Guidance Document for the Preparation of HR Strategies

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 Contents

          1.     Background                                                                                          

       2.    What is a HR Strategy                                                                        

        3.    HR Policies:  Where Are We Now                                                       

    4.     HR Policies:  Where Are We Going To                                            

         5.     How to Bridge the Gap                                                                        

          5.1   Relationship to Strategy Statements and Business Plans 

          5.2   Audit of Personnel Function        

          5.3   Reorientation of the HR function                                                        

          5.4   Engagement of Senior Management                                                         5.5   The Roll out of PMDS

           5.6   The Devising of Indicators                               

                                                               

   6.    Roles                                                             

                                       6.1   Senior Management                                                                                               

                                                             6.2    Personnel Office

                                                 6.3    Managers  

                                                 6.4    Staff    

                           7. Resources                                                                     

                                                                                   

                   

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  1. Background

 

These guidelines have been developed by an informal Steering Group consisting of representatives from central and a number of line departments (see appendix 5), and facilitated by the Institute of Public Administration. The guidelines  are designed to help Departments and Offices¹ in the production of their integrated Human Resource Strategies and Staff Development Plans.  This initiative represents a key next phase in the human resource modernisation programme set out in Delivering Better Government.

 

The development of a new approach to human resource management is part of a process of strategic management in government Departments aimed at providing a better service to citizens and using available resources to best effect.

 

The importance of human resource management in the Strategic Management Initiative (SMI) is underpinned in the Programme for Prosperity and Fairness (PPF). The Programme specifically identifies the Performance Management and Development System (PMDS), currently being implemented, and the development of integrated strategies addressing all aspects of human resource management as priorities.

 

This emphasis was reaffirmed in the government decision of 9 May 2000, which asked that, as part of the effective implementation of PMDS, “Departments should now develop an integrated Human Resource (HR) Strategy and Staff Development Plan, which is aligned with their Strategy Statement and Business Plans.”

 

 

2.  What is a HR Strategy

 

An effectively developed HR Strategy provides an opportunity to pull together the breadth of personnel policies and practices relevant to a Department and its staff, while also linking these policies with the overall Departmental Strategy Statement and Business Plans.² It should be a forward looking document, outlining proposed developments with respect to HRM over the coming years.

 

Department HR policies vary in line with the size, structure, culture and work of the organisation and HR Strategies will reflect this diversity. However, while the detailed format, style and content of HR Strategies are for individual Departments and Offices to determine, it is envisaged that a number of key topics need to be addressed in all Strategies.

 

The Strategy should be informed by the developing policy context with respect to HR issues in the civil service. In particular consideration should be given to the following:

 

§   The reports of the Human Resource Management Working Group;

§ Recent legislation including the Public Service Management Act (1997) and the forthcoming Public Service Management, Recruitment and Appointments Bill (2001);

§    Service wide initiatives, such as the Quality Customer Service (QCS) Initiative (in particular the internal customer principle); and the related preparation of new Customer Service Action Plans;

§   The (currently draft) Civil Service Code of Standards and Behaviour;

§ The gender equality policy (agreed at General Council, report no 1383)

 

A list of relevant literature, policies and legislation is contained in Appendix 1.

 

 

3.  HR Policy: Where Are We Now

 

Within the Civil Service pay and conditions are determined centrally, with the Department of Finance having responsibility for these issues for all Departments. Similarly, in relation to other key HR areas such as recruitment, tenure and promotion, policy and practice are determined for the Civil Service as a sector. However, in recent years, line Departments have begun to play a more active role in some of these areas.

 

At the same time as Departments are becoming more involved with these issues, it is also increasingly the case that line managers are becoming more directly involved in HRM. It is now considered highly desirable that line managers of Sections requiring new staff are involved in both recruitment and promotion procedures and where possible are represented on interview panels. This development is consistent with the PPF, which called for “a more strategic approach to human resource management issues and greater involvement by line managers in the management of their staff (p. 23).”

 

Given the current climate of labour shortages and rising staff turnover, it is important that resources are made available to ensure the appropriate placement, induction and management of staff.  The implementation of the PMDS represents a structured response to the challenge of managing an individual’s performance, career and development needs. The introduction of PMDS to the Civil Service is consistent with, and indeed enables, the greater involvement by section heads in the management of their staff.

 

Appendix 2 sets out in detail the current situation in the Irish Civil Service in relation to key areas of HRM policy

 

4. HR Policies: Where Are We Going To

 HRM is a central element of the SMI process. It is envisaged that over the coming years there will be significant changes in HR policy in the Civil Service as a result of the ongoing process of modernisation. In particular, the successful implementation of PMDS, and the expanding role of line managers in respect to the management of their staff, is critical to the development of all aspects of HR policy. The General Council report (May 2000) on the introduction of PMDS states that the implementation of an effective performance management process is central to achieving the goals set out in Delivering Better Government of a modern, dynamic, high-performance Civil Service.

 

The following Section sets out in detail likely future changes in key areas of HR policy.

 

i  Recruitment

Central to the philosophy underpinning the SMI is the extension of responsibility and accountability from centre to line Departments. This principle was given statutory backing in the Public Service Management Act (PSMA), 1997. However, further legislation is necessary to give effect to greater devolution to line Departments in the areas of recruitment and dismissal, as envisaged under the PSMA. It is intended that the Public Service Management, Recruitment and Appointments Bill will be published in the September 2001. The Heads of Bill have been prepared and signed off by the SMI Implementation Group. The consultative process is to begin in advance of a Memorandum being brought to Government in September 2001.

 

It is envisaged that the new legislation will enable government Departments who fulfil certain criteria, and consequently have been awarded a license by the Commissioners for Public Service Appointments, to carry out their own recruitment. While it is likely that the recruitment and selection side of the Civil Service Commission  (to be renamed the Agency for Public Service Appointments) will continue to carry out large volume recruitment for the Civil Service, the new legislation will introduce greater flexibility for government Departments, which may be of benefit in recruiting temporary and specialist staff.

 

The increasing devolution to line managers of responsibility in respect of HRM, as advised under the PPF, will further impact on the area of recruitment, with line managers having greater involvement in the selection of staff for their areas. There will be an onus on section heads to provide candidates with better and more comprehensive information in relation to both the Department they are entering and also the specific vacancy. It is also desirable that line managers participate on interview panels.

 

The rolling-out of PMDS, which will involve the development of individual role profiles, will advance the process towards competency based, structured interviewing. The implementation of this new approach to interviewing is likely to have significant training and resource implications and consequently, consideration should be given by Departments to the long-term viability of the existing approach to interview boards.

 

ii  Induction

The information on role profiles to emerge through the PMDS should feed into the induction process and be used to illustrate job content and responsibility. The development of performance management and the consequent changes in practices and attitudes should also contribute to the creation of a culture in which a more effective probationary system can operate.

 

The Civil Service Training Officers Network is conscious of the need to develop a more generic and structured approach to induction procedures and will examine the issue during the course of 2001.

iii Tenure

There has been considerable debate in recent years in relation to the terms and conditions under which Civil Servants are employed. Any changes in this area will require new legislation. It is intended that the SMI Implementation  Group will examine issues related to tenure in the course of 2001.

 

iv Work Arrangements

While the public sector has been to the fore in implementing a number of flexible working arrangements (FWA), statistical evidence indicates that it is predominantly women in clerical and middle management grades who avail of the option.

 

Research³ has shown that there is a range of advantages for employers in implementing FWA. These include:

 

§   aids recruitment and retention of employees;

§   provides a wider pool of potential employees;

§   increases productivity, efficiency and staff morale;

§   reduces stress, sick-leave and absenteeism;

§   may reduce fixed costs, e.g. in the case of tele-working.

 

While further research is required to explore barriers to take-up, it is likely that some of these are cultural and there is a consequent onus on management to promote a working environment where FWA are integrated with other HR policies and are actively endorsed.

 

It has been suggested that the Civil Service could both better promote policies already in place, and also become more innovative in developing further arrangements. Locational flexibility schemes, for example flexi-place and teleworking remain underdeveloped and where they do exist, operate essentially on an ad hoc basis and on the basis of the goodwill of the parties involved. Consideration could also be given to schemes that do not imply a reduced number of working hours (and consequently pay) such as annualised hours.

 

In order to support the development of a family-friendly working environment throughout Departments, while maintaining quality of service a HR strategy should seek to:

 

• Ensure that staff at all levels are fully aware of the family friendly schemes and the opportunities for flexible working

• Examine how their Department could operate flexible working arrangements for all staff to a greater extent than at present

• Give consideration to flexible attendance patterns that could be made available to staff.

 

 v  Performance Management

The HR Strategy should clearly reflect the guidelines produced by the Sub-Committee of General Council on the introduction of the PMDS and the implementation plan drawn up by each individual Department. It should be noted in particular that the introduction of the PMDS is consistent with, and indeed requires, the devolution of responsibility and authority for staff to line managers.

 

The initial focus of PMDS will be directed at the introduction of a framework of role profiles and competencies. This will involve clarifying the contribution which each role makes to the achievement of organisational objectives and identifying the knowledge, skills and behaviour needed to perform the role effectively.

 

While initially PMDS represents a system of performance management, ultimately policies on recruitment, induction, promotion, nature of work, training, career development and reward must all be based on a consistent approach to human resource management, supported by the PMDS.

 

vi Mobility

In devising a HR Strategy, and in the context of the implementation of PMDS, Departments may consider it useful to explore the possibility of developing more formalised arrangements for permanent or temporary swaps between staff. Mobility schemes with the wider public service and the private sector could also be further developed.

 

vii Training and Development

The SMI process has resulted in major changes in the Civil Service. Properly targeted training and development are essential in helping to equip staff at all levels to carry out their work to best effect and to respond efficiently and effectively to new challenges. From a personal development perspective training is central to career progression and as such is an important resource in motivating and retaining employees.

 

As part of the process of modernising HR, and in parallel with the implementation of PMDS, Departments have been asked to produce Training Strategies by April 2001. Commitments in the area of training and development agreed at Civil Service level should be translated into Department specific performance indicators and included in the Strategy.

 

In devising training strategies, emphasis should be placed on ensuring that the skill requirements of the Department are being met. While, this requires carrying out a training needs-analysis to determine the specific requirements of each organisation, it is likely that a substantial training input will be required in all Departments to ensure the effective implementation of the following key initiatives:

 

·  the reorientation of the personnel function, including devolution of day-to-day personnel functions to line managers;

·     the introduction of PMDS;

·  the implementation of the gender equality policy;

·  the introduction of new financial management systems;

·  furthering Quality Customer Service;

·  the introduction of Regulatory Reform;

·  Information Technology changes.

 

The volume and range of the above areas makes it essential that training policies are well thought-out, structured and effective. Efforts should be made to ensure that the right people are receiving training and that individuals are in a position to apply what is being learnt.

 

viii    Promotion

The association between promotion and reward is particularly strong in the civil service. However, due to the ratio of promotions to eligible staff, promotion is not a realistic prospect for many civil servants in the short to medium term. It is within this context that promotion arrangements in the Civil Service are likely to be examined in the future. In particular, the following issues require careful consideration:

 

·   Line manager involvement – it is highly desirable that line managers have a role in selecting staff who will work in their areas;

·    The operation of inter-departmental panels;

·    A continuation of the trend towards competitive, merit based, internal promotions;

·    The equality dimension;

·       Promotion in decentralised offices;

·    Protecting the integrity of the system;

·    Succession planning;

·    Career progression for those unlikely to be promoted in the short to medium term.

 

The implementation of PMDS will have a significant impact on promotion competitions with job-profiles and competencies being used to assess suitability. Subject to formal agreement, it is also possible that PMDS will impact directly on promotion, through the examination of performance assessments.⁴ The SMI Implementation Group will consider the issue of a promotion policy in the course of 2001.

 

ix  Values and Ethics

A new Civil Service Code of Standards and Behaviour is currently being devised. This Code constitutes an important pillar of the SMI. It explicitly recognises that, within the major modernisation programme currently ongoing in the Civil Service, there is a need to restate and promote core public service values. The Code sets out a clear framework, which should govern the behaviour of civil servants and the values which the civil service should espouse.

 

It is intended that the Code will address the standards required of Civil Servants under three broad headings as follows:

 

·  Standards underpinning service delivery;

·  Behaviour at work;

·  Standards of integrity.

 

It is recognised that individual Departments may wish to provide additional guidance as appropriate for their own staff relevant to their own particular circumstances.

 

It is anticipated that a Memorandum will be brought to Government for a Code of behaviour and standards in September 2001.

 

x  Equality

On the specific question of gender, a new Gender Equality Policy for the civil service has been agreed with the civil service unions. Implementation of the Policy is being supported by two key documents: A Guide to Affirmative Action in Gender Equality and An Outline of the Structure of Responsibility, Accountability and Monitoring for the Delivery of Gender Equality within the Civil Service. These documents set out the guiding principles for Departments in implementing the Gender Equality Policy.

 

In conjunction with the Gender Equality Policy, the Government has agreed to a target whereby one-third of posts at Assistant Principal level will be filled by females within five years. HR Strategies should outline the internal programme of affirmative action in order to ensure progress towards this target.

 

With respect to disability, it should be noted that the Equality unit of the Department of Finance is currently reviewing the career progression of civil service employees with disabilities and that the 1977 quota of 3% may be revised.

 

xi   Health and Safety

Traditionally Civil Service health and safety policies have focused on such matters as safety in the work environment. However, in recent years there has been a growing awareness of the need to develop a broader Civil Service health policy, encompassing all aspects of occupational health. Initiatives of this nature are sometimes referred to as wellness at work schemes and in addition to traditional health and safety policies include employee assistance programmes.

 

xii  Bullying and Harassment

The protection afforded to employees in respect of bullying and harassment is significant under the terms of the 1998 Employment Equality Act. In order to comply with the legislation Departments should put in place codes of practice outlining policy and practice in this regard. However, due to the fact that responsibility rests principally with management to ensure that the work environment is free from discrimination of this nature it has been recommended that Departments adopt a proactive approach whereby a communications process is engaged in to ensure that all staff are familiar with the contents of the Bullying and Harassment policies. In larger Departments with an Equality officer this task generally forms part of their brief, however, in smaller Departments and Offices consideration should be given to addressing this issue via the Partnership Committee.

 

xiii  Communications

While individual Departments will have their own approach, best practice suggests that internal communications should operate at two levels:

 

· Day-to-day, ongoing communication. This might imply, for example, involving staff in regular planning and management meetings;

·  Larger, more formal, communication and participation structures, for example the Partnership Committee.

 

xiv    HR Planning

As a further means of responding to staffing shortages some departments have put in place Service Level Agreements with the Civil Service Commission. These involve Departments communicating at the start of each year with the CSC in relation to their likely staffing requirements over the following twelve months. This more formal arrangement ensures that the CSC is able to respond to the Department’s needs more efficiently.

 

xv   Employee Relations    

Partnership committees were established as a vehicle for progressing change in the civil service, in particular with respect to the SMI. However, it has been suggested that in some instances Committees have not been sufficiently proactive in advancing change.⁵ It is therefore probable that there will be further recommendations in relation to the future composition, agenda and evaluation of Partnership Committees.

 

The Partnership Committee should play an active role in the development of the Departmental HR Strategy.

    

5.  How to Bridge the Gap

 

As a means of successfully adapting to changes in the approach to HRM in the Civil Service, Departments have been advised to formulate HR Strategies. The following steps are likely to be of assistance in this process.

5.1   Relationship to Strategy Statements and Business Plans

The Department Strategy Statement and the Business Plans of individual units should both reflect and be informed by the HR Strategy. In particular it is important to consider the staff resourcing and skill implications of Departmental objectives. Similarly, the HR Strategy should serve to integrate HR policies with corporate strategy.

 

5.2   Audit of Personnel Function

This involves firstly, a review of all activities carried out by the Personnel unit and an assessment of activities which could be devolved to line management. Secondly, all HR programmes and policies should be examined to ensure that they reflect best practice, and are consistent with objectives contained in the Department Strategy Statement and Business Plans.

 

 5.3    Reorientation of the HR function

Following on from the audit of the personnel function it should be possible to give line managers greater authority and responsibility in the management and development of their staff. This process, which was advised to Departments in the PPF, will free up personnel units to begin to develop a more strategic focus in relation to HR policy. The implementation of PMDS should also assist in strengthening this process as it requires active and ongoing employee management by line heads.⁶

 

5.4    Engagement of Senior Management

In order to ensure a high degree of ownership it is important that the HR Strategy is developed internally and, in as far as possible, that it reflects the collective views of the organisation. There is a particular need for senior management to develop a cohesive view and to provide leadership and direction. This is necessary to ensure that Strategies that are collectively formulated reflect the strategic concerns of the organisation.

 

5.5   The Roll out of PMDS

It is highly appropriate that the development of performance management in the civil service is happening concurrently with the devolution of operational personnel issues to line managers and the devising of HR Strategies. Ultimately the PMDS will act as a vehicle for the delivery of a wide range of personnel policies and practices. Its central role should therefore be reflected in HR Strategies.

 

5.6   The Devising of Indicators

In addition to the requirement that Departments devise HR Strategies by October 2001, the SMI Implementation Group has also drawn attention to further specific HR objectives to be achieved under the modernisation programme of the PPF. These objectives are as follows:

 

·   Implementation of the Performance Management and Development System in each Department, as per the Guidelines issues by General Council;

·   Roll out and implementation of a range of HRM initiatives including, recruitment, induction, promotion, tenure, values and ethics, work practices and refocusing of the HRM function;

·   Enhancing the training and development of all staff in the Civil Service, with a target spend of 4% of payroll on training and development by 2003;

·   Development and implementation of improved measures to support equality of opportunity in recruitment, promotion and work practices.

 

In order to assist Departments in monitoring their progress on achieving the above objectives over the lifetime of the Programme, it will be necessary for management to set and continuously update a set of comprehensive performance indicators that measure specific outcomes or progress towards their achievement. These should be reflected in the contents of the HR Strategy.

 

It is recommended that indicators be agreed through the Department’s Partnership Committee. They should also be customised to reflect each Department’s particular circumstances and stage of development in the modernisation programme. However, at a minimum, they should reflect the common change agenda facing the Civil Service as a whole.

 

Appendix 3 provides a checklist of key questions designed to assist those involved in the process.

 

 6.  Roles

 In order to successfully implement a HR Strategy, it is necessary that an attitude of collective ownership and responsibility is fostered throughout the organisation. In particular, the implementation of the Strategy can not be achieved by the Personnel section alone. The commitment of senior managers and line management is crucial, while staff also have an active role to play in inputting to the planning process.  However, there is a need to ‘actively enable’⁷ all key players through training and mentoring. The operation of the PMDS, whereby all employees will be required to liase with their manager in respect to career development will assist in this regard.

 

The roles of senior management, line management, personnel and staff in developing a HR Strategy are set out below.

 

6.1  Senior Management

 

·  To develop a cohesive view and provide leadership and direction.

·  To ensure that the HR Strategy is linked to and supportive of Departmental priorities and objectives as set out in the Strategy Statement.

·   Ongoing monitoring of the direction of HR policy as part of the SMI process.

·   In conjunction with the HR department to devise HR Action Plans necessary for the introduction of the HR Strategy.

·  Overall responsibility for HR Planning, to ensure that the Department recruits the appropriate numbers of people with the necessary skills, expertise and competence.

·   Overall responsibility for identifying training needs and ensuring that it is implemented.

·   To ensure that effective consultation takes place with staff at all levels in order to encourage a high level of ownership and understanding.

 

6.2  Personnel Section

 

·  To work with senior management in identifying the strategic direction of HR in the Department and to assess how this links in with and is informed by corporate objectives.

·  To determine and manage a consultation process that is appropriate to the needs and culture of the Department. The active involvement of the Partnership Committee is important.

·   To support managers and staff in implementing the HR Strategy.

·   Working with managers to develop appropriate training for staff.

·   The management of consultation with the Staff Associations and Unions.

 

6.3  Managers

 

·  To have a comprehensive understanding of the HR Strategy and its implications for the Department and individual business units and to be in a position to explain and promote the Strategy to their staff.

·   To ensure that the HR Strategy informs and is informed by Divisional Business plans and objectives.

·    In conjunction with the HR Office to determine the training needs of their staff.

·   A central role in the wider implementation of the Strategy, in order to plan and achieve the objectives and work of the Division, while also planning for the future development, training and careers of their staff.

 

6.4   Staff

 

·  To effectively engage in the consultation process in relation to the devising of the HR Strategy.

·  Inputting to the planning process and setting of objectives both for themselves and their division.

  

7.  Resources

 

The devising of Departmental HR Strategies, together with the reorientation of the HR function, which is happening concurrently, will have significant resource implications, in particular in terms of the time which staff will have to devote to HR issues.

 

In order to ensure a high level of ownership and understanding of its contents, it is important that a comprehensive consultation process, as outlined in Section 3, is engaged in. Also, it is important that careful consideration is given to each of the areas covered by the HR Strategy and the implementation of related policies. It is likely that training will be necessary for both management and staff to ensure that the Strategy is implemented successfully. It has been recommended that maximum use be made of the Change Management Fund to facilitate this process.

 

Appendix 1:

List of relevant literature, policies, legislation, working papers etc.

 

 

i-HRM Working Group Papers

 

· The HRM function of the Future in the Civil Service, November 1997.

·  Promotion Policy, December 1997.

·  Recruitment Model for the Civil Service, A New Model, December 1997.

·  Tenure, January 1997.

·  The HRM Function of the Future, May 2000.

·  ‘Making it Happen’ Guidance on Affirmative Action in Gender Equality, June 2000.

·  An Outline of the Structure of Responsibility, Accountability and Monitoring for the Delivery of Gender Equality within the Civil Service, June 2000.

·  General Council Report 1383 on Gender Equality

 

ii- CPMR Reports

 

·  Key HRM Issues in the Irish Public Service, Peter Humphreys and Michelle Butler, Discussion Paper No. 10, IPA, 1999.

·  From Personnel Management to HRM: Key Issues and Challenges, Síle Fleming, Discussion Paper No. 16, IPA 2000.

·  Flexible Working in the Public Service, by P Humphreys, S Fleming and O O’Donnell, CPMR Research Report No.3, IPA, 2000.

 

iii-Legislation

·  Civil Service Regulation Act, 1956.

·  Civil Service Commissioners Act, 1956.

·  Organisation of Working Time Act, 1996.

·  Freedom of Information Act, 1997.

·  Public Service Management Act, 1997.

·  Employment Equality Act, 1998.

·  Equal Status Act, 2000.

·  Gender Equality Policy for the Civil Service June 2001.

 

iv- Partnership

·  Programme for Prosperity and Fairness, Government Publications, February 2000.

·  Partnership at Work in Ireland: An Evaluation of Progress under Partnership 2000, Rory O’Donnell and Paul Teague, March 2000.

·  General Council Report No. 1331, Agreement in Relation to Partnership Structures in the Civil Service in Accordance with Partnership 2000 for Inclusion, Employment and Competitiveness.

 

v-SMI

·  Delivering Better Government, the Second report to the Government of the Co-ordinating Group of Secretaries, Government Publications, May 1996.

·  Report to the SMI Implementation Group on Retention and Marketing Issues in relation to Recruitment to the Irish Civil Service, prepared by the Sub-Group on “Developing an Integrated Marketing Programme on Raising Awareness of and Promoting the Benefits of the Civil Service as an Employer”, August 2000.

·  Guidelines for the Development of Strategy Statements under the Public Service Management Act, 1997, Department of the Taoiseach, December 2000.

·  Practical Guide for the Development of Quality Customer Service (QCS) Action Plans (2001-2004) by Departments and Offices; December 2000.

·  Guidelines in Relation to the Reshaping of the Personnel Function, Department of the Taoiseach, June 1999.

 

vi-Department Literature

·  Department of Finance Policy on Human Resource Management, May 1998.

·  Department of Public Enterprise, Human Resource Strategy, May 1999.

·  Developing a HR Strategy for the Department of Environment and Local Government, Staff Guide, March 2000.

 

vii- PMDS

 

·  Subcommittee of General Council on the Introduction of the PMDS, Key Papers, May 2000.

·  Excellence Through People, PMDS Questions and Answers, SMI Sub-Committee of General Council, May 2000.

·  General Council Report No. 1368, Agreement on the Introduction of the PMDS in the Irish Civil Service, May 2000.

 

viii- Consultancy Reports

·  Civil Service Commission Staff Retention Survey, prepared by Goldsmith Fitzgerald on behalf of the CSC, October 1999.

·  Survey of Awareness and Perceptions of Employment/Career Opportunities in the Civil Service, prepared for the CSC by MRC Ireland Ltd, December 1999.

  

 

 

Appendix 2:

The current situation in the Irish Civil Service in relation to key areas of

HR policy

  

i.  Recruitment

Under the Civil Service Commissioners Act, 1956, the vast majority of recruitment to the Civil Service is generic and is carried out by the Civil Service Commission (CSC). Delivering Better Government (1996) recommended improved planning mechanisms and more co-ordination between Departments and the CSC to ensure a more efficient service. Consideration should also be given to a candidate’s skills, experience and preferred location in making placements.

 

The onus is however, largely on individual Departments to optimise their relationship with the Commission in order to ensure that as much information as possible is provided in relation to vacancies, that there is representation by line Departments on interview panels and, where they are held, (eg in relation to clerical grades) that Departments participate in open days.

 

Assessment Centre testing, followed by semi-structured interviews have become the norm for recruitment to both Executive Officer and Administrative Officer positions. For Clerical grades, interviews have recently ceased on a trial basis and assessment is based solely on the entrance exam.

 

Heads of Bill for a new recruitment model for the civil service have been prepared and have been signed off by the SMI Implementation Group. The consultative process has begun with a view to bringing a Memorandum to Government in September 2001.

 

ii.  Induction

The importance of good induction procedures which portray a positive image of the Civil Service and reinforce the value placed on a new employee can not be overstated, given the current competitive labour market. Consequently, it is necessary to have in place a structured, focused induction programme which introduces new recruits to the organisation, career possibilities within it and staff support systems. These initiatives should be regarded as the responsibility of individual departments and line managers. Induction should be seen as a key investment in staff retention and should be supported with appropriate resources.

  

iii Tenure

Tenure in the Civil Service is governed by the Civil Service Regulation Act, 1956, which states that established civil servants hold office at the will and pleasure of the Government. Delivering Better Government recommended that this power be transferred to Secretaries General, giving them the right to appoint, discipline and dismiss staff. While the Public Service Management Act provides the framework within which these changes could take place, further enabling legislation will be required to change the current situation.

 

The question of contracts of employment has also emerged as central in discussions with respect to tenure. In recent years all AO, EO and Third Secretary recruits have been initially appointed on a contract basis. This initiative has raised awareness of the potential benefits of non-permanent employment contracts in the Civil Service.

  

iv  Work Arrangements

The civil service has been to the fore in developing and promoting flexible work arrangements. These types of working arrangements can be categorised in to two broad groups: temporal flexibility and locational flexibility.⁸ The former relates to variations in the number of hours worked and is by far the most commonly recognised form of flexible working available. It includes less than full time working (job sharing, part-time work etc.), flexi-time, career breaks and term-time working. Locational flexibility relates to the choice of working location.

 

The PPF identified a number of family friendly/flexible working arrangements as appropriate for discussion at enterprise level by agreement between employers and unions. These measures are: job sharing, part-time work, flexi-time, flexi-place (tele-working) and term-time working.

 

v  Performance Management

Delivering Better Government identified performance management as the key to enhanced service delivery in the Irish Public Service. Following on from the development of Departmental Strategy Statements and divisional business plans, the Performance Management and Development System (PMDS), currently being implemented, represents the third pillar in the new approach to strategic management being adopted by government departments.

Performance management and development is a broad term to describe the way an individual’s work performance, career and development needs are managed. PMDS will contribute to continuous improvement in performance across the Civil Service by aligning individual and team performance with the goals of the organisation.

 

vi  Mobility

Mobility in this context implies lateral mobility, as mobility by way of promotion will be considered separately. The issue of staff mobility is multi-faceted and encompasses movement:

 

·   within the Department or Office;

·   across the Civil Service;

·   within the wider Public Service;

·   between the Civil Service and the private sector;

·   between the Civil Service and other national administrations.

 

The extent of mobility within and between Departments depends on the value placed on such initiatives by senior management in each organisation and the extent to which a pro-active approach is adopted. It should however, be noted that job changes, whether permanent or temporary, can prove highly beneficial both from a management and staff perspective, provided that mobility takes place within the context of an overall system of career planning associated with performance management.

 

While an active mobility policy does raise a number of difficulties, in particular in relation to specialist posts and structures, it should not be the case that because of the nature or area of their work, that staff lose out on opportunities to gain a broader range of experience, thereby enhancing their promotion prospects. Departments must plan for the replacement of such specialist staff as part of their overall career-planning strategy. A more extensive use of overlap periods may be desirable.

 

vii  Training and Development

Following on from commitments contained in Delivering Better Government and recent partnership agreements, performance indicators have been devised by the SMI Implementation Group for the civil service as a whole. These commit Departments and Offices to:

 

·  developing a training strategy, in parallel with the implementation of PMDS, by April 2001;

·  progressively increasing expenditure on training and development to achieve a target of 4% of pay roll, by the end of 2003.

 

viii Promotion

The primary purpose of promotion is to select the most suitable person for the position or grade that is vacant. Across the Civil Service there is currently a variety of different procedures for assessing the suitability of candidates for promotion. While in recent years there have been moves away from the consistory approach, the extent to which this approach has been entirely replaced by competitive processes varies according to Department. In general a combination of performance at interview, manager assessment and success in meeting the requirements of the candidate’s current job all taken into consideration to varying degrees.

 

A promotion policy for the civil service will be considered by SMI Implementation Group in the course of 2001.

 

ix  Values and Ethics

Departments have traditionally had individual personnel policies and procedures, which, in addition to general personnel policies and procedures, set out the behaviour and standards of work practice expected of civil servants. Issues considered in this context might include items such as confidentiality, integrity and efficiency.

 

In 1996, the Ombudsman published a Guide to Standards of Best Practice for Public Servants. The Checklist sought to assist public officials in providing a better service to their customers, in particular through ensuring that citizens are dealt with properly, fairly and impartially.

 

x   Equality

The 1998 Employment Equality Act precludes discrimination with respect to all aspects of recruitment, selection and employment on the basis of nine grounds. These are: gender, marital status, family status, age, disability, race, religion, sexual orientation and membership of the Traveller community. This is complemented by the Equal Status Act (2000) which outlaws discrimination in the provision of goods and services. It is recommended that all HR policies should be ‘equality proofed’ to ensure compliance with this legislation. Strategic equality objectives should also be incorporated into all policies to ensure that Civil Service level indicators are met.

 

xi  Health and Safety

All Departments are obliged to have a health and safety statement which should be monitored on an ongoing basis. It is the responsibility of the employer to ensure that all staff work in a safe environment.

 

xii Bullying and Harassment

Sexual harassment and bullying are among the forms of discrimination which are legally defined and deemed unlawful under the 1998 Employment Equality Act. It is the responsibility of management to ensure that the work environment is kept free from harassment and bullying and to ensure that appropriate policies have been devised and publicised to staff for dealing with incidents in this area. The agreed anti-harassment and bullying policy for the Civil Service is set out in the document, A Positive Working Environment.

 

xiii  Communications

Internal communications is about ensuring that staff are informed about policies and decisions affecting them, allowing them to react individually and feedback their views on management’s proposals. In any organisation undergoing change good communications is of vital importance.  Change cannot be managed properly without ensuring that:

 

·  the reasons for, and implications of, change are communicated directly to those affected;

·  communication is offered in terms that staff can understand and accept;

·  staff are afforded the opportunity to voice their opinions and/or apprehensions in advance of any changes.

 

The devising of a HR Strategy, and the related consultation process, in itself represents an important exercise in communication. The Partnership Committee, established  under Partnership 2000,  can play an important role in this regard.

 

xiv  Human Resource Planning

The key purpose of HR Planning is to ensure that the organisation has the appropriate level of staff with the requisite skills to ensure that it meets its business objectives. However, the generic system of recruitment in the Civil Service can pose difficulties for Departments either looking to recruit large numbers of staff or to obtain staff over a short period of time. The dilemma faced by the Civil Service Commission is that they can only operate on the basis of information provided to them by individual Departments. It is therefore critical, in order to ensure the smooth operation of the system, that Departments engage in manpower planning and consider, well in advance, the staffing implications of any structural changes.

 

xv  Employee Relations

Conditions of service are determined generically for the Civil Service as a whole at General Council. However, Departments do have a degree of autonomy in respect of conditions of work. Negotiations between management and unions take place, traditionally, via the Departmental Council, but in recent years also through the Partnership Committee set up under Partnership 2000. The structure and nature of representation of partnership committees varies by Department.

 

Appendix 3:

Checklist of key questions to be asked when developing HR Strategies

 

i Audit of the Personnel Function

· Is there a clear understanding of all Departmental HR policies and procedures?

· Is there an understanding of which policies and procedures are either governed by legislation or centrally determined and those which have been devised locally?

 

ii-Reorientation of the HR Function

· Is there a Departmental Strategy in relation to the reorientation of the HR Function, required under the PPF?

·  Is there a clear understanding of which personnel tasks will initially be handed over to line managers?

·  Have managers received the appropriate training, or is training planned, to enable them to meet these new responsibilities?

·  Has an appropriate support system been put in place?

 

iii-Engagement of Senior Management

·  Has senior management developed a collective view on key issues to be addressed?

·  Have the resource implications of devising a HR Strategy been considered?

·  Has a form of consultation appropriate to the Department’s work and culture been agreed?

·  Has consideration been given to the manner in which the HR Strategy will both inform and be informed by the Department Strategy Statement and Business Plans?

·  Has an agenda been formulated which will ensure that the HR Strategy is in place by October 2001?

 

iv-Staff Consultation

·  Has the Partnership Committee been briefed in relation to its primary role in devising a HR Strategy?

·  Has a strategy for canvassing the views of staff been determined?

 

v- Role of the Partnership Committee

·  Have sub-committees of the Partnership Committee been established in order to explore issues related to the future direction of HR policy in the Department?

·  Has the Partnership Committee formulated an agenda, consistent with that of Senior Management that will ensure that the HR Strategy is finalised by October 2001?

 

vi-Relationship with strategy Statement and Business Plans

·  Does the HR Strategy reflects the objectives, challenges and goals of the Strategy Statement; Has the Personnel Section liased with Senior Management to ensure that this is achieved?

·  Does the HR Strategy reflect the objectives, challenges and goals of divisional Business Plans? Has the Personnel Section liased with line managers to ensure that this is achieved?

·  In developing the HR Strategy has consideration been given t the position and views of customers/clients (both internal and external) of the Department? Does the HR Strategy reflect the Department’s QCS Customer Action Plan?

 

vii- Role of PMDS

·  Have the PMDS project team been consulted in relation to the devising of a HR Strategy?

·  Does the HR Strategy reflect the Framework for implementing PMDS in the Civil Service agreed by General Council in May 2000?

·  Is there a framework for developing individual HR policies over the coming years in order to reflect the increasingly integral role played by the PMDS?

 

viii-Devising of Indicators

· Has an appropriate framework been established in order to ensure that Departments have devised their HR Strategies by October 2001, the deadline set by the SMI Implementation Group?

·  Does the HR Strategy contain a range of performance indicators, which will ensure progress towards the implementation of key HRM initiatives including recruitment, induction, promotion, tenure, values and ethics, work practices and the refocusing of the HRM function. While the performance indicators should be customised to reflect each Department’s particular circumstances and stage of development in the modernisation programme, they should, at a minimum, reflect the common change agenda facing the Civil Service as a whole. (Ref. Appendix 3).

·   Is there a framework for the updating of performance indicators over the life time of the HR Strategy?

 

Appendix 4:

Overview of HRM Performance Indicators for the Entire Civil Service