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Central Government Reforms and Strategic HR in NL. Herma Kuperus BZK/DGOBR/OPR. DG meeting EUPAN Dublin, 13 June 2013. Central PA in NL. App. 109.000 fte = 117.000 employees (civil servants) 10 Ministries (excl. Ministry of Defence) with > 40 Agencies - PowerPoint PPT Presentation
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Central Government Reforms and Strategic HR in NL
Herma KuperusBZK/DGOBR/OPR
DG meeting EUPAN Dublin, 13 June 2013
• App. 109.000 fte = 117.000 employees (civil servants)
• 10 Ministries (excl. Ministry of Defence) with > 40 Agencies
• 1 collective labour agreement (Ministry of Interior coordinates)
• Ministries are responsible for own ICT, HRM & operational management
• Ministry of Interior responsible for interdepartmental coordination and harmonisation, general policies for PA
Central PA in NL
BZK/OPR/HKU/June 2013
Central Government Reforms in NL
Organisation of HR within central public administration (PA)
Challenge to develop a shared HR strategy 2020
How we did it: the process
What came out: the content
Lessons learned
How to become a (better) strategic partnerBZK/OPR/HKU/June 20133
Overview
Reform Process in NL
4
History
De-centralisation of HRM tasks in the eighties: private market concept
From supply-driven to demand-driven: customer orientation
Re-centralisation since 2000: economy of scale, efficiency, flexibility, quality, reduce duplication of processes, harmonisation of conditions
Building Shared Services Organisations for all ministries & agencies
Cost reduction in operations management
Programme: Renewal of central government (2006 – 2010)
1980
1990
2000
2010
BZK/OPR/HKU/June 2013
Recent reform in NL (1)
5
Multiple demands in times of crises: Fast & transparent - Reliable & incorruptibleFlexible & inexpensive - Secure & solidEfficient & effective - Professional & responsiveMean & lean - Careful & fair
Analyses of operational management:- Fragmentation of the organisation of central PA- Inefficiency: lack of standards, duplication, waste , ....- No coherence between different fields of operations (HR policy, IT, buildings, procurement, facility management, ....)
Compact Central Government/CRD (2011–2015): Cooperation, Harmonisation & standardisation, Bundling & de-duplication, Recycling
BZK/OPR/HKU/June 2013
B. Agglomerated operational managemment in The Hague
6. A single facilities management service provider
7. A single IT provider8. Organisation of procurement 9. One support services provider for
international positions
C. De-duplication in Inspection and implementation : clustering10. Fine collection services11. Back office subsidies12. Income transfers13. Real Estate
A. Central Government-wide infrastructure
1. A single (administrative) government employer
2. Pooled HR services in HR shared services 3. Agglomeration of government office
locations: 130 60 locations4. IT infrastructure: 60 5 data centres5. Reduce the number of central government
procurement points
Compact Central Government Programme (2011 – 2015)
14. Government inspections/ inspectorates on physical protection of companies
15. Watchdog non-financial markets
BZK/OPR/HKU/June 2013
7
2011
2016
2018
Coalition Agreement Cabinet Rutte I/II Rutte I: 1.8 billion savings on central PA organisation (2016) Rutte II: 1.1 billion savings extra on central PA organisation (2018)
In total: reduction of 20% in budget and of 10% in employees (2010-2018)
Continuing CRD and expanding to policy making, implementation and inspection Reform agenda & Strategic HR policy for central PA (2013 - 2018)
Minister for Housing and Central Government Reform is overall responsible Central role for Secretaries-General of Ministries Reporting on basis of:
Peer reviews Twice a year to Council of Ministers Once a year to Parliament (Annual report on operational management)
Recent reform in NL (2)
BZK/OPR/HKU/June 2013
Serving, accurate and cost effective 1. Intensifying Compact Central Government: SSO’s for all OM; one organisation
2. Efficient maintenance, use and management of less & shared governmental buildings
3. Quicker implementation of base registrations: less administrative burdens & fraud
4. Independent bodies join the Shared Services and operational management of central government
5. New, more efficient governance and sourcing model: standardised & central budget
6. Inspections/watchdogs: less and bundling HRM, IT, buildings; one inspection
7. Advisory boards/organisations: merging & bundling, less, better use of advices
8. Policy making: increase flexibility & invest in quality of civil servants, less burocracy
9. Central Government digital in 2017 for services to citizens and for employees
8
Reform Agenda central PA(2013 – 2018)
BZK/OPR/HKU/June 2013
9
Shift in Approach
Ministry Ministry Ministry Ministry
Flexible policy units
Policy department
Policy department
Policy department
Policy department
Clusters of similar processes or target groups
Executive
organisations Executive
organisations Executive
organisations Executive
organisations
Inspectorates Inspectorates Inspectorates Inspectorates
Central PA wide infrastructure
Operational Management
Operational Management
Operational Management
Operational Management
Departmental approach‘K
ind
of w
ork’
app
roac
h
Also in HR function and Strategic HR policy 2020
BZK/OPR/HKU/June 2013
10
Innovation- centre
HRM-executive tasks (Hire-to-retire)
Supporting HRM-tasks (Expertise)
HRM-basic administrations & Salary pay
HRM-Strategy, Policy & Advice
HRM Mana-
gement
Infor-mation
HRMCusto-
mer self
ServiceESSMSS
= 4 SSC HRM/ Expertise Centres
= 1 SSC HRM/ P-direkt
= HR units of Ministries/Agencies + central PA
Backoffice 1
Backoffice 2
Competence centre
Front office
HR function
BZK/OPR/HKU/June 2013
Economic downturn and restructuring; unclear and unsecure future Increasing general unemployment (7,5 %; 15 % for youth) Flexible, but dual labour market
Good performing central PA (OECD and SCP studies) Continues reform process in central PA since decades Continues financial cuts reduction of employees in central PA New cabinet: reform, new cuts and other ambitions until end of 2018/20 (more positions
on lower level, more handicapped employees, more women in high positions)
Challenge: How to solve current problems and at the same time prevent future ones How to invest in sustainability, quality and flexibility in times of budget cuts How to combine short term restrictions with long term needs
11
The challenge as employer
BZK/OPR/HKU/June 2013
12
STRATEGIC HR
Strategic Agenda HR & OrganisationHR STRATEGY 2020
Existing Current
Needed
ScenariosDynamicsIn/through/out
:Forecasted Gaps
Surplus of people, vacancies
Workforceplanning
Positions Employees
Analysis oflabour market development in NL & EU
VISION
Strategic HR: HR Strategy 2020
BZK/OPR/HKU/June 2013
Scenarios of external trends
Consequences fortasks, role and position
VISION
Organisation & Personnel
To do workforce planning (WP)• Formulated as two year project
• Started end of 2010• Central project leader/chair • With HR/WP experts of ministries• External expert for a common model• Exchange of experiences• Ways of doing the work (technical)
and putting on the agenda• Regular meetings over the year
13
Process
BZK/OPR/HKU/June 2013
14
Content: Impression of HR Strategy 2020
Variation
Selection(Specialisation)
Security Freedom
Variation
Selection Specialisation)
Security Freedom
Organisation Employees
BZK/OPR/HKU/June 2013
15
(anti cyclical) anticipate & invest in adaptability, flexibility and quality
Is this needed?Complexity & plurality of society
Tension between short - long time
IT and e-Gov
Internationalisation
Blurring boarders between organisations, sectors & countries
Changing SD & ‘Poldermodel’
Ageing workforce
Dynamics in workforce
Composition and size of labour force will change
Decrease central PA
Qualitative shortages
BZK/OPR/HKU/June 2013
The only security is no security at all and permanent change
16
How are we going to do so?
Organisation
Employees
Steering & Leadership
Labour market
Labour relations and -conditions
BZK/OPR/HKU/June 2013
17
Organisation Increase adaptability/flexibility . . .
• Implementation of CRD/Reform programme
• Time-, place- and equipment independent working is normal• Organic restructuring: permanent increase of productivity & efficiency
• Harmonisation & modernisation
. . . and strengthen quality
• Top influence in knowledge and relationships
• Knowledge development and transfer in chains and networks
Differences between types of workBZK/OPR/HKU/June 2013
18
Organisation Differences between types of work
Policy makingBroaden and flexible working within knowledge area; using ITDynamic organising in theme’s and political priorities of the cabinetInternationalisation/ Europeanization
Policy Execution/implementationBundling similar tasks (processes, target groups or clients)Organising in chains and networks
Using IT for client oriented self service
InspectionBundling similar tasks (processes, target groups or clients)Organising in chains and networksUsing IT for theme/area-crossing work methods
Operational managementStandardised and uniformed work for whole of central government in SSO Organised in as ‘plug and play’ for primary process; digital, self serviceLeaving tasks more to the private market
BZK/OPR/HKU/June 2013
19
Employees
Using talent of all in a complementary wayUp to date knowledge is baseLearning & development is obligatory: lifelong & license to operateDialogue between employee and manager is crucial
Own responsibility for vitality & sustainable employability for internal and external labour market
Strengthen quality ……
BZK/OPR/HKU/June 2013
20
Employees
• Regular change of position/team: three phase model (e.g. 3-5-7 years)• Variation in appointment conditions and/or combination of contracts possible: new balances
flexibility & security• Employer and employee invest in permanent development and vitality • Yearly judgement on functioning ánd sustainable employability for each employee• Self confidence and proud will increase position and image on the labour market
From job to work security
Increase adaptability/flexibility
BZK/OPR/HKU/June 2013
21
Steering & LeadershipBased on (5R)
Giving direction Giving space Delivering results Accountability In Relationship: dialogue between manager and employee
dialogue between several institutions
Managing/using diversity and complementary of employees
Leadership: common profile, values and development programme increase quality of managers
BZK/OPR/HKU/June 2013
22
Labour market
• HR policy for all kind of employees (including fixed, flexible contracts) • Not only permanent or temporary contracts but a whole range of contract forms• Normalisation civil service status: eliminate obstacles for exchange with private sector• From work to work: transparency and open labour market• Anticipate on changes to make (temporary) fit demand - supply: anti cyclic recruitment• Using diversity of labour supply also in Europe and worldwide• Societal responsible employer ship: role model of governmental policy• Compete on work content, sustainable employability, variation in employment contracts
and individual budgets
Increase adaptability/flexibility
BZK/OPR/HKU/June 2013
23
Labour relations
Labour conditions: - Basics- Individual budget with options to choose- Partly specific conditions related to the type of work- Decrease of generic conditions for specific situations or target groups
Collective agreements prepared with also consultation of all employees Three phase model (e.g. 3-5-7 years) in charge for everybody Different types of labour contracts and combinations possible Development of rewarding in line with other public sectors and private market
Agreement until 1-1-2016: job to job mobility instead of dismissal by reorganisation – no last in first out in general but in age cohorts
Modernisation of labour contracts, -relations and- conditions
BZK/OPR/HKU/June 2013
24
To be an attractive and societal responsible employer investment in people is crucial. Influence on top level makes knowledge most important in content and in relationships. To secure a competent & divers workforce in the future, anti cyclic recruitment is needed Lifelong learning & development is obligatory for management and employees. Sustainable employability on the labour market will increase adaptability & flexibility
Regular mobility within networks and chains is a start to make it normal for everybody
Modernisation of labour contracts, -relations and –conditions is needed for future Harmonisation if possible and differentiation (e.g. types of work) where needed Needs other way of steering and leadership on all management levels
Summary HR Strategy 2020
From job security to work security
Towards a sustainable central public administration in NL
BZK/OPR/HKU/June 2013
Involve from the beginning the top level /SG’s for guidance and commitment Use strategic experts in the core business of the ministries Bring senior management HR, top management and strategic experts together and help them
understand each others language and point of view Be very clear where and when you need a process or a project: workforce planning, started as a
project with HR experts, failed to formulate a HR strategy. A broaden process was needed to do so and to raise urgency for workforce planning
Don’t put effort in making nice books with scenario’s, visions and dreams but invest in a flexible, adaptable presentation as a living document to be used by everybody and easily adjusted to new situations
Make a shared strategic agenda for short and long term, formulate projects/programmes to implement and let different stakeholders take over responsibility for common results
HR strategy should be linked to the core business and other parts of operational management (integrated approach)
25
Lessons learned
BZK/OPR/HKU/June 2013
• Know and understand the core business + critical performance indicators• Be able to analyse quantitative and qualitative information in order to forecast and point
out risks, problems, alternatives for short and long term (evidence based)• Indicate the consequences for core business and organisation, also in financial terms• Translate changes in the environment of the organisation, specifically in the field of core
business and labour market: for example the impact of technology development on numbers of employees, skills, competences needed or on organisational structures & BPR
• Be able to work in interdisciplinary settings with other stakeholders (e.g. business process, financials, IT, housing, general strategy units)
• Speak and understand the - more economic - ‘language’ of general Top managers• Be pro-active, creative and able to show the added value of the HR and Organisational
expertise
26
To become a (better)strategic partner
BZK/OPR/HKU/June 2013
• The centralisation of HR administration and HR expertise in shared services
• Exchange of employees between HR and primary process of the ministries
• Skills and knowledge of the HR unit, especially of the senior HR managers, that enables them to discuss and design strategic issues on board level and to develop organisational and HR strategy in relation to the core business of the organisation
• The strategic and HR abilities of the general top managers (DG’s and directors) in the ministries
• Competence profiles and recruitment in line with above mentioned skills; promote exchanges
• Urgency/pressure to be creative, innovate and develop strategies in difficult times
27
Important enablers
BZK/OPR/HKU/June 2013
28
Thank you for your attention!
Questions?
For further information please contact: [email protected]
BZK/OPR/HKU/June 2013
29
Attachments
29 BZK/OPR/HKU/June 2013
3030
-
500
1.000
1.500
2.000
2.500
3.000
3.500
4.000
2012 2013 2014 2015 2016 2017 2018 2019 2020
pensioenakkoord lenteakkoord herfstakkoord
bron: BZK
Exit to pension between 2011 and 2020: • based on pension agreement 19.419 = 16,3%• based on spring agreement 18.418 = 15,5%• based on autumn agreement 16.886 = 14,2%
More older civil servants will retire
BZK/OPR/HKU/June 2013
31
Less young civil servants
313131
12,0%
13,0%
14,0%
15,0%
16,0%
17,0%
18,0%scen. C scen. C + 390
scen. C 16,6% 15,4% 14,4% 13,6% 13,1% 12,8% 12,9% 13,0% 13,2% 14,7% 16,5%
scen. C + 390 16,6% 15,4% 14,7% 13,9% 13,3% 13,1% 13,1% 13,2% 13,4% 14,8% 16,6%
2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021
Vergelijking effecten op aandeel jongeren: Scenario C. en Scenario C met extra inzet 390 jongeren in 2013
Scenario: in 2013 extra recruitment of 390 employees between 19 - 30 years, with the pattern of 2011. Effect: 0,2 %-punt more
BZK/OPR/HKU/June 2013
32
Age of civil servants 2001 - 2020leeftijdsverdeling 2001 t/m 2020scenario: 4 x 2,5%, vervolgens 5 x 1,5%; instroom cf. patroon 2011
25,5%16,6% 13,1% 15,7%
33,9%
26,4%23,6% 20,2%
29,9%
34,3%33,6%
29,8%
10,7%22,7%
29,7% 34,4%
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
2001 2011 2015 2020
55 enouder45-54
35-44
tot 35
bron: BZK
BZK/OPR/HKU/June 2013
33333333
• Targets for reduction defined until 2018: less positions in central PA
• Age related exit is slowly increasing • Other exit restricted because of labour market situation
Less space for new recruitment Qualitative mismatches and shortages
Dynamics in workforce
Exit in total
Exit to Pension
BZK/OPR/HKU/June 2013
34
Composition of labour force changes
34
33%
17%
36%
16%
27%
26%
23%
20%
26%
34%
26%
30%
14%23%
15%
34%
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
Ned. Rijk Ned. Rijk
2010/2011 2020
55 tot 65
45 tot 55
35 tot 45
tot 35
bron: BZK
Comparison of NL and central PA in 2010 en 2020 BZK/OPR/HKU/June 2013
3535
more ‘ not-western immigrants’ . . . . . and more women
Composition of NL labour force changes
BZK/OPR/HKU/June 2013