Australian Public Service Recruitment Guidelines: Operational guidance for agencies

Transcription

1 Australian Public Service Recruitment Guidelines: Operational guidance for agencies Australian Public Service Commission

2 Message from the Commissioner Recruitment, be it engagement, promotion or movement of existing APS employees, underpins the integrity and performance of the Australian Public Service (APS). Processes that support recruiting the right employees represent a key step in ensuring the APS is representative of the people we serve and effective in administering our responsibilities. I welcome the publication of the APS Recruitment Guidelines which provides recruiters at all levels with a best practice guide to support the good work already taking place across agencies. The overarching goal of the guidelines is to provide a resource that is easy to use, practical and one that explains the highly involved recruitment process. This guide is designed for ease of use whilst still being a comprehensive guide for recruiters. It provides guidance on tailoring recruitment processes to achieve greater efficiency while maintaining transparency and agency autonomy. The guideline s key aims are to: ensure the principle of merit is upheld dispel some widespread myths about the recruitment process build capacity encourage agencies to consider alternative recruitment processes. I thank the agencies that have contributed to the development of these guidelines and trust you will find them valuable and informative, enabling your agency to continuously improve its recruitment processes and to find the right people for the right job. Stephen Sedgwick AO Australian Public Service Commissioner ii

3 Table of Contents Message from the Commissioner...ii Introduction...v Scope of the guidelines...vi Stage 1 - Planning...1 Overview...2 Roles and responsibilities...2 Job analysis...4 Writing a job description...6 Defining other work-related requirements for the job...7 Workforce diversity...9 Other planning considerations...11 Administration...13 Options to fill a vacancy...15 Stage 2 - Sourcing...17 Overview...18 APS Redeployment Register...18 Attracting applicants...18 Accessibility issues...19 Notifying the employment opportunity...19 Developing selection criteria...20 Existing orders of merit...20 Stage 3 - Assessing...23 Overview...24 The merit principle...24 Work-related qualities...24 Selection panels...24 Short-listing...25 Stage 4 Selecting...27 Overview...28 Recommending preferred applicant...28 Selection report...28 Delegate decision...28 Secondary considerations...29 Providing feedback to unsuccessful applicants...29 Australian Public Service Recruitment Guidelines: Operational guidance for agencies iii

4 Stage 5 On-boarding...31 Overview...32 Contacting successful applicant and making the employment offer...32 Notifying the outcome in the APS Employment Gazette...33 Induction...33 Probation...34 Cancelling an employment decision...34 Recruitment Performance Measures...35 Overview...36 Direct cost of recruitment activities...36 Quality of recruitment outcomes...36 Quality of recruitment processes...37 Improved applicant experience...37 References...38 iv

5 Introduction The APS Recruitment Guidelines (the guidelines) provide APS agencies with information to tailor recruitment processes to achieve greater efficiency, preserve transparency and open competition while upholding the principle of merit. The guidelines encourage agencies to continue to be autonomous and flexible when managing their recruitment processes within the boundaries of legislation while providing consolidated information and guidance modelled on best practice. They provide human resource practitioners and APS managers with: links to relevant legislation agency case studies facts to dispel recruitment myths a Manager s Toolkit (toolkit). The guidelines are to be used in conjunction with the Australian Public Service Commission (APSC) publication Recruitment and selection in the APS which details the legislative and policy framework applying to recruitment. The guidelines are structured around the five stages of a recruitment process: planning sourcing assessing selecting on-boarding. Table 1: Relationship of guidelines to Recruitment and selection in the APS APS Recruitment Guidelines Recruitment and selection in the APS Stage 1 - Planning Step 1: identify employment opportunity, category and classification and whether vacancy needs to be filled Step 2: Step 3: decide how vacancy is likely to be filled (i.e. engagement of new employees or promotion or movement of existing employees) develop supporting documentation Stage 2 - Sourcing Step 4: decide what notification is required (i.e. is gazettal needed?) Step 5: Step 6: Stage 3 - Assessing Step 7: accept applications Step 8: decide if opportunity is to be open to all eligible members of the community notify in the gazette additional advertising optional assess relative suitability of candidates Stage 4 - Selecting Step 9: recommend preferred candidate on basis of relative merit Step 10: delegate makes selection decision Stage 5 - On-boarding Step 11: implement decision Australian Public Service Recruitment Guidelines: Operational guidance for agencies v

6 The guidelines also include performance measures that can be applied to recruitment which can drive greater accountability for recruitment, encourage staff to plan and implement efficient recruitment processes and provide agencies with data to inform continuous improvement. Scope of the guidelines The guidelines apply to APS Level and Executive Level recruitment processes for: ongoing employment opportunities non-ongoing opportunities for a specified term of more than 12 months non-ongoing opportunities for a specified task reasonably estimated to take more than 12 months. The following topics are not covered by the guidelines because they are covered by other APSC policy and guidelines: Senior Executive Service recruitment agency head and statutory office holder selection non-ongoing employment for 12 months or less workforce planning ion dy kit vi

7 Roles and responsibilities Job analysis Writing a job description Defining other work-related requirements for the job Workforce diversity Other planning considerations Administration Options to fill a vacancy Planning

8 Overview Recruitment is the process of having the right person in the right place at the right time. It is crucial to organisational performance in the APS. Recruitment is a critical activity, not just for the human resources area but also for line managers increasingly involved in the selection process. As with any other important project, recruitment needs to be thoroughly considered, planned and appropriately resourced. A well-planned recruitment process is more likely to result in selecting the applicant/s that best fit the job. Recruitment processes vary and each has its own considerations and requirements. It is important for everyone involved in recruitment to be equipped with the knowledge and skills needed to undertake their respective roles. A well run recruitment process reflects positively on the agency and the APS as a whole. In a competitive labour market it is important that applicants consider the APS as an employer of choice. An applicant s perception of the APS can be influenced through participation in efficient and transparent recruitment. From a strategic perspective, each agency should consider how the planning stage can help achieve: more timely and efficient recruitment processes well defined job requirements that attract applicants who are the best fit for the role and agency greater buy in to recruitment from managers and employees, including a greater willingness to assist in the process (e.g. as a selection panel member) greater diversity of applicants, allowing the APS to better serve the diverse Australian community. From an operational perspective, a well-planned recruitment process should consider: gaining the delegate s approval to commence the process gaining the delegate s approval at the end of the planning stage establishing the required start date for the successful applicant scheduling assessment activities, such as short-listing applicants, interviewing and contacting referees (if needed) ensuring the availability and commitment of each selection panel member securing an appropriate and accessible venue for selection activities budgeting impacts if applicants need to travel to attend selection activities (which may depend on the agency s Enterprise Agreement) providing applicants with reasonable notice if they are to attend selection activities. Roles and responsibilities This section explains the roles that may be involved in the recruitment process. ion While there is no legislative requirement to form a selection panel, in most APS agencies a selection panel is formed and tasked with the responsibility of assessing the suitability of applicants. ion dy Stage 3 - Assessing section of the guidelines kit dy Information Sheet - Selection panel composition kit 2

9 Role of the delegate The delegate is delegated employer powers by the agency head. The delegate is responsible for making the selection decision, and is accountable for ensuring that selection processes and decisions comply with merit requirements. Agencies may decide to have the delegate solely responsible for assessing applications and employment decisions, although this is rare. The delegate may be part of the selection panel, although some APS agencies have internal policies specifying that the delegate cannot be part of such a panel to ensure impartiality and avoid any perception of patronage or favouritism. In many cases an agency may require the delegate to approve the request for recruitment. This may include ensuring that the employment opportunity is correctly notified and endorsing selection documentation and assessment methods. information case study tool kit Role of the chairperson The chairperson is responsible for leading the selection process and managing the selection panel (if one is used). This may include overseeing panel composition and administrative requirements such as scheduling assessment activities and procuring scribe services (if one is used). Many agencies require the chairperson to complete specific training before assuming these duties. information case study tool kit Role of the selection panel member There are no legislative requirements on the number of people to be on a selection panel, nor the classification of panel members or gender balance. Each selection panel member is responsible for assisting in assessing the suitability of applicants for the role advertised. Many agencies require selection panel members to complete specific training before assuming selection panel duties. Role of the scribe There is no requirement for a scribe to be used in APS recruitment processes. A scribe is designated to document the recruitment process. A scribe can be asked to be a member of the selection panel, although this is not usual practice. Having a scribe can allow selection panel members to focus on assessment activities rather than on taking notes. A scribe can also draft the selection report more quickly, if they have been specifically designated for that role and are therefore able to give it a high priority. A scribe can be an APS employee, an APSC Recruitment Advisor or an external recruitment service provider. Australian Public Service Recruitment Guidelines: Operational guidance for agencies 1: Planning 3

10 ation study ol kit Role of the contact officer A contact officer must be identified for each vacancy notified in the APS Employment Gazette. This officer should be able to respond to queries from potential applicants regarding: duties to be performed work-related qualities required background information and context about the role and agency reporting structure where the work will be undertaken special requirements of the job shift work, peak work periods, part time or full time reasonable adjustments for people with disability that can be put in place in relation to the selection process. Contact officers are often the applicant s first contact with the agency and it is important that they be available, professional and friendly, with a good understanding of the role and an ability to convey relevant information to applicants. The APSC offers the Getting that selection right training program for any APS employee that has been or is likely to be selected for a recruitment selection panel. The program aims to achieve quality recruitment outcomes in line with APS merit-based assessment requirements. It is good practice to ensure the contact officer is not acting in the role being filled and is not a potential applicant. This removes any conflict of interest or perception of patronage or favouritism. The applicant The applicant (or candidate) is a person who has submitted a formal job application for assessment. ion ation dy study kit ol kit Job analysis Job analysis is the process used to collect information about the duties, responsibilities, necessary skills, essential qualifications, personal attributes and work environment relevant to a job. The process can assist in preparing selection documentation and identifying work-related qualities for the job. Investing time in job analysis increases the likelihood of attracting, selecting and retaining the best person. 4

11 Job definition A number of triggers can lead to a recruitment process, including an employee leaving, a restructure, the expansion of a product or service or a new policy or program leading to the creation of new jobs. Re-using existing job documentation can be tempting and a quick option for those involved in recruitment, but agencies will benefit from reviewing previous documentation and accurately defining the role to be filled. Changes to the role and tasks involved since the original job description was written should be considered and incorporated. The recruiting manager should consider restructuring or re-allocating particular tasks and functions, as this may result in more efficient processes or present an opportunity for existing staff to benefit by: gaining wider experience developing new skills experiencing an increased variety of tasks participating in job-sharing opportunities increasing hours of part-time staff increasing flexibility of hours. The manager should also consider if the: job is still necessary duties need to be performed in the same way or be amended classification is appropriate for the duties given the agency s work level standards or whether the role should be re-classified scope is right for new duties (location of the job; reporting structure etc) duties could be assigned to an existing employee on an ongoing or temporary basis introduction of alternative working methods could reduce workload and/or improve service quality job is likely to change in the foreseeable future job lends itself to flexible working arrangements, for example whether it could be filled on a part time basis job could be best performed by an Aboriginal or Torres Strait Islander person, and therefore could be advertised as a special measure job could be performed by a person with intellectual disability, and therefore could be advertised as a special measure. information case study This information can be gathered through internal reports, performance agreements observation (e.g. what tasks are performed and how long is spent on them), questionnaires and/or interviews. The analysis of this information should form the basis of a job description and work-related qualities specification. Agencies should also consider if the job could be performed by a person with intellectual disability who cannot compete in a competitive selection process. If this is the case, special measures can apply. tool kit Information sheet - Recruiting people with an intellectual disability Template - Job analysis Australian Public Service Recruitment Guidelines: Operational guidance for agencies 1: Planning 5

12 Job description A job description describes what the person in the job is expected to do. It is a picture of the purpose, scope, tasks, duties and responsibilities of the job. Examples of how an accurate job description benefits the recruitment process are listed below: provides the information to prepare the APS Employment Gazette employment opportunity notification and other advertisements helps identify selection techniques ensures employment decisions are based on merit and the work-related qualities required to do the job and minimise the possibility of patronage and favouritism highlights the expected standard of work to employees and management to help ensure effective performance in the job provides potential applicants with correct and relevant information identifies the key skills required to do the job The most effective job descriptions detail the key results to be achieved rather than just listing tasks to be undertaken. While job descriptions can be presented in many ways, it is recommended that they include the following information: Job context title, classification and salary range role of the branch and group in the agency as well as overarching information about the agency where the job fits in the reporting structure (who it is responsible to and for) job location. Job summary brief description of why the job exists job responsibilities and a list of duties a brief explanation of the main duties and priority result areas. Writing a job description Job descriptions should only reflect the essential or inherent requirements of the job and not unnecessarily exclude potential applicants. The following is an example of how to improve job descriptions based on the inherent requirements of the job and writing them in a way which is inclusive of the community: must have drivers licence ability to scribe shorthand must have knowledge of the department s quality control strategies ability to travel extensively ability to record meetings have an understanding of quality assurance frameworks 6

13 Identifying the role s inherent requirements involves analysing what a person is being hired to do, rather than prescribing how a job is done. Firstly identify and list the main activities to be carried out. After identifying activities, group them and consolidate to ensure not too many are listed. Job descriptions should not be too lengthy and in most cases need no more than six to eight headings. Then define each activity as a statement of what the employee is expected to achieve and deliver on - in effect the output. This can be done in one sentence, beginning with a verb, in line with the examples below: drafts plans tests manages schedules. Describe the object of the verb (what is done) as briefly as possible, in line with the examples below: drafts ministerial correspondence plans a stakeholder management strategy tests new Information Technology systems manages a small team schedules Information Technology change releases. State briefly the purpose of the activity in terms of outputs or standards to be achieved, in line with the example below: Manages a small team to organise mail and deliver records to the Secretary s office in accordance with departmental standards. Defining other work-related requirements for the job Agencies should consider the following issues early so they can be included in planning processes as appropriate. Essential qualifications Agencies may require people to hold certain qualifications, such as academic or technical qualifications or certification from a professional body. Examples of essential qualifications include: registration as a medical practitioner for medical roles a law degree and eligibility to be admitted to practice in a state or territory of Australia for legal roles an undergraduate degree for entry into a graduate development program. Attaining and verifying essential qualifications can be imposed as a condition of engagement. information case study Australian Public Service Recruitment Guidelines: Operational guidance for agencies 1: Planning 7

14 tion tudy l kit Information sheet - Essential qualifications Citizenship There is a general expectation that a person to be engaged as an APS employee will be an Australian citizen (section 22(8) of the Public Service Act 1999). An agency head may, however, waive this requirement depending on the agencies needs and circumstances (e.g. a shortage of the skills or professional qualifications required to perform particular duties). In these circumstances agencies may choose to waive the citizenship requirement or impose the attainment of citizenship as a condition of engagement. ion dy kit Security clearances An agency head may determine that some positions require staff to carry out duties requiring a security clearance. The level of security clearance should be reviewed before starting a recruitment process, as the nature of duties may have changed. The requirement to have or obtain a security clearance may be imposed as a condition of engagement. In some cases the agency may require clearance before engagement takes effect. When an existing APS employee is moved or promoted to a job requiring the employee to obtain or upgrade a security clearance, the agency may choose to delay their start date (or gazettal of promotion) until the clearance is obtained. Some base level security vetting can be conducted by the selection panel by including integrityrelated questions in the scope of the referee s report. The Protective Security Policy Framework provides the appropriate controls for the Australian Government to protect its people, information and assets, at home and overseas. The Australian Government Security Vetting Agency (AGSVA) is the central unit that conducts security vetting for all Commonwealth agencies (apart from exempt ones). Clearances granted by AGSVA have whole-of-government effect. 8

15 information Attorney-General s website: case study information tool kit case study AGSVA website: (Part 2.2) tool kit Information sheet - Security clearances Workforce diversity The diversity of people working in the APS is one of its greatest strengths. Some groups of people are disproportionately represented in the APS and agencies have a responsibility to ensure that they continue to increase the diversity of the APS workforce. There is continued disadvantage experienced by particular groups of people in the workplace, including women, Indigenous Australians, people with disabilities and those who suffer disadvantage on the basis of race or ethnicity. It is recommended that agencies develop recruitment strategies that accommodate differences in the background, perspectives and other factors (such as family responsibilities) of both prospective and existing employees. People with disability The recruitment and retention of people with disability increases the diversity of the APS and develops an organisation that better represents the Australian community. It is important to remember that people with disability as a group are diverse, and include people with physical, intellectual, psychological, behavioural and sensory impairments. According to the Australian Bureau of Statistics, around 18.5% of the general population experiences disability. In 1999, 5% of APS staff identified as having a disability, but this figure fell to 4% by 2002 and to 3% by To reverse the decline in the representation of people with disability in the APS, the APSC launched the As One- APS Disability Employment Strategy. This strategy aims to strengthen the APS as a progressive and sustainable employer of people with disability, and to improve the experience of people with disability in APS employment. The As One strategy includes some fundamental actions and objectives related to diversity including: improving leadership increasing agency demand for candidates with disability improving recruitment processes to enable more candidates with disability to enter the APS fostering inclusive cultures that support and encourage employees with a disability. Australian Public Service Recruitment Guidelines: Operational guidance for agencies 1: Planning 9

16 ion dy kit Reasonable adjustments A recruitment process should allow people with disability to compete on an equal basis for employment opportunities. This sometimes means the selection process needs to be modified or adjusted in some way to suit a particular individual. It is important to provide adjustments that maintain the dignity of the person and do not impose unnecessary administration on the person with disability. The process of arriving at reasonable adjustments, if not conducted with the experience of that applicant in mind, can be seen by that applicant as unwelcoming. Most adjustments come at little or no cost to the agency, but agencies are responsible for ensuring that adjustments are made. Applicants should be asked if they require any adjustments when submitting their application, to allow time to discuss modifications with them and perform preparatory work to put the adjustment in place. For example, Auslan interpreters (for hearing impaired applicants) are in demand and must be booked in advance, or certain software installed if the applicant is being tested using a computer. Reasonable adjustments can occur at any part of the recruitment process, including on-boarding. Some applicants will wait until a job offer is made before disclosing their disability or asking for reasonable adjustments. Note that, aside from being good practice, the Disability Discrimination Act 1992 requires employers to make reasonable adjustments for applicants and employees with disability. Special measures provisions relating to certain groups with disability The Public Service Commissioner s Directions make special measures provisions available to assist people with intellectual disability or people with disability that are unable to compete on merit to gain APS employment. Often recruiting through a special measure can be faster and less expensive than mainstream recruitment. People with intellectual disability The APS can play a significant role in increasing the participation of people with intellectual disability in employment. People with intellectual disability encounter challenges that are different from people with other types of impairment. The APS can recruit people with intellectual disability using special measures using the Public Service Commissioner s Directions. ion Information sheet - Making reasonable adjustments in a recruitment process Information sheet - Disclosure of disability dy ation Information sheet - Developing a business case for disability employment kit study Case study - Traineeships for people with intellectual disability ol kit 10

17 Indigenous applicants Increasing employment of Indigenous peoples and reducing the level of disadvantage experienced by them is integral to the Australian Government s agenda. The government is committed to achieving 2.7% Indigenous employment by The APS has an important role to play here by modelling better practice to the broader workforce and strengthening community capacity. Agencies should consider how they will attract Indigenous applicants to apply for all vacancies, not just those that use Indigenous specific processes. Agencies should consider the use of targeted avenues to increase the awareness of Indigenous employment opportunities through the use of Identified Positions or Special Measures. Identified positions Identified positions are jobs open to Indigenous and non-indigenous applicants who meet selection criteria requiring: an understanding of the issues affecting Indigenous peoples the ability to communicate sensitively and effectively with Indigenous peoples. Agencies should note that these criteria can be tailored to suit business needs as appropriate. The use of Identified Positions does not directly increase the representation of Indigenous people in the APS workforce but it does assist in ensuring that the APS has people with the necessary skills to deliver appropriate services to all Australians, and that the APS is seen as an employer of choice amongst Indigenous Australians. Special measures Special measures provisions identify jobs restricted to applications from Indigenous peoples, to provide opportunities for them to work in the APS. information case study tool kit circular Other planning considerations Agencies can access other planning options to help with recruitment, including the following. Using an Independent Selection Advisory Committee An Independent Selection Advisory Committee (ISAC) is an independent committee that makes recommendations to agencies about the suitability of candidates in staff recruitment exercises. Such a committee may be used to fill vacancies for APS 1 to 6 (or equivalent levels). Australian Public Service Recruitment Guidelines: Operational guidance for agencies 1: Planning 11

18 If an agency wants to establish an ISAC they must make a formal request to the Merit Protection Commissioner. tion ion udy dy l kit kit Information sheet - Entry level recruitment program Australian Taxation Office Outsourcing the recruitment process Many commercial recruitment providers can help conduct recruitment. Agencies can outsource the entire process or specific components (e.g. short-listing, interviews or online assessment) to these providers. However, agencies must be mindful that it is their responsibility when outsourcing some or all of the recruitment process to ensure that: all legislative requirements are met the employment opportunity is notified in the APS Employment Gazette reasonable adjustments are made to level the recruitment field for people with disability Agencies must adhere to procurement processes and procedures when sourcing a commercial recruitment provider. Also, even though a recruitment process is outsourced, the delegation to make the employment decision remains with the agency s delegate. Agencies should note that when a recruitment process is outsourced the advertising of the job must still comply with the Department of Finance and Deregulation s (DoFD) policy on non-campaign recruitment advertising and employment opportunities must still be notified in the APS Employment Gazette. ion tion dy udy DoFD Website: kit l kit Information sheet - Outsourcing recruitment services Bulk recruitment rounds Bulk recruitment rounds can be an efficient way to employ a large number of employees for the same or similar roles within an agency. Bulk recruitment rounds can be undertaken for different classifications or a single classification. Orders of merit can be formed from bulk recruitment rounds and used to fill the same or similar roles across the agency for a 12 month period from the date the vacancy was initially notified in the APS Employment Gazette. 12

19 information Stage 4 Sourcing section of the guidelines case study information tool kit case study Case study - Entry level recruitment program Australian Taxation Office tool kit Administration Scheduling Scheduling the recruitment process should start as soon as it is confirmed that recruitment is required. Consideration should be given to: nominating selection panel members and ensuring they have the time to be involved in the selection process scheduling dates by which assessments need to be completed by (e.g. short-listing) scheduling and booking venues for meetings and assessment activities Late applications Agencies are responsible for developing their own policy for managing late applications. These policies should be fair and transparent and be made apparent to applicants when the job is advertised. In considering whether to accept late applications, agencies should discuss the following types of questions: Will all late applications be accepted or will they be considered on a case by case basis? Were there extenuating circumstances preventing the applicant from submitting their application by the due date? How much extra time should be given to applicants to submit their application, bearing in mind the process must be fair to all applicants? Agencies may also consider an alternative approach should issues arise with e-recruit systems or other technology preventing applicants from submitting on time. Agencies need to ensure applicants are not adversely affected because of these issues. information case study tool kit Australian Public Service Recruitment Guidelines: Operational guidance for agencies 1: Planning 13

20 Engagement of people who have received a redundancy benefit Applicants who have received a redundancy benefit payment from the APS or Australian Parliamentary Service have limitations placed on their APS engagement. In broad terms, redundancy benefit recipients cannot be re-engaged until their redundancy benefit period has expired. A redundancy benefit is defined as a: severance or similar payment made to the employee on cessation of their employment payment made to the employee as a result of shortening the retention period. There is no standard exclusion period for which redundancy benefit recipients are limited from being engaged in the APS. The period is commensurate with the redundancy benefit paid. In some circumstances an agency head may re-engage a redundancy benefit recipient before their redundancy benefit period expires. ion dy kit ation study ool kit Record keeping The Administrative Functions Disposal Authority (AFDA) sets out requirements for keeping or destroying records of administrative business performed by most Australian Government agencies. Records documenting the filling of vacancies in an agency must be retained for 7 years after the recruitment has been finalised. These documents would be retained on a recruitment file and may include: advertisements applications referee reports psychological testing interview assessments/exercises interview reports gazette notices notification to unsuccessful applicants. Records documenting the employment history of ongoing employees (letters of engagement, letter of acceptance, details of assigned duties, probation reports, evidence of education qualifications, medical examinations/health clearances) should be retained until 75 years after the date of birth of the employee or 7 years after last action whichever is the later. These papers would be retained on a personnel file. Records documenting reviews of promotion decisions must be retained for 1 year after the recruitment has been finalised. These papers would be retained on a recruitment file. 14