It's difficult to determine exactly what explains that poor performance in maintaining the same performance targets. It could be changing priorities, so the departments being subject to priorities that change. If that's the case, they have to change the performance indicators they track. Or it could be a realization that the targets they have are not appropriate to get to the desired outcomes.
It's difficult for us to determine that only having looked at the departmental results indicators, the targets themselves, and not having conducted a thorough study about why they chose these specific targets and why they changed.
We looked at their tracking of targets and the fact that some of them had changed, but we did not start the study with a view to getting full-fledged explanations.