HUMAN RESOURCE MANAGEMENT SYSTEM (HRMS) DOCUMENTATION OF BEST PRACTICE FEBRUARY 2011 Researched and Documented By: OneWorld Foundation India
2 TABLE OF CONTENTS Executive Summary... 3 Background... 4 Objective... 4 Working Design... 5 Capturing Legacy Data... 5 Manpower and Infrastructure... 5 Procedure... 5 Development of Software... 6 Transferring Legacy Data... 7 Building ICT infrastructure... 8 Imparting Training, Change Management and Upkeep... 8 Methodology... 9 Key Stakeholders... 9 Benefits to key stakeholders... 9 Lessons Learned... 9 References... 10
EXECUTIVE SUMMARY The General Administration Department (GAD), Odisha has leveraged technology to modernise the workflow of administrative processes across all departments. To improve the delivery of public services, the government has launched the Odisha Modernising Government Initiative. The programme aims to streamline organisational activities by digitising government processes and policy frameworks to satisfy employees needs and adhere to citizens demands. One reform under the programme, known as the modernised Human Resource Management System (HRMS), was launched on 6 December 2010. HRMS is a digitised database of all state and district officials. It was initially supported by UK Department for International Department (DFID), starting in 2007; since 2009 the project has been continued under State provisions. The project overcame initial constraints of resistance from the wide base of actors involved. The result has been the successful computerisation of personnel in 38 administrative departments, with 102 heads - a total of 4,50,000 employees in 6543 offices across 30 districts. Input of personnel information into the database follows an employee life cycle approach. A HRMS cell was set up at the district and state levels. Workshops were conducted to train staff on completion of forms through accurate input of personal employee details and sending them to GAD officials for final validation. Upon completion of training, certificates were distributed to the newly appointed Human Resource Management Information Officers (HIO) and Assistant Human Resource Management Information Officers (AHIO). HRMS is a systematic model that benefits all tiers of the government through information exchange between departments, informed decision making by the secretariat and unit heads, and extensive monitoring and evaluation of planned projects by GAD officials.
4 BACKGROUND Human Resources Management System (HRMS) is part of the Odisha Modernising Government Initiative undertaken by the Administrative Reforms cell of the General Administrative Department (GAD) to streamline personnel management and create a professional working environment. HRMS maintains legacy data of all government employees in an electronic database. It has replaced the manual handling of personnel information, ensuring data accuracy and enhancing employee satisfaction. Secondly, employee concerns related to recruitment, salary, pension and management can be transacted and addressed electronically, making communication easier and faster. Quick redressal of employee grievances is also made possible through the system. HRMS keeps track of public expenditure so that all government resources - money and manpower - are utilised in a productive and efficient manner. In this way, it further aids in administrative planning. Lastly, the automated HRMS saves government employee time and energy, which increases productivity and in turn, accountability towards citizens needs. A modernised HRMS was conceptualised to address the following problems with a manual operating system: a) Delays in updating employee and pensioner information b) Employee dissatisfaction in light of service delays c) Delays in sanctioning pensions d) Incomplete annual confidential reports (ACR) e) Pending departmental proceedings f) No confirmation of ad hoc promotions by Orissa Public Service Commission (OPSC) g) No finalised gradation list h) Absence of a redressal mechanism for grievances i) Delays in litigation cases j) Unavailability of employment history details OBJECTIVE The computerised human resource management system is an effective tool used to streamline departmental activities. It aims to address personnel management issues, reduce delays in recruitment, and handle distribution of salaries and pensions in a timely manner. It connects all government departments to avoid mismanagement. This modernisation project aims to create an optimal personnel system which satisfies employees and furnishes the necessary means for the fulfilment of broader organisational goals 1. The following are the key objectives of the HRMS model: To provide access to an integrated view of employee information across all departments of government 1 Source: http://www.orissa.gov.in/ga/arcell/ar.htm)
5 To ensure effective decision making through timely data entry and real time data generation. All government heads have access to service books online through which they can monitor employee performance To provide a single window service for all the employees To guarantee transparency in revenue and expenditure of governmental activities To create a user-friendly operating environment for employees, accessible by all unit heads and the secretariat To publish personnel rules, forms related to pensions, leave applications etc. online for easy access To benefit citizens by building a more efficient and effective workforce WORKING DESIGN HRMS helps in facilitating an ideal mode of communication between the departmental heads and employees. It serves as a database for monitoring of all employee information and in turn, helps officials to make informed decisions, and planning and executed activities within a stipulated timeframe. Prior to its implementation, the software went through multiple revisions, legacy data was transferred from hard copy to online, and training on system operations was given. CAPTURING LEGACY DATA MANPOWER AND INFRASTRUCTURE There are 331,095 service books at present which contain information about all government employees, from their date of appointment to resignation. Seventy data centres were opened and 1200 Data Entry Officers (DEO) appointed. Data validators were also appointed. PROCEDURE a) Data entry of Service Book The Service Book that contains all government employee information is transferred by the Establishment Staff to the Data Entry Vendor (DEV) to upload it into the HRMS. The content is then verified by the Data Entry Vendor and the district OMGI Coordinator. b) Validation to ensure quality assurance of data entry A printout of data entered is verified by the Validator. Errors are corrected by the DEV and a second revised printout is passed on to the Validator to confirm the corrections. The revised printout is then submitted along with the Original Service Book to the Establishment Staff. c) Authentication The revised printout is sent to the employees by the Establishment Staff for feedback. The corrections are made by the DEV in the presence of the Establishment Staff and a final printout is taken. After incorporating all changes, an authentication certificate is given by the Establishment to the assistant HRMS officers.
6 DEVELOPMENT OF SOFTWARE The HRMS model functions on an Oracle server (for database) and HRMS application server (for applications). Quality assurance of the information technology was performed by the Standardization Testing and Quality Certification (STQC) Directorate, an affiliate of the Department of Information Technology, India. The software is capable of performing the following functions:
7 Online management of leave and transfer Online performance appraisal Automatic payroll (budget allotment expenditure) Vigilance Information System: Online pension settlement Bulletin Board Services Citizen Portal Leave account of all government employees is now easier to manage and maintain. Employees can apply for any type of leave online. This request is digitally forwarded to the concerned officer/department for on time sanctioning. The leave records are automatically generated. Transfer orders of employees also take place on time. With an online performance appraisal system, managers can update relevant employee information and share it with management at their own convenience. The tool also calculates performance percentages and rating averages automatically, instantly, and free of errors. 2 Through a digital salary mechanism, employees are paid on time. Used for monitoring employee behaviour and enforce punishments if required. Pensioners can easily access pension statements and updates, and can issue pension order copies online. A computer based application that allows employees to exchange messages and share files through the network. Electronic interface to update citizens on government employment and other related information. TRANSFERRING LEGACY DATA Legacy data was captured following a nine step Employee-Life-Cycle approach: 1. Appointment and cadre allotment 2. Substantive posting and additional charge 3. Pay fixation, revision and increment 2 Performance appraisal is an analysis of an employee's recent successes and failures, personal strengths and weaknesses, and suitability for promotion or further training. It is also the judgement of an employee's performance in a job based on considerations other than productivity alone.
8 4. Provident fund and insurance 5. Deployment 6. Leave Management 7. Proceeding, Punishment and Reward 8. Other miscellaneous human resource related transactions 9. Retirement and post retirement transactions BUILDING ICT INFRASTRUCTURE The computers were provided by the Orissa Information and Technology department. The Orissa State Wide Area Network (OSWAN) enables online operations. IMPARTING TRAINING, CHANGE MANAGEMENT AND UPKEEP Digital training kits were given to all government employees. Classroom sessions were conducted as well. The new system was introduced through conferences at the district and state levels, and in development councils. Newsletters were published and display-board campaigns were used to introduce the system to the administrative units. The new HRMS model was handed over to a dedicated group which is responsible for its maintenance and post-training workshops. HRMS System Architecture
9 METHODOLOGY The OneWorld Governance Knowledge Centre (GKC) research team carried out desk based research to document the Human Resource Management System. Information was gathered through government websites and a comprehensive departmental powerpoint presentation. KEY STAKEHOLDERS The General Administration Department (GAD), Odisha is the nodal agency for implementing HRMS in the state. It deals with the entire gamut of personnel management in the Government including recruitment, training, performance evaluation, promotion, discipline, placement, and service conditions. BENEFITS TO KEY STAKEHOLDERS The Government gains access to employment and employee information including vacancy, appointment, promotion, and transfer. Informed decisions about allocation can be made and budget monitoring can be carried out with ease. The Department Heads can easily access the service book through which they monitor similar indicators at their level. They can also view seniority lists, generate rosters and develop records for unit-wise employee details and employee history records. The Unit Heads can make substantive official appointments and issue promotions based on employee performance records. Other functions include issuing quick orders through automated workflow, maintaining service books, pay fixation, order transfers and promotion. The drawing and disbursement officers can accurately and conveniently generate and pay bills, as well as access and analyse employee attendance records. They can manage and approve employee leave, offer insurance and provident fund posting, loans, advances etc. Employees can benefit from accessing the service book, payroll information and online tax assistance. They can request for leave, transfer, training or deputation and apply for loans online to ensure a timely response. Pensioners can issue online pension order copies and complete pension statements. Citizens and in particular, job seekers can apply to jobs online and receive automatic updates on opportunities. LESSONS LEARNED Prior to the implementation of the HRMS model, mismanagement had led to an increased burden on employees, thus lowering productivity. Mismanagement, combined with an unclear management structure created delays in recruitment and promotions. Pensioners also faced difficulties in claiming their pensions because they were not sanctioned on time. Moreover, there was no mechanism for redressal of employee grievances and 50,000 litigation cases were left unresolved.
10 In this context, HRMS proved to be a solution to all such problems. The key lessons learned are as follows: 1) Fulfilment of broader organisational goals is a step towards good governance Human resource management activities have been streamlined at the district and state levels. All employee information within departments, district and regional development councils is accurately entered into service books by trained HIOs and AHIOS. Entries are regularly updated and validated. The process of data entry, validation and authentication has improved administrative efficiency, and improved employee satisfaction. 2) Sound human resource system accelerates productivity and efficiency The trained establishment staff regularly updates service books and prepares weekly employee progress reports to ensure duties are completed on time. There are no delays in disbursement of salaries and all leave is sanctioned on time. In terms of issuing transfer orders and receiving last pay certificates, there are also no delays. Litigation cases and personal grievances are disposed and of on time. These efficiencies are the result of a modernised HRMS system. 3) Improvement in decision making Departmental heads and the secretariat make decisions related to promotion, transfer, and appointment of employees based on the performance record in service books. The mechanism of the online appraisal system enables them to rate the performance of employees at their own convenience without delay. 4) Benefits pensioners and job seekers Pensioners can issue pension orders online and those interested to apply for government jobs can easily access all necessary information on the portal known as Odisha online. Research was carried out by the OneWorld Foundation, Governance Knowledge Centre (GKC) team. Documentation was created by Research Associate, Attrika Hazarika For further information, please contact Mr. Naimur Rahman, Director, OWFI. REFERENCES 1) http://www.orissa.gov.in/ga/arcell/ar.htm 2) http://orissadiary.com/currentnews.asp?id=22897 3) Orissa Modernizing Government Initiative PPT by Vijay Arora 4) Orissa Modernizing Government Initiative PPT by General Administrative Department,Odisha
11 Appendix A- Questionnaire Development of software 1) Who developed the software and who manages it? 2) What are the changes faced in the department post installing this software? 3) Describe the various software development deliverables? 4) How does the system function?(explain the system architecture as shown in PPT) 5) Explain the deployment architecture (explain the deployment architecture as shown in PPT) Capturing Legacy Data 1) Describe the workflow of capturing legacy? (a comprehensive explanation of all the stages involved will be helpful) 2) Who enters the data and who monitors it? Are all 4,50,000 employees information available on the database? 3) Is it a time-consuming practice? 4) Are there any challenges faced while entering data? 5) What is Employee-life-cycle approach? What are its advantages and disadvantages? 6) How is a modernized HRMS more effective that a manual one? Give reasons 7) Does everyone have access to the database? Building ICT infrastructure (OSWAN) 1) Are there any server problems? 2) Are there adequate computers? 3) What are the other ICT related challenges? What measures has been taken to address them? Impart Training 1) Which agency/body is responsible to impart training? 2) Describe the various stages of computer aided training kit that was imparted to the employees? Was it effective? Yes or no? 3) What were the responses of the employees? Their suggestions? 4) Who was responsible for publishing the manuals? 5) How was the class room sessions conducted? Who conducted them? Was it mandatory for all government employees across departments to attend it? 6) Has there been an improvement in the productivity of employees at present? If no, give reasons. Change Management 1) What kind of changes was communicated to the management? (Structural/Technological/Strategic/behavioural attitude of the personnel/any other? 2) Was there any resistance to change? If yes, how was it managed? 3) Who conducted these programme? 4) What kinds of news letters were published? 5) What is Display-board campaign? Maintenance 1) Who all are comprised of the core group? 2) Where were any challenges faced during knowledge transfer? Questions to key stakeholders 1) Government and Secretariat In what ways has the government and secretariat benefitted from HRMS? What are the advantages of having an MIS of employment? What is Cadre controlling? How has access to information on list of vacancy, position and budgeted item, Caste wise compliance list for appointment and promotion, Promotion list, transfer list etc improved governance in Orissa? How has Budget allocation and monitoring improved with HRMS? What are the key challenges still faced by the government and secretariat?
12 2) Departmental Heads In what ways has the departmental heads benefitted from HRMS? What are its functions and to what extent has HRMS contributed in improving the workflow in the departments? Has it increased accountability, transparency and improved decision-making? How? What are the key challenges still faced by the departmental heads? 3) Unit Heads What are their key functions? How has HRMS improved their working conditions? How are they able to provide better service to employees? 4) Drawing & Disbursement Officers What are their functions? Has HRMS brought about transparency and accuracy in bill payment? 5) Employee What were the problems faced during manual HRMS? In what ways has it improved working conditions? Is there staff satisfaction at present? If yes, how? And if no, why not? What are the advantages to having access to service book? How are they benefiting from online information? 6) Pensioners How many pensioners have used online pension copy online? Are they receiving pensions on time? What are pension statements? Which portal do they have to visit? Is it user friendly? 7) Citizen How many citizens have applied for jobs online till date? Do they receive electronic updates for job opportunity? Is there provision of feedback? What is Navigation of public service provider? (as mentioned on the PPT) General Questions 1) When was the modernized HRMS launched? Why was it initiated in the first place? 2) How long did it take to be implemented? What are the challenges faced during its implementation? 3) Project costs? Is it cost effective? 4) What are the key objectives of the HRMS model? Is it user-friendly? What are the advantages and disadvantages? 5) What were the shortcomings of the manual HRM system? 6) To what extent has it improved personnel management in Orissa administration? 7) What lessons can be learned from this initiative? 8) In what ways has it impacted governance in Orissa? 9) What is payroll automation and Vigilance Information System? 10) What are the functions of DEO? 11) Is the Data Entry Vendor a private agency? Who trains them?