Municipal Reference Model (MRM) – Version 2 (v2)
Municipal Reference Model Definitions – A Glossary
Introduction
One of the key advantages of adopting the Municipal Reference Model (MRM) is the structure it uses to represent key concepts and terms that are relevant to many if not all government organizations. Therefore, being precise about the definitions used in the MRM is very important and the subject of this document.
This document may be amended from time to time and readers are welcome to submit additions or changes for review by a reconstituted MRM Standards Board. Special thanks go out to the following members of the MRMv2 Definition Governance Working Group who were in the following roles as of February 2010:
• Roy Wiseman, CIO, Region of Peel;
• Nancy Isozaki, I&T Division, City of Toronto;
• Philip Scott, I&T Division, City of Toronto;
• Kyle Wagner, Financial Planning Division, City of Toronto;
• Skip Lumley, Senior Principal, KPMG LLP; and
• Alan Mitchell, Senior Manager, KPMG LLP.
In preparing this document, reference is made to selected sources of information that have been collected, compared and reconciled. These sources include:
• Municipal Reference Model Version 2 (MRMv2) Definition Governance Working Group that prepared many of the definitions in 2009-2010;
• Naming Guidelines from the MRMv2 Quick Reference Guide;
• Existing definitions from the Canadian Governments Reference Model (CGRM), Governments of Canada Strategic Reference Model (GSRM) and the (Ontario) Public Sector Reference Model (PSRM);
• Other external sources that have provenance over selected definitions, such as the Business Motivation Model (for Goal, Vision, Objective, etc.); and
Municipal Reference Model Definitions and Descriptions
The following standards are followed in the table of definitions and descriptions:
▪ Words in capital letters are also defined in the table;
▪ Words in italicized letters are instances of the concepts being defined; and
▪ Multiple entries in the definition column represent acceptable alternatives.
|Term |Definition (s) |Description |
|Accountability |The obligation to report - 'account for' - the results |Ideally a single Service has one and only one accountable Organization |
| |of performing actions and accept the consequences. |Unit. For example, the Licensing Department is accountable for the Taxi |
| |This obligation is held by an Organization Unit in |Licensing Service. However, there may be instances where multiple |
| |relation to a Program or Service. |Organization Units claim accountability – a potential issue to be |
| | |addressed. |
|Authority |The power to act, typically flowing from a Mandate and |Authority is typically represented as control over a resource, such as |
| |Resources. This power is held by an Organization Unit |the Licensing Department has the authority over the inspection vehicle. |
| |in relation to a Resource. | |
|Client |A relationship between a Party and a Service, such that|Any member of a Target Group who actually engages with a Service |
| |the party has been served by the Service and has |becomes a Client of the Service. Client status is conferred on a Target |
| |benefited from the Service Output. |Group member when one or more of the following is true: |
| | |Member identifies or becomes known to the Service by actually engaging or|
| |A Party that has received a Service Output and/or |transacting; |
| |benefitted from a Service Value. |Member 'orders' the Service by requesting, applying or by causing some |
| | |other form of service delivery trigger (e.g. committing a crime) |
| |The party to whom the output of a Service is conveyed -|Member 'receives' the Service's Output, i.e. they are the parties to whom|
| |literally as in a flu vaccination, or figuratively as |the Service's Output is conveyed (e.g. a vaccination) or to who control |
| |in the case of driving (party receives a use of the |of the Output is given (e.g. a subsidy). |
| |road). |Member receives value from the service, either directly, through |
| | |receiving the output or as an indirect client – see indirect client |
|Client Set |A set of Clients of a Service. |A group of Clients that benefit from a Service. Joe, a taxi owner, is a |
| | |member of a group (taxi owners) that requires taxi licences to operate. |
|Direct Client |A Party who receives a Service Output and a Service |A Client who directly benefits from a Service by receiving the service |
| |Value. |output. Joe, a taxi owner, is a member of a group that directly requires|
| | |and receives taxi licences to operate. Mary, a taxi patron benefits from|
| | |the fact that the taxi is licenced but is not a direct client of the |
| | |licensing service. See Indirect Client. |
|Effectiveness |The extent to which an element contributes to achieving|Effectiveness indicators for the Taxi Licensing Service include: |
|Indicator |desired Outcomes. |turnaround time to issue a taxi licence - viewed from the perspective of |
| | |the taxi owner; |
| |A measure of the extent to which a Program, Service or |taxi condition rating - viewed from the perspective of the taxi patron; |
| |Process is achieving desired Outcomes. |Number of accidents involving taxis - viewed from the perspective of the |
| | |intended Service Value and Program Outcome |
| | | |
| | |Effectiveness Indicators can be developed for Programs, Services and |
| | |Processes. |
|Efficiency Indicator |A measure of productivity based on dividing the |The efficiency indicator for the Taxi Licensing Service is the cost to |
| |quantity of Output (measured in units of delivery) by |issue a taxi licence, derived by calculating the cost of effort and |
| |the quantity of resource inputs (usually measured in |resources necessary to issue the licence. |
| |person hours / dollars). |Efficiency Indicators apply best for Services and Processes. Program |
| | |efficiency indicators frequently use cost/capita, which reflects the |
| |A measure of the amount of Resources used to produce a |level of investment in the program. Lower cost is not, by itself, |
| |given Output normally expressed as cost or effort per |efficiency. An Efficiency Indicator requires “achieved units of Program |
| |unit of Output. |Value” as a denominator. |
|Enabling Program |A Program that addresses the Needs of public sector |By definition an Enabling Program, such as Human Resource Management |
| |Organizations. Synonyms include: Internal Program, |Program, is linked to the Public Programs that it serves. |
| |Provider Program. Antonym is Public Program. | |
|Enabling Service |A Service that addresses the Needs of public sector |An Enabling Service, such as Payroll, has all of the characteristics of a|
| |Organizations. Synonyms include: Internal Service, |Public Service, except that its Clients are internal to the Public Sector|
| |Provider Service. Antonym is Public Service. |Enterprise, rather than members of the public. |
|Goal |A qualitative statement about a state or condition of |Typically a goal is associated with a Program, such as the Goal of a |
| |the enterprise to be brought about or sustained through|Public Safety Program is a safe place in which to live work and play. |
| |appropriate means. |Such broad goals can be further elaborated into one or more specific |
| | |Objectives. |
|Indirect Client |A Party who receives a Service value but not the | |
| |Service Output. |Mary, a taxi patron, benefits from the fact that the taxi is licenced but|
| | |is not a direct client of the licensing service. See Direct Client. |
| |A Party that benefits from a Service Value without | |
| |receiving the Service Output directly. | |
| | | |
| |A Client that indirectly benefits from a Service. | |
|Mandate |An authority granted or bestowed by a constituency. |A Provincial act or legislation gives municipalities the Mandate to |
| | |regulate taxi operations. |
| |An authority granted or bestowed by a constituency to a| |
| |Public Sector Enterprise. |The electorate gives a Mandate to politicians to represent them. |
| | | |
| |An authority or commission given by one party or |A Municipal Council gives authority to an appointed officer to take |
| |parties to another for a purpose. |action – and this authority may, in turn, be delegated to another |
| | |(junior) officer.. |
|Mission |The ongoing operational activity of the entire Public |The Mission describes what the business is or will be doing on a |
| |Sector Enterprise or of an organizational unit of the |day-to-day basis. A Mission makes a Vision operative, indicating the |
| |Enterprise. |ongoing activity that makes the Vision a reality. |
| | | |
| | |A Mission is planned by means of Strategies. |
|Need |A condition wanting or requiring relief. |Taxi patrons have a Need to feel safe and secure while riding in taxis. |
|Objective |A statement of an attainable, time-targeted, and |The taxi licensing organization set an Objective for the Taxi Licensing |
| |measurable target that the enterprise seeks to meet in |Service to issue 90% of taxi licences within 48 business hours of |
| |order to achieve its Goals. |receiving the application. |
| | | |
| |A statement of an attainable, time-targeted, and |Program Objectives can further elaborate the Program Outcome. The |
| |measurable target that will allow measurement of |Outcome of a a Public Safety Program (“a safe place in which to live, |
| |whether and to what extent an Outcome is being |work and play”) can be elaborated into specific objectives related to |
| |achieved. |reduced loss of life or injury resulting from crime, fires, traffic |
| | |accidents, hazardous spills, workplace injuries, etc. |
|Organization Unit |A point of accountability, responsibility or authority.|The Licensing Department is Accountable for the delivery of the Taxi |
| | |Licensing Service. |
| |A managed group of people with allocated resources that| |
| |act with a collective purpose. | |
|Outcome |A measurable change in the level of Recognized Need of |The Outcome of a Public Safety Program may be a safe place in which to |
| |a Target Group attributable to the operation of a |live, work and play. |
| |Program. |The Outcome may be further elaborated by one or more specific Objectives.|
| | |The Service Value defines how a service will contribute to the Program |
| |A consequence or result attributable to the action of a|Outcome. |
| |Public Sector Enterprise. | |
| | | |
| |A desirable change in the level of a Target Group’s | |
| |Needs resulting from delivery of a Service or Services.| |
|Output |A unit of value conveyed to a recipient. |The Output of a Taxi Licensing Service is the issuance of a taxi licence |
| | |or a taxi licence issued. |
| |A unit of value produced by a Service or a Process. | |
| | |The unmodified term Output usually refers to a Service Output. See |
| |The product of a Service or Process delivered to a |Service Output and Process Output. |
| |Client or process recipient. | |
|Parent Program |The Program that another Program was created from or |A Public Safety Program can be subdivided into several sub-Programs, such|
| |that groups the Program with other Programs. |as: Fire Safety Program, Police Safety Program, Construction Safety |
| | |Program and Road Safety Program. |
|Parent Service |The Service that another Service was created from or |A Recreation Instruction Service would be the parent Service to a |
| |that groups the Service with other Services. |Swimming Instruction Service. See also Sub-Service. |
|Performance Indicator |A measure of the Efficiency, Effectiveness or Quality |A Taxi Licensing Service may have many Efficiency, Effectiveness and |
| |of a Program, Service, Process or Resource. |Quality indicators to measure the Organization’s performance. In |
| | |delivering the Service. |
| |A measure of how the government Organization is doing | |
| |in the delivery of a Program, Service, Process or | |
| |Resource. | |
|Population Segment |A set of Parties that shares one or more common |Characteristics of a Population Segment may relate to age (i.e. children,|
| |characteristics. |adults, seniors), life status (e.g. student, unemployed, tourist) or any |
| | |other characteristic that is relevant for defining a Target Group. |
| |A portion of the Public Sector Enterprise’s “public”. | |
|Process |The work required to transform inputs into an output. |Joe’s request for a taxi licence involves a number of steps, including |
| | |Joe’s application for the licence, Joe’s paying for the licence and Joe |
| |A set of steps using resources to produce higher value |receiving the final taxi licence token. |
| |output. | |
| | | |
| |The work performed within the scope of one or more | |
| |services to fulfill an external request. | |
|Process Output |The Product of a Process that contributes to addressing|A Receive Taxi Licence Application Process produces a Receipt Output as |
| |a Recognized Need. |part of the Need of Taxi Drivers to have a valid Taxi Licence to operate |
| | |their Taxi. |
| |Units of value created from lower-value inputs, | |
| |intended to be incorporated into other Process or | |
| |Service Outputs. | |
|Program |A Mandate to achieve Outcomes by delivering Services. |A municipality has a Mandate within the Public Safety Program to protect |
| | |lives and property by reducing crime, fires, construction accidents, etc.|
| |A Mandate to address recognized Needs of Target Groups |aimed at residents, businesses and visitors and delivers Services within |
| |by delivering Services. |this Program to achieve these Outcomes. |
| | | |
|Public Program |A Program for which the Target Groups consist of |A Public Safety Program serves the Public (residents, businesses and |
| |members of the public and are external to the |visitors) with a Mandate to provide Services that contribute to a safer |
| |enterprise with the Mandate for the Program. |municipality. |
|Public Service |A Service for whom the Clients are members of the |A Taxi Licensing Service serves Taxi Operators and Taxi Patrons and is |
| |public and external to the enterprise delivering the |intended to achieve a safer taxi operation, among other Service Values. |
| |Service. | |
|Quality Indicator |A measure of compliance with an established standard. |The Licensing Department has set a standard for the issuance of Taxi |
| | |Licences and monitors whether a Taxi Licence is issued within 48 hours |
| |Comparison to a published standard. |from receipt of a valid application. |
|Recognized Need |A Need acknowledged by the Public Sector Enterprise. |The municipality has Recognized the Need to keep Taxi Cabs in good |
| | |working order as a means of ensuring safe operation. |
| |A need which the Public Sector Enterprise has a mandate| |
| |to address and has decided to address. | |
|Resource |A tangible or intangible asset used to deliver a |Resources can include: people, funds, facilities, materials, information,|
| |Service and Process. |tools, knowledge, etc. |
|Responsibility |The obligation to act. This obligation is attached to |The Licensing Department has the primary Responsibility for many of the |
| |an Organization Unit in relation to a Process. |Processes associated with Taxi Licensing Service, but the Finance |
| | |Department has Responsibility for accounting for Taxi Licence fees |
| | |(Process). |
|Role |The relationship between an organization unit and |The Licensing Department is Accountable (Role) for the delivery of the |
| |another element such as: Organization Unit, Program, |Taxi Licensing Service The Finance Department is Responsible (Role) for |
| |Service, Process and Resource. |one of the Processes invoived in delivering this Service. |
| | | |
| |The actions and activities assigned to or required or | |
| |expected of a person or group. | |
|Service |A commitment to provide Service Outputs that satisfy |The Taxi Licensing Service delivers a Taxi Licence to Taxi Cab Operators |
| |one or more Recognized Needs of a Client. |to ensure compliance with safety regulations. A Taxi Cab must be in good|
| | |working order; otherwise a Taxi Licence will not be issued. |
| |Delivery of an output that meets the needs of a client | |
| |or a group of clients. |A Service does not depend essentially on any other Service. |
| | |Monitoring/Inspection of licensed taxis is a Process of the Taxi |
| |A commitment to deliver outputs that contribute to |Licensing Service since it would not exist without the Taxi Licensing |
| |outcomes. |Service. |
|Service Output |The Output of a Service that addresses a Recognized |A taxi operator receives the taxi licence Service Output to fulfill their|
| |Need. |Need to operate a taxi. |
| | |A Service has one and only one final Output. A service may have |
| |The product of a Service that fulfills a Client’s Need.|intermediate Outputs (Process Outputs), such as a payment receipt, but |
| | |only the final Output addresses the Need (e.g. for the Operator to |
| |A unit of value produced by a Service, that is final in|receive a licence – permission to operate a taxi. |
| |the sense it is intended to convey substantially all |An instance of a Service Output may be literally placed in a Client's |
| |the value expected by the Service's Target Group(s). |hands (e.g. a taxi licence) or control may be handed over (e.g. use of a |
| | |road). |
| | |A Service Output is associated with at least one Outcome, which, in turn,|
| | |is associated with one Target Group and one Need. An Output may |
| | |contribute to more than one Outcome and hence more than one Target Group |
| | |and Need. |
|Service Process |The work within the scope of a Service to transform |A Taxi Licensing Service is delivered through many Service Processes, |
| |inputs into an Output. |including: receive tax licence application, qualify tax licence |
| | |application, issue tax licence, etc. |
| |A series of steps, executed by a role, using resources | |
| |to produce higher value outputs. | |
|Service Value |The way in which delivering the Service Output to the |The Taxi Licensing Service contributes to the Outcome of the Public |
| |Client contributes to Program Outcomes. |Safety Program by ensuring that taxis and their operators meet required |
| | |safety standards. |
| |The way in which the service addresses the client’s | |
| |needs. |A taxi operator recognizes the value in possessing a valid taxi licence |
| | |because he/she can separate themselves from rogue, unlicenced taxi |
| |Expectations of parties directly receiving or |drivers and consequently attract more taxi rides. |
| |indirectly benefiting from the Service's Output. | |
| | |A Service Value is transferred to both Direct and Indirect Clients. A |
| | |taxi patron receives the value of traveling in a taxi for which both the |
| | |vehicle and the operator has been confirmed to be in compliance with |
| | |licensing standards – and therefore more likely to provide a safe and |
| | |comfortable trip. |
| | | |
| | |Service Value ensures alignment of the service with associated Program |
| | |Outcomes |
|Sub-Program |A Program which further specializes the Target Group |A Sub-Program follows all the rules for defining a Program and has the |
| |and Need addressed by another (Parent) Program. |same attributes. |
| | | |
| | |A Social Support Program may specialize to address needs for Financial |
| | |Assistance, Housing/Shelter, Child Care, etc. |
| | | |
| | |In the event that Sub-Programs are created, the Parent Service will |
| | |connect the two Services. |
|Sub-Service |A Service which further specializes either or both of |A Sub-Service follows all the rules of defining a Service and has the |
| |the Service Output or Client Set of another (Parent) |same attributes. A Sub-Service specializes either or both of: |
| |Service. |Service Output – for example, a Recreation Instruction Service may |
| | |specialize Period of Recreation Instruction to represent a Period of |
| | |Skating Instruction to create a Skating Instruction Sub-Service; or |
| | |Client Set – for example, a Recreation Instruction Service may specialize|
| | |the Recreation Students to represent Youth Students to create a Youth |
| | |Recreation Instruction Sub-Service; |
| | |Both Service Output and Client Set – for example, a Skating Instruction |
| | |for Youth Sub-Service. |
| | | |
| | |In the event that Sub-Services are created for a Service, the Parent |
| | |Service will connect the two Services. |
| | | |
| | |A Sub-Service will have the same Service Output Type as its Parent |
| | |Service. |
|Target Group |A Population Segment with a Recognized Need. |Taxi Drivers are a subject of concern by a municipality because they |
| | |represent the first face of a new visitor. As such, the municipality |
| |A group of people who have a need recognized by |requires Taxi Owners and Operators to be licenced. |
| |government. |A Target Group must have more than one member. A Target Group can be |
| | |represented within a hierarchy of Target Groups. For example, First |
| |A set of Parties that share intrinsic or extrinsic |Nations Residents can be broken out into First Nations Senior Residents, |
| |characteristics causing a Program to identify (target) |First Nations Adult Residents, etc. |
| |them. | |
| | | |
| |A group of people the government is intending to serve.| |
|Vision |An overall image of what the organization community |A Vision is long-term in its perspective and describes the future state |
| |wants to be or become. |without regard to how it is to be achieved. |
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