HR management in the public sector

1
HR management in the public sector

• Initial points for discussion with EPGG working
  group
• January 2009

2
Overall trends in public sector management
The public sector has grown as the role of the
state has evolved in response to social, economic
and political events
State sector roll-back (Reagan-Thatcher small
government) privatisation, outsourcing
State sector expansion (big government tax
spend) nationalisation, education, health
social services
Return to state ownership big govern-ment?
State sector as enabler, partner regulator
WWII expansion state takes over industries
?
WWI expansion
Beginning of state social service provision
Post-war contraction (world recession)
Credit crunch
Oil crisis economic recession end of communism
Globalisation IT revolution aging
populations climate change
Post-war economic expansion
Size of the public sector (illustrative)
1st World War.
2nd World War
World economic slump
3
The role of the state how approaches have evolved
State sector expands (socialist big
government) nationalisation, unionisation,
state provision (social welfare, health,
education)
State sector roll-back (Reagan-Thatcher small
government) de-nationalisation
de-unionisation new public management
State sector as enabler and regulator of market
economy and diversified public service provision,
citizen as customer.
?

• Big government
• Government knows best
• State-planned economy
• Public ownership of industries
• Universal provision of public services to citizens

• Small government
• The market knows best
• State industries privatised
• Market-driven economy
• Public sector reforms to cut costs and improve
  services

• Different government
• Steering, not rowing
• Social-market economy
• Public sector policies driven by results and
  value for money
• Customer-oriented public service provision

Public service principles Equity
accessibility Quality performance Consultation
choice Responsiveness Accountability Value for
money
4
Current trends in public sector management

• Diversified service provision
• Private outsourced services
• Government arms-length agencies
• Public/private partnerships
• Decentralisation
• National ? local
• Central institutions ? service delivery agencies
• Performance based management
• Results-based budgets
• Performance contracts for top managers
• Public service agreements between Ministry of
  Finance and line Ministries
• Integrated term fiscal expenditure planning
  budgeting
• Accruals accounting
• KPI Excellence programs
• Customer orientation
• Customer charters

5
People management a parallel evolution
Different government
Big government
Small government
?

• Output-based manpower planning
• Diversity contracts, pay grading
• Flexible, self-driven career development
• Demand-led training
• Performance related pay
• Open, competitive appointments
• Senior civil service
• Representivity

• Big numbers (state as employer)
• Categorisation by level professional group
• Career advancement thro seniority
  qualifications
• Life-long tenure

• Non-core functions eliminated (privatised
  outsourced)
• Employee reductions
• De-centralisation
• Business managerial skills imported on contract

• Career-based structure
• Centralised personnel administration

• Job-based structure
• De-centralised professional HRM

6
HR management key requirements

• A coherent legal HRM framework
• A Law Ethical Code
• Employment Regulations
• HR Management procedures
• HRM institutional arrangements which
• Distinguish clearly between policy and
  operational responsibilities
• Allow for diversity and decentralisation
• Provide independent oversight
• HRM procedures which deliver
• The right person with the right skills in the
  right job, performing well

7
Legal Framework
Contents
Civil Service Law Ethical Code
Fundamental principles. Rarely change
Primary legislation
Civil Service Employment Regulations
Policies give effect to the fundamental
principles. Amended periodically but not
frequently
Secondary legislation
Civil Service HR procedures
Detailed procedures on application of the
Regulations standard forms Amended as required,
Practical guidelines
8
Institutional arrangements
9
HRM policies practices key features
10
Public Administration models

• Westminster (UK, CANZ, Anglophone Africa)
• Separation between politicians and civil servants
• Administrative civil servants exercise authority
  on behalf of Ministers
• Napoleonic (France mainland Europe)
• Juridical fonctionnaires exercise powers in
  their own right
• East India Co. (India, Pakistan, Bangladesh,
  Nepal, Sri Lanka)
• Powerful civil service outguns politicians 9/10
• Civil servants role based upon colonial role
  functions (land administration, administration of
  justice, tax collection)
• Others
• Post-communist eastern Europe no distinction
  between politicians and civil servants the state
  is responsible for everything
• Middle East/Gulf public sector is a job
  provider wasta rules

11
Political appointments

• US top 3,000 positions, subject to Congressional
  approval
• UK none, but
• Political advisers have quasi civil servant
  status (non-executive)
• Ministers involvement in certain appointments,
  e.g. Ministers office, press office
• India none, but
• Ministers constantly and often successfully exert
  influence over top level appointments
• Middle East
• All senior appointments are at Ministers behest
  (i.e. personal rather than party political)
• Issues transparency accountability, e.g.
• The criteria and process for filling positions
• Whether or not positions are designated as civil
  service and, if so
• Whether the occupant is subject to civil service
  rules and regulations

12
Identifying and managing the elite fast-stream
SES

• Fast stream
• Purpose to ensure continuous supply of the
  brightest and best
• Govt wide process
• Small annual intake (/- 40)
• Applicants already possess high-level
  qualifications
• Assessment centre process (rigorous, 360 testing
  of competencies, temperament potential)
• Gold dust tested and trained in job can be
  mainstreamed (mainstreamers can also be
  fats-streamed)
• Senior Civil Service
• Purpose to ensure quality, continuity,
  leadership shared values at the highest levels
• Position-based
• Defined generic competencies act as entry
  barriers
• Government-wide mobility
• Events and training designed to build
  competencies and esprit de corps

13
Career vs. post-based pros cons
14
Political appointments pros cons
15
Centralised or decentralised?

• Decentralisation can mean
• Uniform systems managed locally or
• Unified principles but diverse systems tailored
  to local needs
• The case for decentralisation
• The Civil Service is too big and too diverse to
  manage through a uniform centrally-managed system
• The case against decentralisation
• Requires increased managerial capacity, and
  enhanced accountability mechanisms