime.Infact,ithasbeen
showntobehighlyinfluencedbyfactorssuchasthepresenceofgraffitior,conversely,thesuccessof
graffitiremoval.Butgraffitiremovalisgenerallytheresponsibilityofanentirelydifferentdepartment
intheorganizationsuchasthepublicworksdepartment..
Frontlinestaffengagement.Beyondthedepartmentlevel,organizationsoftenlackaneffective
processtoengageandencouragefrontlinestafftheverypeoplethatwouldhavetodowork
differentlyinordertoachievetheobjectives.
Toovercomethechallengesofstrategyimplementation,theorganizationneedsasolidframeworktoachievethe
goalofmakingitshighlevelobjectivesintoeveryoneseverydayjob.
WhatisaBalancedScorecard(BSC)?

ThefirstcomponentoftherequiredframeworkisamodellinkingtheCitysmissionwithspecificstrategic
outcomes.Figure1providesanillustrationofthestepsalongthisstrategicpathway.

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Redeveloping Denvers Development Services Function with Purpose and Value
By Scott D. Johnson, Ph.D.
7|2010,reVisionInc.

DenversNeedtoRedeveloptheDevelopmentServicesFunction
Foraperiodwellover15years,thedevelopmentfunctioninDenver(relatetoconductingdevelopmentreviews,
issuingpermits,performinginspections,etc.bytheCity)wasseenasbroken.Multiplestudiesweredeveloped
onthetopic;manyinitiativeswereundertakentocorrecttheproblems.Ingeneral,eachoftheinvestigationscame
toasimilarrangeofconclusionsregardingtheproblems.
Despitemuchagreementontheproblems,identificationandimplementationofsolutionsprovedelusive.While
eachoftheprioreffortsresultedinmarginalimprovementstothedevelopmentservicesprocessesand
organization,noneofthemmadeabigenoughimpactforthecustomertoseeadifferenceintheoldwayofdoing
business.Onekeyfactorforthiswasthelackofaframeworkandmeasurementsystemfocusedondriving
businesssuccess(happycustomers,fasterthroughput,lowercosts,etc.)whilesimultaneouslyengagingthestaff
responsibleforimplementingchanges(staffverycommittedtomaintainingthesafetyofbuildings,positive
aesthetics,provisionofparksandopenspaces,andthelike.)
In2007,theCityembarkedonthecurrentproject,seekingtoaddresstheprioreffortsshortcomingsbyaltering
theapproachanddrivingchangefromwithin.Majortenetsoftheprojectwereasfollows:
Focuswasonpeople,process,andmeasuresfirstnottechnology.
Peopleintheorganizationweretrainedinorganizationalimprovementtoolandmethods,andthenthey
identifiedthebetterwaysofdoingbusiness(ofcoursewithsomehelp).
Smallteamswereleveragedtoidentifytheproblemswithcurrentprocessesandsystems.
Organizationalchangeswerenotmadeuntilaftertheprocessissueswerewellunderstoodandaclear
pathwaytofixingthemwasestablishedformfollowsfunction.
Thenewwaysofbusinessweredocumentedsoemployeesknowexactlywhattodo.
And,mostimportantlytotherelevanceofthispaper
ATripleBottomLineBalancedScorecardframeworkwasleveragedtodrivetherightkindofchange.
Notyetfullycompletedatthetimeofthiswriting,thecurrenteffortisproducingstrongpositiveimpact.Initial
commentsfromdevelopersindicatetheycanalreadythatthingsaredifferentthistime,theCitystaffisexcited.
Thedifferenceisthebroaderapproach,anddrivingchangefromwithin.
RoleoftheTBLScorecardintheOrganizationalRebuildingProcess
WhyistheTripleBottomLineBalancedScorecardsocriticaltotheCityschangeeffortsuccess?
Aswithprivatesectororganizations,governmentorganizationsshouldbedesignedtodeliverefficientand
effectiveservices,buttheyalsomustdeliveronbroaderqualityoflifeTripleBottomLineobjectives.Inthecase
ofthenewlycreatedDevelopmentServicesAgencyfortheCityandCountyofDenver,theneedwastomeetthe
businessobjectivesof:dramaticallyimprovedcustomerservice,fasterresponse/throughputtimes,andclear
STRATEGY MAP
The strategy map is a logical and comprehensive architecture for describing an organizations strategy
something that creates a common and understandable point of reference for all employees. The measurement of
cause-and-effect relationships in strategy maps show how intangible assets are transformed into tangible
outcomes. Put another way, they show how short-term efforts and investments in people and processes can be
translated into long-term value (Kaplan and Norton, 2004, pgs 9-14).
Redeveloping Denvers Development Services Function with Purpose and Value
By Scott D. Johnson, Ph.D.
8|2010,reVisionInc.

transparencyandpredictabilityfortheentireendtoenddevelopmentprocesswhilesimultaneouslyensuringa
builtenvironmentthatmanifeststheenvironmental,social,andeconomicgoalsoftheCity.
TheTripleBottomLineprovidesthecriticalcontext,rules,andboundaryconditionsfortheprocessimprovement
effort.WithoutaclearunderstandingoftheCityslargerobjectivesandboundariesfordevelopment,thefixwould
beeasy:Giveusthemoney,andwewillgiveyouapermittobuildthatsit,weredone!Butwhatkindof
Denverwouldwebebuilding?Likely,itwouldnotbesafe,oraestheticallypleasing,oreasytogetaroundin,or
containanypublicspaces.
Furthermore,thevariousCitydepartmentsarestaffedalmostentirelywithpeoplewhoseprimaryresponsibility
wastocreateorprotectsomequalityaspectoftheenvisagedDenver.Theirentirereasonforbeingistoensure
that:buildingsarefiresafe,theyhaveelectricalandmechanicalsystemsthatactuallywork,architecturaland
historicallandmarksareprotected,AmericanswithDisabilitiesActrequirementsaremet,parkwaysactuallylook
likeparkways,waterdrainsoffwhenitrains,andsoon,andsoon.
Whentheprocesses,procedures,andsystemsarenotinplacetoclearlyidentifytherules,eachstaffmemberis
forcedtoprovidetheirowninterpretation.Eachdidsoabitdifferently.Conflictsbetweenindividuallyinterpreted
departmentobjectivesbecameprojectbottlenecks.FormanyCitystaff,theyperceivedtheonlywaytoprotectthe
greatergoals(astheyinterpretedthem)wastoslowthewholeprocessdowntoacrawl.
TheresultwasnotanimprovedbuiltenvironmentfortheCity,butinsteadpoordevelopment,doneslowly,witha
confusedandunhappydevelopmentcommunity.
Withoutobjectivesthatareactuallymeasuredwecannotmanageorincentivizeeitherthebusinessobjectives
(AREourprocessesefficient?AREweprovidinggoodresponsetimes?AREcustomershappywithour
communication?etc.)ortheTripleBottomLinebenefitstotheCity(e.g.,AREwereallypreventingfiredeaths?DO
theparkwaysreallylooklikeparkways?DOESthewaterreallydrain?etc.)Thus,theTripleBottomLine(TBL)
BalancedScorecard(BSC)providesthecriticalframeworktomeasure,control,manage,andincentivizeallofwhat
theorganizationexiststodo.
BuildingandImplementingaTripleBottomLineBalancedScorecard
forDenversDevelopmentServicesAgency:theProcess
TheTBLBSCdevelopmentprojectwasacomponentpartofamuchlargerBusinessProcessImprovement(BPI)
effortfortheDevelopmentServicesfunction.Thisinvolvedprocessdocumentationandimprovement,policy
analysisandupdating,aswellasorganizationalchange.TheTBLBSCprovidesthecriticalcontextforimprovement
efforts.Itallowsustoanswerthequestionwhatareweactuallytryingtoachieve?repeatedly,asweseekto
improveprocessestoimprovethroughput,transparency,customerservice,andtheoverallconditionsintheCity.
AsthescorecardwasneededimmediatelytoprovidecontextforthelargerBPIeffort,itwasnecessarytoget
somethingonpapertoprovideearlyguidanceanddirection.Thefirststep,therefore,wastodraftupastraw
manscorecardtogettheballrollingonprocessimprovement.Suchearlyguidanceanddirectionproved
invaluable.
BuildingaFoundation
Beforeastrawmanscorecardcouldbeformulated,however,asharedfoundationofunderstandingaroundthe
neworganizationsbroaderpurposeneededtobeestablished.Thus,Mission,Vision,andValuesweredraftedfor
thenew(tobe)DevelopmentServicesorganization.
Todoso,ateamofmiddleandseniormanagerswasformed,representingvariousfunctionslikelytobeincludedin
theneworganization.Inparallel,thereVisionconsultantreviewedvariouspertinentCityanddevelopmentrelated
documentationandcreateddraftmissionandvisiondocuments.Thenewteamvettedandeditedthedraft
documentsandbrainstormedvaluesinasmallseriesofshort,highlyproductiveworkshops.Finalworking
documentswereachievedwithinacoupleofweeks.Figure5providestheresults.
Redeveloping Denvers Development Services Function with Purpose and Value
By Scott D. Johnson, Ph.D.
9|2010,reVisionInc.

Figure5
DenverDevelopmentServicesMission,Vision,andValues

DevelopmentofaHighLevelStrawManStrategyMapofScorecardObjectives
OncetheMission,Vision,andValuesweredefined,strawmanscorecardobjectiveswerereadytobedeveloped.
Theteamreconvenedinadditionalshortworkshopstodeveloptheinitialstrawmanscorecard,whichwouldguide
preliminaryprocessimprovementefforts.
EducationalworkshopsfacilitatedbytheconsultantprovidedtheteamwithaprimerontheBalancedScorecard
andtheTripleBottomLinevariation.Armedwiththenewinformationandacommonvernacular,theteamthen
brainstormedinitialobjectivesandmeasuresfortheorganization.Injustacoupleveryproductive1.5hour
workshops,theteamdevelopedasolidsetofpotentialTripleBottomLinescorecardobjectives.Theobjectives
wererefinedintoahighlevelscorecardusedtoguidetheBPIProjectthroughthefirststageofimprovement
efforts,asseeninFigure6.Withoutthisstrawmanscorecardasaguide,discussionswouldhavebeenmuch
morechallengingtokeeponpointwhenattemptingto:a)identifyandprioritizeafewmajorprocessareasfor
PhaseIimprovementefforts,andb)guidetheteamsinidentifyingexactlywhattheimprovedprocesseswere
intendingtoachieve.Withthescorecardinhand,thosedebateswerewellframed.
Vi si on
Mi ssi on
Val ues
DenverDevelopmentServicesplaysacriticalroleinDenverssuccessbyfacilitatinghighquality,
sustainabledevelopment thatpromoteslivability,diversity,andaccessibilityinourneighborhoods and
communities.
DenverDevelopmentServicesensuressafe,sustainabledevelopment, enhances qualityoflife,
promoteseconomicvitality,andexcelsincommunity andcustomerservice.
Dedicationtoservingthe public
Safetyandintegrityofourcommunity
Predictable,fairinnovative,andtransparentprocesses
Teamwork,problemsolving,andcontinuingeducation
Thoughtfullybalancingtheperspectivesofourvariousstakeholders
Clearandconsistentcommunicationwithemployees andstakeholders
Redeveloping Denvers Development Services Function with Purpose and Value
By Scott D. Johnson, Ph.D.
10|2010,reVisionInc.

Figure6
InitialStrawManDenverDevelopmentServiceScorecard/StrategyMap

IdentificationofCitywideStrategicThemes
Asnoted,theBSCmethodisaneffectivewaytoalignabusinessunitordepartmentsobjectiveswiththoseofthe
largerorganization.Suchalignmentisdonethroughidentifyingstrategicthemesforthelargerorganization,then
thenthroughforgingalignmentbetweenthedepartmentobjectivesandoverarchingstrategicthemes.
ToidentifytheCitywidestrategicthemes,anevaluationwasmadeofexistingcitywidestrategydocumentation.In
thiscasethecurrentstrategicvisionfortheCitywascapturedinthemostrecentMayorsRetreat
documentation.Thedocumentationidentifiedseveralgoalsandstrategicoutcomes,whichwereeasily
consolidatedintotwooverarchingstrategicthemes.Theoriginalobjectivesandstrategicoutcomesfromthe
retreataswellasthetwoconsolidatedstrategicthemesareidentifiedinFigure7.
Dedication
toserving
thepublic
Safetyand
integrityof
our
community
Predictable,
fair,innovative,
andtransparent
processes
Teamwork,
problemsolving,
&continuing
education
Thoughtfully
balancingthe
perspectives
ofour various
stakeholders
Clearand
consistent
communication
withemployees
&stakeholders
VI SI ON Denver Development Servicesplaysa
criticalroleinDenverssuccessby facilitatinghigh
quality,sustainabledevelopment thatpromotes
livability,diversityandaccessibilityinour
neighborhoods andcommunities.
MI SSI ON Denver Development
Servicesensuressafe,sustainable
development,enhancesqualityoflife,
promoteseconomicvitalityandexcelsin
communityandcustomerservice.
COMMUNITY
NEEDS
COMMUNITY
EXPECTATIONS
CONDITIONS
toimprove
TRIPLEBOTTOM
LINE
Results
PROCESSES
TOIMPROVE
EFFECTIVE
PROCESSES
AGENTS
ofchange
PEOPLE
KNOWLEDGEBASE
TOOLS
V A L U E S
identify
d
e
t
e
r
m
i
n
e
bringout
a
s

d
e
t
e
r
m
i
n
e
d

b
y
e
m
p
o
w
e
r
deliver
d
r
i
v
e

c
h
a
n
g
e

t
o
change
observed
Safe,
Sustainable
Denver
Satisfycustomersbysupporting them
throughtheprocessandproviding
timelyandclearfeedback
Neighborhoodcharacter
andcommunityvitality
Stormand
wastesystems
thatare
effective&
sustainable
Ensureparks,
greenspace
andtreesare
protected/
enhanced
Safeand
efficient
transp.system
Promote
economic
development
with
development
thatis
consistentwith
theCitys
vision
Incorporate
community
benefitsinto
development
Safe
Communities
Preservethe
historic
characterof
Denvers
neighborhoods
Efficient
Processes
Processesthataretransparentand
predictable
Efficientandeffectiveapplicationofbuildingand
developmentcodes
Welltrained,skilledandinformedemployees
Empowered,problemsolvingemployees
Employeeshavefulfillingcareers
Employeeswhovaluecontinuous improvement
EconomicVitality
Redeveloping Denvers Development Services Function with Purpose and Value
By Scott D. Johnson, Ph.D.
11|2010,reVisionInc.

Figure7
CityofDenverStrategicThemes

ChangeorientedThematicGoal
WhilethelongtermstrategicthemesidentifiedinFigure7representthestandardoperatingobjectives,
sometimesitiseasiertomotivateteamswithashorterterm,changeorientedgoal.Lencioni(2006,pg.165)
observedthatwhileitiseasiertoalignstaffandmotivatepeoplewhenthereisacrisis,onecanidentifyonesown
single,temporary,andqualitativerallyingcrysharedbyallmembersoftheleadershipteam(Lencioni,2006,pg.
179).Hecallsthisathematicgoal.TheCitysthematicgoalorrallyingcrywastostandupagreat
developmentservicesorganization.
Ultimately,alltheprojects,programs,andinitiativesundertakentostandupagreatdevelopmentservices
organizationareforthepurposeofachieving(oneorbothof)thetwooperatingstrategicthemes.Therefore,the
thematicgoalwassubsumedintothestrategymapsforthetwothemes(especiallytheprovideexcellent
customerservicewhilelivingwithinourmeanstheme),ratherthanindependentlymapped.
ScorecardTeamIdentifiedandStoodUp
AdedicatedBalancedScorecardteam,withmembershipslightlydifferentthanthemission/vision/values
developmentteam,wasformedtoutilizetheidentifiedstrategicthemesandshorttermthematicgoalinrefining
thehighlevelstrawmanstrategymapandidentifyingspecificmeasuresforthefinalscorecard.Thisnew,
dedicatedBSCteamwascomposedofthemostbroadmindedthinkersfromthelargerprocessimprovementteam
andrepresentedawidecrosssectionoffunctionalskillsets.Representationincluded:planning,inspections,fire
safety,projectcoordination,transportation,waterinfrastructure,andothers.Representativesweregenerally
frontlinemanagersorcontributors.Theteammetbiweeklyfor1hourcoordinationmeetingsoveraperiodof
severalmonths;mostworksessionsandresearchwasconductedoutsideofthemeetings.Theteamsupervised
andcontributedthemajorityofcontentforallfollowingstepsintheBSCinitiative.
ReviewofallExistingStrategyorPlanningDocuments
TheCityhadgeneratedmanydocumentsoverrecentyears,containinggoals,objectives,andeventargetsfor
improvingconditionsin,orperformanceby,theCity.Intheircurrentformtheygenerallyrepresentedlittlemore
thanawishlistofhowthefutureoftheCitycouldlook.Withoutthepowerofperformancemeasurementand
management,thereisnoengineforimprovement.Astheteamwasnowintheprocessofbuildingthatengine,it
wasimportanttoconsiderallofthesepreexistingdocumentedobjectivesinthedevelopmentoftheDepartments
Vibrantanddynamiceconomygroundedin
industriesofthe future
Peopleleadhealthyandsuccessful lives
Safercommunities
Qualityculturalandrecreational
opportunities forall
Efficient,diverse,andaccessible
transportationsystem
Environmentalstewardship
BetterPlacetoLiveand
CreateJobs
Motivated,diverse,andpreparedworkforce BetterPlacetoWork
MakeDenvera
BetterPlaceto
Work,Live,and
Visit
Obj ec t i ves Goal s
Consol i dat ed
Themes
Highestqualitycustomerservice
InternalprocessesthatenablestheCityto
achieveitsgoalsefficientlyandeffectively
CustomerService
ProvideExcellent
CustomerService
WhileLiving
WithinourMeans
Prudentfiscalstewardship LiveWithinOurMeans
Redeveloping Denvers Development Services Function with Purpose and Value
By Scott D. Johnson, Ph.D.
12|2010,reVisionInc.

finalstrategymap/scorecard.Tofacilitateconsideration,theteamidentifiedalistofdocumentsexpectedto
containimplicitorexplicitgoals,objectives,and/ortargetsforperformanceorconditionswithintheCity.The
resultinglistofdocumentsisprovidedinFigure8.
Figure8
CityofDenverDocumentsContainingObjectives,Targets,orMeasures

ConsolidationandWinnowingofObjectives
Subteamswereassignedthelargerlistofdocumentsforreview.Theythencompiledacomprehensivelistof
goals,objectives,ortargetscontainedwithin.Sincethefulllistcontainedmanyduplicateorcloselyrelatedgoals,
anaffinitymappingprocesswasusedtoidentifyopportunitiesforconsolidation.Thegoalswerealsogrouped
intocategories,basedprimarilyonthehigherlevelgoalsidentifiedintheMayorsretreat.
Twoteammembersbuiltatableoftheconsolidated,combined,and/orrewordedobjectives.Theseformedthe
basisofthestrategymappingprocess(describedbelow).Giventhecontent,twolevelsofobjectives(i.e.,macro
objectivesandobjectives)weredeveloped.Themajorityofmacroobjectivesweretakenverbatimfromthegoals
oftheMayorsretreat.Objectiveswerethengenerallysortedasasubsetofthemacroobjectives.
BuildStrategyMapsforBothStrategicThemesandIdentifyPotentialMeasuresfortheKeyObjectivesinthe
Maps
Oncethelistofpotentialmacroobjectivesandobjectiveswascomplete,itwastimetolookforthelinkageswhich
wouldindicatethemostcriticalobjectivestobeincludedinthenewstrategymap.Asnotedabove,twostrategic
themeswereidentifiedfortheCity.Strategymapswerebuiltforeachstrategictheme,linkingthestrategic
objectives:
OngoingoperatingorbusinessobjectivesarerepresentedintheintheProvideExcellentCustomer
SatisfactionWhileLivingwithinourMeansstrategictheme.
BroaderconditiongoalsandboundaryconditionsfortheDepartmentseffortsareidentifiedintheMake
DenveraBetterPlacetoLive,Work,andVisitstrategictheme.
StrategymapsforeachthemearepresentedbelowinFigures9and10.
2009BudgetBook
BicycleMasterPlan
BlueprintDenver
Denver2000ComprehensivePlan
Greenprint Denver
MayorsRetreatStrategicFrameworkDocument
I dent i f i ed
Doc ument s
ParksandRecreationPlan
PedestrianMasterPlan
SanitaryMasterPlan
StrategicTransportationPlan
WaterQualityMasterPlan
Redeveloping Denvers Development Services Function with Purpose and Value
By Scott D. Johnson, Ph.D.
13|2010,reVisionInc.

Figure9
StrategyMapsfortheTwoDenverStrategicThemes:Theme1ProvideExcellentCustomerServiceWhileLiving
WithinourMeans
Satisfycommunityneeds&expectations
Mayor
DeveloperCommunity
Customers
CityCouncil
Cust omer
Condi t i ons
Pr oc ess
Lear ni ng
and
Gr owt h
Deliverexcellentcustomerservice
Mayor
DeveloperCommunity
Customers
CityCouncil
ImproveDSthroughputascontributiontoeconomy
Supportfacilityredevelopment &reuse
Contributetoinfrastructurevalue&communitybenefits
Developmentaddstooverall
EconomicHealth
Motivated,diverse,preparedworkforce
Providetrainingtocreatewelltrained, problemsolving
workforcefocusedoncustomerneeds
Developaprogramtoattractskilledworkers
Empoweremployees
Monitoremployeesatisfaction
Leveragetechnology
Highlevelsoftransparency&communicationwithcustomers
MakeDSprocessesclear&understandable
Improveormaintainresponsetoinquiriesregarding
developmentprojects
Enhancecommunicationsystems&tools
Simplefeestructure
Employeeempowerment throughpolicychangesorregulation
adoption
Initiativestobuild
agreatDSorganization
Safebuildingsandcommunities
Efficient,effectiveapplicationof
building&developmentcodes
Efficient,effectivedevelopment
Projectsgetbuilt
Encourageefficient waystoensureprojectsprovide
communitybenefit
Permitthroughputefficiency
Improvetransparency&communicationfor&withothers
Createmasterprocessandproceduredocument
InternalprocesseshelpCityprovide
excellentcustomerservice&contributevaluetoregionaleconomy

14|2010,reVisionInc.

Figure10
StrategyMapsfortheTwoDenverStrategicThemes:Theme2MakeDenveraBetterPlacetoLive,Work,andVisit

Cust omer
Condi t i ons
Pr oc ess
Lear ni ng
and
Gr ow t h
Satisfycommunityneeds&expectations
Mayor
Externalfunding
agencies
Citizens
CityCouncil
Preserveunique/historiccharacter &structures
Providevariedcharacter&scaleinpublicspaces
Provideopenspaces&trees
Eliminateinfrastructuregaps&mismatcheswithin
AreasofChange
Protect&enhancecharacter:
parks,neighborhoods,&connections
Efficient,diverse,safe
transportationsystem
Facilitatecompactmixedusetransitdevelopment
Constructbikelanes/sharrows
Createsafepedestrianenvironmentatintersections
Improvetransitstationandbusstopenvironments
Managecongestion:improveexistinginfrastructure
Effective,sustainable
storm&wastesystems
Onsite/regionalstormwater management
approach
ImplementLIDstandards
SouthPlattecleanwaterensured
Findwaytobuildregionalwaterquality
infrastructure
ResourceConservation
Complywithstormwater dischargepermit
ComplywithCleanAirAct&controlfugitivedust
Promoteconstructionmaterialsrecyclingandreuse
Conservewaterthroughirrigationmgmt.&water
smartmaterials
Providesustainablelivingopportunities
Visionconsistent
economicdevelopment
Createeconomicallyviableneighborhoods
ExploreopportunitiestoimproveCityownedoffstreetparking
Sustainhealthyneighborhoodbusinessdistricts
Expeditesmallbusinessstartupandspecialprojectinspections
Incorporatecommunitybenefits
intodevelopment
Economicallyviableneighborhoods
ImplementadoptedCityPlans
Promotesafercommunitythroughdevelopmentreview
Preserveneighborhoodcharacterthroughshapingpublicrealm.
Encourageparkingmanagementstrategiesindevelopment
approvalprocess
InternalprocesseshelptheCityachievelivability
goalsefficientlyandeffectively
Incorporatequalityoflifeconditionobjectivesintoprocesses
Fiscal&taxstrategies
Businessfriendlydevelopmentfeesystem
Alternativemeansofincreasedfunding
Welltrained,problem
solvingworkforce
Empowermentthroughpolicy
changesorregulationadoption
Fulfillingcareers
New
programs
Motivated,diverse,
preparedworkforce
Developprogramtoattract skilledworkerpipeline
Motivated,diverse, preparedworkforce
Welltrained, problemsolving,customerfocused
Skilledandinformedemployees
Satisfiedemployees
Safebuildings&communities
Efficient,effectiveapplicationof
building&developmentcodes

15|2010,reVisionInc.

Figure11describeshowcausalchainconceptualizationisusedtocreatestrategymaps.Whilethelogicinthe
figureflowsforward,whenbuildingastrategymaponestartswiththeendinmind.Specifically,theteamstarts
withconditionsandperceptionstargetedforimpactandthendetermineswhichprocessesandinturnwhat
learningandgrowthisrequiredtodrivethoseprocessimprovements.
Figure11
CausalChainLinkageExample

IdentifytheActualPerformanceMeasurestoTracktheObjectives
Foreachoftheobjectives,oneormoreactualmeasureswereidentifiedthatcouldbemonitoredovertime.The
exampleillustratedinFigure11includesactualmeasuresinordertoshowhowthesegivelifetotheobjectives.
Identificationofactualmeasures(ormetrics)isharderthanitmightsound.Whileitisonethingtosaythatwe
wanttoincreaseopenspace,itisquiteanothertoidentifyacosteffectiveandusablemeasurerepresentativeof
thespecificdomain.Thiswasaniterativeprocess,completedforallobjectivesinbothstrategymaps.Initial
measuresbrainstormedbytheteamwereresearchedbyindividualstodeterminetheirpracticalityforongoing
measurementanduse.Oftentherewasanexistingmeasurewhichwasdifferentbutclosetotheone
identified.Inalmostallcases,theexistingmeasureservedasthedefault.Itsalsoachallengetofindtheperfect
numberofmeasures;oftennosinglemeasurecanrepresentthecompletedomaindescribedintheobjective,but
toomanymeasurescansinkthescorecardeffort.Inordertoavoidthetoomanymeasureschallenge,one(or
perhapstwo)proxymeasureswereidentified.TheCitysresultingsetofmeasuresforthescorecardsfirst
generationisdocumentedinFigure12.
ThefinalBuildaDetailedTableofthePerformanceMeasurestobeTracked
Thefinalstepafterthespecificmeasureswereverifiedwastodevelopatableidentifyingspecificattributes
regardingeachmeasure.Datatobecapturedincludeswhichmeasureswillbetrackedinyearone,whowillcollect
thedata,wherethedataislocated,accuracyrequired,periodofcollection,etc.Anabbreviatedversionofthe
tablewithaselectionofscorecardmeasuresselectedfortheDenverDevelopmentServicesAgencyisincludedin
Figure12.
1. Employeesinformedbyastudy identifyingthegapsinthe currentmultimodaltransportation
network(e.g.,gapsbetween biketrails,lackoflinkagebetweenbike andbus routes,etc.)
LearningandGrowth
IfDenversobjectiveistocreateanefficient,diverse,and safetransportation system
2. Implementingdevelopmentreviewprocesses andprocedureswhichencouragedevelopment
projectstoclosethosegaps.Process
Should lead to
3. Reducethenumberofgapsandincreasenonmotorized meansoftravel.Conditions
Whichshould, inturn
4. Resultingincitizenshappywith transportationoptions inthe city.Customers
Thereby

16|2010,reVisionInc.

Figure12
DetailedPerformanceMeasuresTable
Obj ec t i ve Per f or manc e Measur e
Measur e
Fr equenc y Dat a Sour c e
Di f f i c ul t y
t o Obt ai n
Customer,Stakeholder,andLegitimizingAuthorities
Satisfycommunityneedsandexpectations Annualcitizensurvey annually Mayorsoffice M
DeliverExcellentCustomerService DevelopmentServicesOnlinecustomersatisfaction
survey
quarterly DSDirectorsoffice M
Conditions
DevelopmentinDenveroccursefficientlyand
effectively
Percentofprojectthatarestartedgetfinished annually DSProjectCoordinators M
Efficient,safe,anddiversetransportationsystem Numberoftransportationnetworkgapsclosed annually DSProjectCoordinators M
DevelopmentinDenveraddstooverallEconomic
HealthofCityandRegion
#ofprospectiveprojectsonwhichDSprovides
specialsupporttoOfficeofEconomicDevelop.
annually DSProjectCoordinators M
$valueofprojectsbuilt/yr annually DSProjectCoordinators M
Environmentalquality,energy,andnaturalresource
conservation
NumberofprojectsdesignedtomeetLEEDcriteria annually DSProjectCoordinators M
Safebuildingsandcommunities Passratesonfiresafetyinspections annually DSProjectCoordinators H
Process
InternalprocessesthathelptheCityachieveits
livabilitygoalsefficientlyandeffectively
Projectreviewturnaroundandthroughputtimesby
keyphases
Monthlyor
Quarterly
DSProjectCoordinators M
Personhoursperpermitbycategory(ordollarsof
permitteddevelopmentbycategory
Annually DSDirectorsoffice MH
InternalprocessthathelptheCityachieveits
livabilitygoalsefficientlyandeffectively
%ofprojectsthatimplementinnovative
ideas/solutions/methods,etc.
annually DSProjectCoordinators MH
LearningandGrowth
Reviewandupdatestandardsandsystems NewDSmanualcomplete 75%,90%,and
complete
DSDirectorsoffice L
Motivated,diverse,andpreparedworkforce Employeesatisfactionsurvey annually HRdept. L
Trainingcoursesprovidedinnewmethodsand
attendance
annually DSDirectorsoffice H
Welltrained,problemsolvingworkforce %ofDSstaffinvolvedinactivelywritingand
improvingproceduresandpolicies
annually DSDirectorsoffice M

17|2010,reVisionInc.

RevisetheStrawmanintoFinalHighLevelStrategyMap
Oncethespreadsheetwaspopulatedtheoriginalhighlevelstrawmanscorecardwasupdatedtoitscurrentand
finalversion,asseeninFigure13.Thisallowedaonepage,highleveldiagramillustratingtheoverallstrategymap
/scorecardconceptfortheCitytobeeasilydisseminated.
Figure13
FinalSummaryDenverDevelopmentServicesScorecard/StrategyMap

CommunicatetheScorecardandIntegrateintoOperations
Thesummaryscorecardhastwokeyuses.
Internalmanagement(rewardsystems,allocationofresources,etc.).Thebusinessrelatedmeasures,many
collectedonamonthlyorquarterlybasis,areprovidedtoallmanagerssotheycanmakeongoing
adjustmentstooperationsandensureprocessimprovementinitiativeeffectiveness.AllAgencystaffwillbe
trainedinthescorecardandhowitappliestotheirdailyresponsibilities.
Externalcommunicationtocitizensandstakeholdersasaperiodicreportcard.Inaddition,Businessrelated
measuresandthebroadertriplebottomlinemeasureswillbeprovidedinanannualStateoftheAgency
Report,providingexternalcommunicationontheAgencysperformance.
ConclusionandPathForward
TheTripleBottomLineBalancedScorecardprovidedthefoundation,andasignificantdriver,forperformance
improvementacrossboththeCitysqualityoflifeaswellasbusinessobjectives.Othercriticalongoingactivities
include:
CompletingthenewtobeprocessesfortheAgency
Dedication
toserving
thepublic
Safetyand
integrityof
our
community
Predictable,
fair,innovative,
andtransparent
processes
Teamwork,
problemsolving,
&continuing
education
Thoughtfully
balancingthe
perspectives
ofour various
stakeholders
Clearand
consistent
communication
withemployees
&stakeholders
VI SI ON Denver Development Servicesplaysa
criticalroleinDenverssuccessby facilitatinghigh
quality,sustainabledevelopment thatpromotes
livability,diversityandaccessibilityinour
neighborhoods andcommunities.
MI SSI ON Denver Development
Servicesensuressafe,sustainable
development,enhancesqualityoflife,
promoteseconomicvitalityandexcelsin
communityandcustomerservice.
COMMUNITY
NEEDS
COMMUNITY
EXPECTATIONS
CONDITIONS
toimprove
TRIPLEBOTTOM
LINE
Results
PROCESSES
TOIMPROVE
EFFECTIVE
PROCESSES
AGENTS
ofchange
PEOPLE
KNOWLEDGEBASE
TOOLS
V A L U E S
identify
d
e
t
e
r
m
i
n
e
bringout
a
s

d
e
t
e
r
m
i
n
e
d

b
y
e
m
p
o
w
e
r
deliver
d
r
i
v
e

c
h
a
n
g
e

t
o
change
observed
Satisfycommunityneedsand
expectations
Deliverexcellentcustomerservice
Stormand
wastesystems
thatare
effective&
sustainable
Ensureparks,
greenspace
andtreesare
protected/
enhanced
Efficient,
diverse,and
safetrans.
system
Promote
economic
development
with
development
thatis
consistentwith
theCitys
vision
Incorporate
community
benefitsinto
development
Safebuildings&
communities
Preservethe
historic
characterof
Denvers
neighborhoods
Efficientandtransparentprocessesthat
provideexcellentcustomerserviceand
contributetoregionaleconomy
Processesthathelpthecity
achievelivabilitygoals
Efficientandeffectiveapplicationof
buildinganddevelopment codes
Fiscalandtax
strategies
EconomicVitality
Development
occurs
effectivelyand
efficiently
Environmentalquality, energy,and
naturalresourceconservation
Development
addstooverall
healthofcity
andregion
Newprogramsto
buildagreatDS
organization
Reviewandupdate
standards,processes,
andsystems
Motivated,
diverse,prepared
workforce
Welltrained,problem
solvingworkforcefocused
oncustomerneeds
Redeveloping Denvers Development Services Function with Purpose and Value
By Scott D. Johnson, Ph.D.
18|2010,reVisionInc.

ComprehensivelydocumentingprocessesintheDevelopmentServicesManualandwebsite
Providingtrainingforthewebsite,scorecard,andnewprograms
Supportingandfinetuningtheneworganizationalstructure.
Tofullyimplementthescorecardsomeadditionalactionsarealsorequiredgoingforward.Thisincludes:
Collectionandmanagementofthroughputandcustomersatisfactionmeasuresonaperiodicbasis.
Integrationintoindividualstaffplans.
Usebymanagement,atalllevels,tofurtherfinetuneimproveprocessesandcustomerservice.
AnnualpublicationofaStateoftheDevelopmentServicesAgencyReport.

OurhopeisthattheTripleBottomScorecardwillbeexpandedtoadditionaldepartmentsandagenciesintheCity
and,ultimately,toalloftheCity.Thismodeliswidelyapplicabletoalmostanygovernmententity.

19|2010,reVisionInc.

References
AIA,2003,DenversDevelopmentReviewProcess:CanitbeFixed?34pps.
Elkington,J.1994,"Towardsthesustainablecorporation:Winwinwinbusinessstrategiesfor
sustainabledevelopment."CaliforniaManagementReview,vol.36,no.2:90100
Elkington,J.1998.CannibalswithForks:theTripleBottomLineof21
st
CenturyBusiness.Oxford:Capstone
PublishingLimited.
Johnson,ScottD.1998.IdentificationandSelectionofEnvironmentalPerformanceIndicators:Applicationof
theBalancedScorecardApproach,CorporateEnvironmentalStrategy,summer,PRIPublishing,Metuchen,New
Jersey.
Abbott,R.,Johnson,S.,andDieckhoner,T.,2002EmbeddingSustainabilityintheBusinessofCityGovernment,
proceedingsofCanadianSocietyofEcologicalEconomics(CANSEE)Conference2003.
Kaplan,R.S.andNorton,D.P.2004.StrategyMaps,Boston:HarvardBusinessSchoolPublishingCorporation.
Kaplan,R.S.andNorton,D.P.2001.TheStrategyFocusedOrganization:HowBalancedScorecardCompanies
ThriveintheNewBusinessEnvironment.Boston:HarvardBusinessSchoolPress.
Kaplan,R.S.andNorton,D.P.1996.TheBalancedScorecard:TranslatingStrategyintoAction.Boston:Harvard
BusinessSchoolPress.
Kaplan,R.S.andNorton,D.P.1993.PuttingtheBalancedScorecardtoWork,HarvardBusinessReview,
September/October,Cambridge,MA.
Kaplan,R.S.andNorton,D.P.1992.TheBalancedScorecard:MeasuresthatDrivePerformance,Harvard
BusinessReview,January/February,Cambridge,MA.
Lencioni,Patrick,Silos,2006,Silos,Politics,andTurfWars,SanFrancisco,CA,JosseyBass.
Mintzberg,Henry,Ahlstrand,Bruce,andLampel,Joseph,2005,StrategyBitesBack,PrenticeHall,UpperSaddle
River,NewJersey.
Niven,PaulR.,2003,BalancedScorecardforGovernmentandNonprofitAgencies,HobokenNewJersey:John
WileyandSons.

i
Financial measures, for example, are lagging indicators that report on the consequences of past actions. Exclusive
reliance on financial indicators promoted short-term behavior that sacrificed long-term value creation for short-term
performance (see banking and mortgage crisis of 2008/2009 for an example from the private sector)

ii
Note: Kaplan and Norton (2001, 136) use the term value and benefit of service to address what is here called
quality of life. The State of Washington in its application of the BSC has adopted the same language. The
measures used for this category will be conditions.

iii
Such an expansion was recommended in J ohnson (1998), and is consistent with stakeholder theory and Kaplan
and Norton (2001, 136) who recognize legitimizing authorities as a target stakeholder group whose support and
satisfaction are required for success in the public sector.