The civil service human resource management reform application headquarters

Transcription

1 The civil service human resource management reform application headquarters Leading changes for the future Beginning to apply reform in civil service: For the future of us all ירושלים, תשרי תשע"ג, אוקטובר 2012 Guide to forming human resource evaluation in civil service Jerusalem, June 2013 Version 1

2 Table of Contents Foreword. 2 Preface 3 Introduction 4 Section one: general. 5 Situation assessment 5 Situation assessment objective. 7 Section two: planning cycle and budget cycle. 10 Human resource division situation assessment. 11 Civil service human resource situation assessment formulation process chart. 12 Section three: constructing situation assessment insights. 14 Data identification and collection 14 Resources.. 15 Academic know-how on human resources 15 International trends.. 16 Regional trends Local trends Economic and social aspects.. 17 Civil service.. 18 Budget. 18 Employment agreements and wages 18 Education. 18 National projects 19 Information knowledge and technology 19 Civil service surveys.. 19 Issues rising from last year's review. 20 Unique issues 20 Section four: data analysis. 21 Example of sample mapping on SWOT model document.. 22 Conclusion. 24 1

3 Foreword Situation assessment is a necessary, major cornerstone of the strategic planning cycle. It is the stage in which key government parties in the country, organization managements and executives who lead strategic content issues abandon for a given time their occupation with questions relating to the "here and now", and using a structures process look at the horizon and future in order to make decisions regarding preparation towards this future. In general, in order to construct the optimal picture of the future, two major operation principles should be applied: A. Using the largest possible number of reliable information sources dealing with identification of trends and forecasting different fields of action and verification of these assessments by crossing and/or completing data. B. Structured methodic work, professional, using a language that is common to all the professional parties involved in formulating the situation assessment. The picture of the future relevant to every ministry must be constructed to determine future strategic objectives and identify the roads leading to them. Furthermore, the process enables identification of trends and emerging processes expected to influence the organization's operational abilities, directly or indirectly, and the results of its actions from the public viewpoint. This document, drafted by the senior deputy director of the strategic planning division, presents the methodology of generating a "future picture" relating to the human resources issue in civil service in general and in the government ministry in particular. The future picture relating to the Civil Service Commission as well as senior deputy directors of human resources is attaining the ability to influence the future of civil service and the services it provides for Israeli citizens, by dealing with processes that shape the future of the states' most important resource human resources. From my point of view, the best way of forecasting the future is to create it yourself. Although this is an initial document and perhaps later on, based on the feedback we receive from you, it will be even more precise and effective its importance is great, mainly since it realistically expresses one of the initial and most important steps on the road to a new age. At your disposal and with great esteem, Ron Zur Reform application headquarters manager 2

4 Preface Strategic planning that identifies changing trends and discerns changing needs provides a significant base for human resource management reform led by the Civil Service Commissioner. This is designed to decrease the gap between changing needs to civil service abilities as much as possible. Identification of the changing trends and needs is based on a regular mechanism for carrying out the relevant situation assessment for a specific ministry, based on organized methodology. This guide is a direct continuation of the human resources work plan generation guide and provides senior deputy directors of management and human resources a tool with which to prepare ministerial situation assessment that constitutes the initial cornerstone of drafting a work program. With regard to ministries' gradual work based on the annual planning cycle concept, human resources situation assessment is required as an initial component of evaluations for writing a work plan. This guide was created as a basic tool for the civil service human resource management reform application process. It is defined as a component of the infrastructural assembly required to apply civil service human resource management modification processes. We hope that when gearing towards designing work plans for 2014 this guide will be of service to senior deputy directors of human resources. The reform application headquarters is at your disposal for any request for assistance or clarification relating to this matter or any other matter. Sincerely, Ronen Shapira Senior division for strategic planning and policy manager 3

5 Introduction The government planning process: since 2006, the Prime Minister s Office, through the policy planning division is promoting introduction of governmental planning culture. Government decision 4028 dated determines government offices will operate according to the annual planning cycle based on the Government Planning Guide (September 2010, version 4). This guide expressed the government s growing commitment to systematic, significant planning and integration of the importance of planning for improvement of all aspects of function of the government and various entities. Since then, under the leadership of the Prime Minister s Office, the integration process of work based on this guide has been carried out as part of the effort to enhance headquarters operation and generate a base for high-quality, profound management. The process of writing work plans is a process that includes all assignments due to be carried out during the coming work year into a single inclusive plan that is included from the aspect of the required resources, in the budget framework determined for the ministry. The planning process begins with professional situation assessment, continues with setting policy objectives and priorities and ends in division of the ministry s approved budget. This process ensures the key objectives are expressed in the annual work plan and budget books so the course of planning has an ongoing dialog with the budget cycle and enables objectives to be attained. The human resource situation assessment provided by the senior deputy director of human resources, contains the professional derivatives from the Civil Service Commission s situation assessment as well as subjects and data arising from the ministry and the worlds of content within the deputy director s scope of authority and responsibility. In general, the stage that involves planning, monitoring and assessment of corporate human resources is not a linear process, but a cyclic process with feedback points and as a result the ministry s performance and public value derived from it continues to improve and update. In this context one should note the human resources work processes are derived from the ministry s policies and objectives. Therefore, human resources work process stages must be intertwined with ministerial work processes and feed one another constantly. 4

6 First Section: General Situation assessment Situation assessment is the process of collecting data and analyzing it within the planning work framework, culminating in recommendations regarding continuation and modification of ministry activities. The situation assessment is the initial stage of formulating the ministerial human resource work plan for which the senior deputy director of human resources is responsible. Situation assessment is integrated in the government planning cycle specified below and should take place between February and May during the work year, in order to influence formulation of ministerial and national situation assessment that provides the base for the national human resource work plan and as a derivative, the work plan for ministerial human resources. Situation assessment provides the Civil Service Commission and senior government deputy directors of human resources with a tool to generate insight on key issues that require attention within the work plan for the coming year, on the one hand, and long-term processes, on the other hand. Situation assessment enables developing comprehension of issues that should be handled based on data and facts. This includes those that require additional examination. This is the opportunity to look inside into the ministry, critically examine its actions and determine key directions of change. The process may question basic conventions on many occasions. The base for any planning process is in the question what do we want to achieve. Situation assessment, the subject of this guide, is a major tool that helps form the answer to this question. Discussion on the subject requires relative stability, since constant modification of goals does not enable processes to ripen. However, since there is no stable environment in reality, key changes must be identified in the planning stage, including opportunities that should be exploited and threats that should be identified. The situation assessment helps develop comprehension of the issues that should be handled, including areas of activity requiring renewed examination of the investment, based on information and facts. From the practical aspect, it requires a data collection and analysis process, joint thinking of long term goals and objectives and renewed examination of present priorities. One must decide both what should be done and what shouldn t be done. 5

7 Situation assessment development is based on two basic foundations: identification and collection of all relevant quantitative and qualitative information, and analysis and comprehension of the information and its significance. Inclusion of wider cycles in the process within the organization and outside it expresses the depth of the process, raises challenges and feedback and enables new approaches to be developed. Formulating the Situation Assessment document will help in ongoing work with government headquarters parties and parties outside the government and will generate an anchor for the annual work plan. 6

8 Situation Assessment objective Formulating a picture of the situation. Existence of an updated picture of the situation, inclusive and joint for major parties within the ministry and outside it, is the base for examination of priorities, determination of directions of change and locating reallocation resources. Reexamine priorities. Situation assessment provides a tool with which the ministry management is able to examine its objectives and goals in orderly fashion, its priorities and ways of realizing them in the short and long term. Determine directions for change. The situation assessment provides infrastructure for the work plan and budget formulation process, based on lessons learned from the past year and modifications in the work environment, at an early time that enables it to be realized. Locate internal resources. The work process helps locate internal resources that do not promote the priorities and reallocating them within the work plan. This is usually the way to finance new plans. 7

9 The annual work plan generation process is influenced by the situation assessment from several aspects. It begins with formulating objectives for the coming year based on ministry goals, annual situation assessment and given budgetary limitations. The annual policy objectives, after being determined, provide the base for design of assignments and tools to be used by the ministry. Execution of the assignments brings about the result. The result influences the process in two channels both part of the annual situation assessment: result measurement and evaluation on the one hand and feedback from users and public, on the other hand. This is an ongoing process of planning, execution and study, and situation assessment is a vital cornerstone of this process. Annual work program construction process Adaptation and update during situation assessment Feedback from users and public Multi-annual ministry goals Products and results Organization and execution Result measurement and assessment Task and tool design Annual policy objectives Annual situation assessment products Budgetary and other restrictions Adaptation and update during situation assessment 8

10 The situation assessment will be directed at observing four foundations of strategic planning of human resources: * The organization s adaptation to its assignments * Development of human resources * Core manpower * Work relations and wages Furthermore, it will be in tune with relevant global trends, regional trends, economic and social aspects and processes within the civil service. 9

11 Second Section: the planning cycle and budget cycle 1 The following chart displays the components of the planning and budget cycle and major cornerstones related to it, into which the human resource planning process should be integrated. Based on comprehension of the planning and budget cycle components we will be able to found the planning abilities of the world of human resources. The full details of the planning and budget cycle components are specified in the Government Planning Guide booklet distributed in September 2010 by the policy planning division in the Prime Minister s Office and is recommended for reading and more profound information. December January Knesset votes on state budget November Ministry units receive instructions on execution of the work plan Annual summary and conclusions February October September August Government budget discussion, including ministry frameworks Ministerial work plan built Round 0 ministerial work plan Budget approval by government and Knesset Ministerial work point determined tasks adapted to resources July Preparation for next state budget June National situation assessment formed Ministerial situation assessment formed May Government determines objectives and priorities March April Civil service human resource situation assessment process formulated At this stage of the work year, the coordination process with the Budget Division and Civil Service Commission must be held regarding peak manpower required by the ministry, significant organizational modifications derived from assignment objectives etc. should be carried out 1 Based on the Government Planning Guide, Jerusalem, September 2010, updated version (4.0) pp

12 Human resources division situation assessment In general, within the annual planning cycle, the ministerial situation assessment should be concluded by the end of May in order to generate the national situation assessment and enable annual objectives of headquarters ministries to be determined (Prime Minister s Office, Treasury Ministry, Civil Service Commission). Before the budget discussions, based on the ministries work during the situation assessment formulation process, a process will take place in which, in early February, the State Civil Service Commission formulates the situation assessment draft reflecting from the data collected, on the one hand, annual summaries and reviews and additional subjects specified in this guide. The above draft will be distributed to all civil service senior deputy directors of human resources and additional government headquarters entities (Prime Minister s Office, Treasury Ministry and others) to obtain their enlightenments and comments and other issues that they believe should be included in the civil service human resources situation assessment. At the end of this cycle, the civil service human resources situation analysis document will be published in the course of May, providing a foundation for the senior deputy directors of human resources situation assessment and the Civil Service Commission work plan. Results of the situation assessment will be used to prepare the ministerial work plan that must be concluded by late November, prior to Knesset vote on state budget. 11

13 Civil service human resources situation assessment formulation process chart Sources of information that enable formulation of the situation assessment process are diverse and include a large number of parties: Treasury Ministry Civil Service Commission Prime Minister s Office Situation assessment Ministry of Industry and Commerce National Economic Council Prime Minister s Office Ministerial deputy directors of human resources Research institutions Academic institutions 12

14 The situation assessment process is integrated, combining other headquarters parties in government, on the one hand, and senior deputy directors of human resources, on the other hand. Identification of initial trends January Deputy directors of human resources Formulating initial insights To key headquarters parties March/April Situation assessment formulation May/June 13

15 Third section: generating situation assessment insights 2 This data is relevant when its meaning produces new insight for the appropriate ministry. Data identification and collection In this framework, the senior deputy director of human resources must produce and collect relevant information about the human resource areas for which he is responsible. This information may be collected from different parties in the civil service and outside it, including the MERKAVA system, research and academic institutions, various government ministries, Central Bureau of Statistics, comparative data from other countries and/or other sectors with similar properties in the world, of value and meaning relating to Israel in general and the particular ministry in particular. One should relate to data and insights that arose from the summary of the previous work year including review of results obtained vis-à-vis production measures and obtained results, auxiliary research products, conclusions (positive and negative) and assessment of drawbacks. In framework of data collection, information should be gathered on all ministry employees in different sections including age, gender, rank, sub-divisions and any other section that could provide insight on trends and or expected opportunities and differences during the data processing stage. 2 Phrasing, transcription, one or more insight per subject, leading to change in concept or previous approach 14

16 Resources Academic knowledge on human resource issues Source of information: academia and academic publications, professional literature, international literature. Required information: changes in the concept of the position of human resource manager in the organization, new theories of management, new management tools etc. Example: academic review of the human resource management theory and its development over the years. Division into seven groups of human resource management strategy specified in the article Human Resource Management Review 3 : 1. Explaining contingency perspectives and fit. 2. Shifting from a focus on managing people to creating strategic contribution. 3. Elaborating HR system components and structure. 4. Expanding the scope of SHRM4. 5. Achieving HR implementation and execution. 6. Measuring outcomes of SHRM. 7. Evaluating methodological issues. The possible significance of human resource planning in government ministries is application of the updated trends in human resources and adapting the concept of their operation accordingly. 3 Attached as an appendix to this document 4 Strategic Human Resource Management 15

17 International trends Source of information: free press, open data bases, academia, Foreign Ministry, National Economic Council. Required information: international trends will be integrated in the situation assessment with contents that influence human resource content worlds, relevant new markets compared to markets that are on the decline, different cultures becoming relevant. Example: According to the OECD 5 report, there is a trend for developing countries to overtake developed countries when it comes to GNP. The relevant aspects relating to human resources are opening and empowerment of markets in Asia and Africa. The significance for HR personnel is training human resources engaged in trade and/or foreign relations with these countries or that would be engaged in these relations following the above developments. Regional trends Source of information: free press, open data bases, academia, Foreign Ministry, Prime Minister s Office, National Economic Council. Required information: regional trends that could influence the economic and employment situation, threats and opportunities that may influence the economy and civil service. Example: instability in the Middle East, Arab Spring, instability in Syria 6 cause instability in the region. Regional worsening may occur and on the other hand a New Middle East is also possible. The possible significance of planning human resources in government ministries is the possible escalation that could bring about change in government priorities, both from the budgetary viewpoint (transfer of financial resources from government ministries for security expenses) and applications for handling economic and governmental aspects. 5 Economic outlook, analysis and forecasts Looking to 2060: Long-term growth prospects for the world. 6 Middle East Notes and Comment: Regional Trends and Developments 16

18 Local trends Source of information: free press, open data bases, Bank of Israel, Foreign Ministry, Prime Minister s Office, National Economic Council etc. Required information: trends in Israeli economy 7 that influence the employment situation in Israel. Trends relating to wages and employment contracts, trends on the private and public markets that influence and/or are influenced by the civil service. Example: Significant cuts in the coming work year could bring to a significant rise in labor disputes, significance for human resource managers, preparation for labor disputes and preparing relevant issues, information about the plan to cut the budget ect. Economic and social trends Source of information: Central Bureau of Statistics, academic institutes and studies, global and OECD 8 data, Bank of Israel studies, Ministry of Industry and Commerce etc. Required information: demographic trends, data about proper representation, populations participating in the labor market, poverty rate, average wages etc. Example: increase in life expectancy causes financial burden on the labor market, requiring examination and attention. The possible implications of planning human resources in government ministries are in preparation for aging population, preparation for the load placed on the local work forces and solution for the general aging population in the State of Israel as a government service. 7 Bank of Israel macro-economic forecast: 8 Country statistical profile: Israel

19 Economic and social trends Source of information: Civil Service Commission, state information systems, MERKAVA system, inter-ministerial systems, Central Bureau of Statistics, report written by the civil service. Required information: development trends of human resources within the civil service, training and education in civil service, retirement forecast, terms in office etc. Example: in recent years 40 percent of the engineers are about to retire, a systemic solution to the developing gap must be found. The possible implications of human resource planning in government ministries are in preparation for the gap and realization of the Tzemach Commission on handling the developing gap 9. Budget Employment and labor agreements Source of information: the Treasury Ministry salary supervisor, different government ministries. Required information: developing trends in labor agreements that influence civil servants and administrative flexibility. Example: starting processes of examination of alternatives to the issue of personal contracts and uniform contracts in civil service. Economic and social trends Source of information: Central Bureau of Statistics, academic institutes and studies, global and OECD 10 data, Ministry of Education data etc. Required information: major trends in education, students achievements, developing gaps in knowledge and information, study majors in universities and institutions of higher education. Example: The proportion of computer engineering graduates is significantly lower compared to the number of those employed (despite the high wages), attests at developing market failure that one should prepare for. Possible implications of planning human resources in government ministries are formulation of systemic and local solutions for handling the developing deficiency through cooperation with academic institutions and creating unique studies to suit the ministries requirements. 9 The Marker review of the Tzemach Committee 10 Country statistical profile: Israel

20 National projects Source of information: government decisions, media and data bases. Required information: significant projects by the civil service and/or relevant ministry requiring assessments for prior response purposes. Example: constructing an airport in the south of the country requires preparations by the Tax Authority, Immigration and other ministries for manning positions in the south. Information, knowledge and technology Source of information: research institutions, academia, National Council of Economyç internet and media. Required information: major trends in technological development and information and knowledge mobility. Skills required from human resources following technological changes. Example: information and knowledge currently held by citizens significantly change the relations of power between citizens and government. Technological development changes the way citizens receive medical treatment 11. The possible significance for planning human resources in a government ministry is the training required for civil servants in direct (and indirect) contact with citizens and preparation for different type of service. Civil service surveys Source of information: surveys carried out by research institutions, government ministries and internal surveys. Required information: information regarding trends and data arising from the surveys, developing and multi-annual trends. Example: Haifa University recently carried out a survey of public service 12 displaying trends in public satisfaction with the service it receives. Possible implications for planning human resources in government ministries is determining a work plan and measurable improvement goals %D7%99%D7%94%20%D7%A8%D7%A4%D7%95%D7%90%D7%99%D7%AA%20%D7%9B%D7%9E%D7%A9%D7%A4%D7%99%D7%A2%D7%94%20%D7%A2%D7%9C%20% D7%94%D7%AA%D7%A4%D7%AA%D7%97%D7%95%D7%AA%20%D7%A9%D7%99%D7%A8%D7%95%D7%AA%D7%99%20%D7%A8%D7%A4%D7%95%D7%90%D7%94%2 0-%20%D7%9E%D7%90%D7%AA%20%D7%90%D7%A8%D7%99%D7%A7%20%D7%A7%D7%9C%D7%99%D7%99%D7%9F

21 Issues rising from previous year s summary Source of information: annual summaries and reviews held by different ministries regarding the previous year s work plan. Required information: major issues arising from the work plan that require handling and/or change of approach. Example: the issue of proper representation of women in senior civil service positions that is relatively lower than the percentage of women among all civil servants. Possible significance for planning human resources in government ministries is attention in the coming year s work plan, setting quantitative and measurable objectives that would improve the situation. Unique issues Source of information: government ministries, press, research institutions. Required information: additional subjects on the public/government/ministerial agenda that require different and/or individual attention in the work plan. Example: preparation for a national election year that causes a large number of replacements in various positions and change of policy, requires prior preparation for the process. 21

22 Fourth section: data analysis The methodology used for data analysis is the SWOT model (Strengths, Weaknesses, Opportunities, Threats) and must be based on results of the previous year s summary and insights that arose from it, and decision supporting data collected during the data identification and collection stage. The model helps formulate strategic insights in a changing, dynamic environment, enabling examination of the strengths and drawbacks stemming from the ministry s internal world, along with the opportunities and threats coming from the external world. Use of this model has three major targets: help formulating policy objectives, creating comprehension among the parties that influence realization of goals and objectives, and generating strategy for designing the ministry s work plan in view of the internal and external strengths, weaknesses, opportunities and threats. Review of opportunities and strengths in the external environment assessment of the directions and challenges that influence future ministry activities, combined with examination of the social-demographic, economic and political environment in which the ministry in general and the division in particular is operating. The guiding questions for this issue are: where are the good opportunities to be found? What are the threats and obstacles that may prevent improved performance or fulfillment of the organization s assignment objectives? Example: identification of an economic crisis situation, causing a rise in the number of job seekers. From the perspective of the ministry HR party this period provides an opportunity to obtain high-quality employees, and therefore it should plan for enhanced recruitment efforts in this period. Inter-organizational analysis of internal strengths and weaknesses examination of internal factors that could promote or delay execution of ministry policy. The guiding questions for this matter are what are our advantages? What needs to be improved? Where did we go wrong and what caused it? Example: identification of a state of professional weakness deriving from the retirement of professional leaders (focus of information) without realization of inter-generation knowledge transfer processes should aim at concentrating training efforts and enhancing professional knowledge at weak points. Weighing the difference between internal and external environment at this stage the difference between internal and external environment should be assessed in view of the ministry s current goals and objectives, as well as required future changes and results. Finally, alternatives for response based on the analysis should be drafted. 21

23 One of the ways of examining alternatives for solving identified differences is using the SWOT matrix to examine strategic alternatives: Internal strengths S Internal weaknesses W Opportunities in external environment O Maxi-maxi strategy Strategies utilizing strengths to maximize opportunities Mini-maxi strategy Strategies minimizing weaknesses by utilizing opportunities Threats in external environment T Maxi-mini strategy Strategies utilizing strengths to minimize threats Mini-mini strategies Strategies minimizing weaknesses and avoiding threats 22

24 Example of mapping examples in the document using the SWOT model Internal strengths Internal weaknesses Opportunities in external environment Opportunity; reform in human resource management presents a concept and activities designed to enhance role definition and concept of the senior deputy director of human resources as the strategic party in the organization. Internal strength: many current deputy directors are willing to realize professional enhancement processes for leading the civil service. Opportunity: trend giving rise to the possibility that the economy of developing countries, mainly in the Orient, will overtake that of developed Western nations. Internal strength: ability to divert resources and knowledge in civil service providing response to relevant public and economic requirements to create a base for commercial/economic/cultural and other relations with the Orient. Opportunity: construction of an airport in the south creates opportunity to include additional populations in the labor market and generate additional jobs. Internal strength: increased presence of government ministries in the south provides opportunity to recruit and place peripheral population in civil service jobs. Opportunity: trend creating the opportunity for the economy in developing countries, particularly the Orient, to overtake the economy of developed Western countries. Internal weakness: civil service manpower in areas relevant to trade, economic, cultural and social relations trained and used to working with countries with Western culture. Threat in external environment: aging population and available trained and experienced persons over 40 perceived as less attractive on the commercial labor market compared to younger people. Internal strength: lack of flexible employment models and existence of stigmas relating to the abilities of the older population. Threats in external environment Threat in external environment: significant wage difference among some of the professional required for civil service (e.g. engineers) threaten the ability to retain and recruit good-quality personnel into civil service. Internal strength: civil service ethos, tenure in service and ability to influence the entire country are a factor that balances out and complements wage differences. Threat in external environment: the information, knowledge and technological revolution provides a ready and accessible source of employment of good-quality personnel in other societies and other countries, creating possible mind escape and stars that abandon the government system. Internal strength: the civil service ethos, ability to enable the country to become digital, creating a supportive environment for knowledge and develop are a significant factor in the competition for excellent human resources in the country. Threat in external environment: preparation for significant budget cuts based on government decisions. Internal strength: inability to influence the budget directly, terms of service, work environment and wages may cause high-quality manpower to leave civil service for other sectors. Threat in external environment: lacking alternatives, the need to cut down on personal contracts in civil service poses a threat to the ability to recruit highquality personnel into civil service. Internal strength: the inability to adapt other wage models to the norms accepted in some professions to that in the public sector is a weakness in the ability to compete for good-quality manpower. 23

25 Finally, assessment of alternatives should be carried out, based on the following criteria: Conformity to what extent does the alternative conform to ministry policy and strategy and does it serve the required results? Resource applicability is the alternative viable considering the given abilities and resources? Acceptance will the alternative have enough support and legitimacy for it to be applied? Handling ways will be expressed in the work plan, specified in the Civil Service Human Resource Plan Writing Guide Reform Application Headquarters, October Summary The Civil Service Commission through the reform application headquarters/ strategic and policy planning division will distribute the initial insight of the civil service situation assessment based on the methodology described in this document. After receiving comments from headquarters ministries and senior deputy directors of human resources in civil service, the civil service human resource situation assessment for human resources will be published in the course of May/June during the work year. Based on this, after going into the details relevant to his ministry, the senior deputy directors of human resources will prepare a situation assessment of ministerial human resources based on the methodology specified in this document. This organized process of assessing the situation of civil service human resources will bring about a work plan focusing on the major issues at hand thereby serving to adjust civil service to the frequent changes in internal and external environment and will ensure, in the long term, better service for Israeli citizens. 24