Reframing Human Resource Management in the Public Service

during the COVID-19 Crisis and beyond

Prepared By:Rosemund R. WarringtonStrategic Human Resource & Organisation Development Effectiveness SpecialistCARICAD

1st Floor, Weymouth Corpo-rate Centre, Roebuck Street, St. Michael, Barbados1 (246) 427-8535

caricad@caricad.netrwarrington@caricad.net

April 26, 2021

ContentsPreface

Acknowledgements

List AbbreviationsIntroduction

Ongoing Challenges

HR Shift

The Model

Idea in Brief – Concept of Reframing HRM

Radical Reframing of HRM

1. Organisation Focus

RAF1: Re-organising ServicesRAF2: Re-considering HR AnalyticsRAF3: Re-examining Institutional MechanismsRAF4: Re-modeling towards a Digital Workspace

2. People Focus

RAF 5: Re-thinking Employment ArrangementsRAF 6: Re-orienting Employee SupportRAF 7: Re-training and Re-toolingRAF 8: Re-evaluating Roles and Responsibilities

Conclusion

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PrefaceThis paper establishes a broad framework of HRM strategy as a key process of public sector transformation and to guide the introduction and implementation of policies, programmes and legislation in the public service. This will be vital to ensure that Public Sector Organisations (PSOs) remain in step with the changing needs and requirements of the national, regional and international environments.

This paper also reinforces the point that HR-related systems and capabilities must be developed and enabled in order to combat VUCA (Volatility, Uncertainty, Complexity and Ambiguity) and achieve 21st Century Public Sector status. This is particularly imperative in the environment today where the Caribbean region must address a major pandemic and multi-country natural hazard and disaster events whilst grappling with national economic challenges. On the heels of the COVID-19 crisis, the region is now faced with new issues related to health and safety, climate, destruction or damage to housing, infrastructure, and land that arise as a result of the La Soufriere Volcanic eruption in St. Vincent and the Grenadines.

It is incumbent on PSOs therefore to move past the bandwagon fallacy and deal with reality of what it really means to manage human resources in a VUCA environment. In other words, think, plan, customize, do, and show results.

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Acknowledgements

I wish to express sincere thanks to the Executive Director of CARICAD, Mr. Devon Rowe and my CARICAD colleagues, in particular Mr. Franklyn Michael, for their insightful comments and suggestions. Their contribution to the finalisation of this paper is deeply appreciated.

Rosemund Warrington

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List of AbbreviationsAI Artificial Intelligence

ACUV Agility, Capability, Uniqueness and Vision Star

CARICAD Caribbean Centre for Development Administra-tion

CARICOM Caribbean Community

CARPHA Caribbean Public Health Agency

COVID-19 Coronavirus Disease 2019

EAP Employee Assistant Programme

HRM Human Resource Management

HR Human Resources

ICT Information, Communication and Technology

MDA Ministries, Departments and Agencies

OKR Objectives and Key Results

PSO Public Service Organisations

PPPP Public-Private-People Partnership

RAF Reframing Area of Focus

SOP Standard Operating Procedures

VUCA Volatility, Uncertainty, Complexity, Ambiguity

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Introduction

There is currently a lot of discussion regarding the impact of COVID-19 on, and implications for working practices and human resource management (HRM) in PSOs globally. It is likely that many changes necessitated by the pandemic will be similar across organisational and country contexts. Given institutional differences between private and public sectors in the Caribbean region for instance, one should expect that specific areas of focus will be context-specific. In this respect, the impact of the pandemic on institutional arrangements, working practices, general well-being of employees and HRM in the specific context of the public service must be understood.

Public service organisations (PSOs) are on the cusp of enormous transformation and everything depends on their ability to navigate through a VUCA environment. VUCA is an apt description of what is happening in our world today... a collision of a set of potentially destabilising factors namely, volatility, uncertainty, complexity and ambiguity (VUCA). This VUCA reality has emerged as one of the primary considerations in the management of human resources. This state of affairs is continuously being powered up by new trends, innovative technology, environmental impacts, economic challenges, global unease, social disorders, and more recently the COVID-19 pandemic. If there were any doubt that a VUCA world is real, the COVID-19 pandemic and the global response to it have reshaped the thinking of many. The VUCA factors, mentioned earlier, singly or collectively create a range of responses by organisations that are genuinely concerned about the future.

The World Health Organisation declared the outbreak the COVID-19 pandemic on March 11, 2020 as the virus had spread to every region of the world. The first imported case of COVID-19 occurred in the Caribbean Region in March 2020 also. At the time of writing this Paper, there are over 147,720,000 confirmed cases of COVID-19 across the globe1. Over

1 https://www.worldometers.info/coronavirus/

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3,120,000 deaths have been reported. The Caribbean Public Health Agency (CARPHA) has reported over 675,000 confirmed cases in the Caribbean region and 9,000 deaths2. It is already predicted that COVID-19 will cause long term damage to national economies by diminishing human capital. This is particularly relevant to those developing countries in which the death toll has been notable among frontline workers from the health sector.

2 https://carpha.org/What-We-Do/Public-Health/Novel-Coronavirus

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Ongoing Challenges More than a decade ago, in 2008, in the midst of the global financial crisis, one writer observed that “For some organisations, near-term survival is the only agenda item. Others are peering through the fog of uncertainty, thinking about how to position themselves once the crisis has passed and things return to normal. The question is, ‘What will normal look like?’ While no one can say how long the crisis will last, what we find on the other side will not look like the normal of recent years.”3

Those words seem to describe the current realities facing the world in the COVID-19 era as accurately as they did in 2008.

COVID-19 is proving to be an unprecedented force, bent on disrupting and seriously challenging business continuity in organisations across the globe. Among the most affected by such a mass-scale pandemic are PSOs, as they try to adjust to the world that has changed around them, albeit with very limited resources. This begs the question, how is the public service to survive in this VUCA environment?

COVID-19 continues to impact almost every organisation and the workplace and work modalities as we know them, are drastically changing in terms of organisation operability. The transition within PSOs from business as usual to a crisis response has meant the introduction of unprecedented systemic and policy changes. As a case in point, the pandemic has exponentially increased the focus on workforce virtualisation, providing better health and safety facilities and strategic implementation of human resource (HR) policies to ensure business continuity. HRM, as a result, is being revved-up to become a renewed strategic engine of organisations, to help navigate organisations out of the crisis. Yeung and Ulrich4 rightfully noted as far back

3 The 2008 Global Financial Crisis in Retrospect, Ian Davis, 20084 Yeung A and D Ulrich (1990) Effective human resource practices for competitive advantages: An empirical assessment of organizations in transition.

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as 1990 that “in a world of increased volatility, uncertainty, complexity, and ambiguity, HR issues matter more than ever”. HRM is unquestionably at the forefront of organisations’ response to the COVID-19 pandemic.

Indeed, the COVID-19-impacted public service will continue to face tremendous challenges, both in terms of its own transformation, its capabilities and in terms of the transformation of the services that it provides to citizens. The COVID-19-impacted public service in the Caribbean region will nonetheless be faced with new expectations at a time of environmental, political and socio-economic strain. In times like these, staying ahead means making deliberate adjustments amid the panoply of pressures with which governments are faced. These challenges will require tackling, through a comprehensive programme of policy initiatives, and proactive planning underpinned by progressive systemic changes in the public service.

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HR Shift “HR is at a crossroads. Once designed primarily as a compliance function, today’s HR organization must be agile, business-integrated, data-driven, and deeply skilled in attracting, retaining, and developing talent.” Deloitte.

The waves of disruption to the operations and the capacity of PSOs to operate are numerous, not only limited to the effects of economic shocks, but the deep-seated impact on systemic factors such as HRM models, structures, systems, processes and behaviours. Associated systemic ad-justments will result in a fundamental shift in HRM, and more pointedly, a systemic transformation from a centrally-controlled, process-driven public service to a public service that, inter alia:

• Is more values-based • Facilitates a more dynamic and diverse workforce• Is a digital workplace• Promotes employee support• Embraces non-standard work arrangements; recalibrates its

employment arrangements• Adopts a data-driven approach to employee sourcing, pre-testing and

recruitment• Strengthens the capabilities of employees through strong commitment

to human resource development and organisational learning programmes

• Is focused on retraining and re-tooling employees with a greater focus on learning through virtual methods

• Conducts its business professionally and transparently online• Is capable of making quick decisions using real time data• Is results-oriented; establishes goals and evaluates outcomes• Invests in technology to enhance information flow and to monitor

organisational achievement• Rethinks the structure and culture of HR officers and units, upgrading

capabilities from purely transactional to transformational.

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The ModelResetting the HR compass is imperative for any real HR functional change involving people, process, structure, systems, skills, technology etc. It requires significant Change Management. In that context, CARICAD has designed a distinct Model titled “Reframing HRM in the Public Service during the COVID-19 Crisis and beyond” (Figure 1) in support of a transformed public service. The aim of the Model is to inform and influence member states about the need for a sweeping HRM transformation in the public service as they navigate through uncertainties and plan ahead amid constantly changing conditions. The principles and characteristics of the Model are geared towards i) helping the public service adapt to agile practices; ii) identifying processes to position ministries, departments and agencies (MDAs) to achieve good strategic outcomes; iii) stressing the need for alignment and integration with other workforce activities, such as workforce planning and performance management; iv) showing the way forward to support a learning culture; and v) articulating governance considerations and appropriate reporting arrangements to fulfil accountability expectations.

The Model is a concept for a focus on the changes that will be required in HRM in the PSOs. It does not seek to cover every detail of the management of public administration or public sector transformation. Member states will need to consider the best way to apply the principles outlined in the framework to best match their particular context and environment.

The Model is shown in the infographic at Figure 1. Note that eight (8) imperatives for reframing HRM are positioned along the umbrella’s pole and clustered under the broad headings of i) organisation and ii) people. The full infographic is explained under the heading Idea in Brief.

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Figure 1: Reframing HRM in the Public Service during the COVID-19 Crisis and beyond – A Snapshot

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Idea in Brief – Concept of Reframing HRM

In general terms, an umbrella symbolises protection in harsh weather conditions. Without taking a narrow view of the public service as an institution that is stationary, *the umbrella metaphor represents the organisation as a System of Change and Flux. The Canopy represents the public service and its people. The Ribs which are the thin wires that run along the underside of the canopy, help create the arc shape of the umbrella. In the context of the organisation, the Ribs represent the areas of focus that must be addressed in order to succeed in the HR transformation journey. It is noteworthy that umbrella Stretchers are what help lock the Canopy in place; without them, the umbrella will not remain open. In the context of CARICAD’s Umbrella Model the Stretchers represent the covert culture, norms, values and mindsets that will help solidify and lock the broad organisational strategies in place as shown in Figure 3 (Managing VUCA with ACUV) on page 36.

This Umbrella Model consists of eight Reframing Areas of Focus (RAF) rep-resenting a number of areas that are considered critical for reframing HRM in the public service. Metaphorically, the umbrella, as a sign of protection, is capable of withstanding weather conditions. In a real sense the umbrel-la exemplifies the resilience of the public service in its efforts to improve strategic outcomes through public sector transformation.

CARICAD’s Umbrella Model for reframing HRM in the public service, as shown at Figure 1, is expected to guide member states through the HR transformation process. It should be noted that the eight strategic areas of focus (the Ribs) converge in specific circumstances; they are not always linear. To be successful, PSOs must be adaptive and iterative, with feed-back loops and prioritised waves of initiatives that are regularly redefined. In short, focus on the eight areas runs in tandem and converge throughout a public sector transformation and adaptation process.

The RAFs identified in this Model are integral elements in CARICAD’s Charter for Public Sector Transformation (Figure 2).

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Figure 2: Public Sector Transformation Charter for Caribbean Public Services

The Charter comprises six (6)5 pillars that represent the public sector’s highest priorities and fundamental driving forces for transformation. The Charter also provides a solid foundation of what a resilient public sector is, what it believes and what it wants to be. Therefore, the Charter framework provides the “what” of transformation, while the Umbrella Model suggests the “how” in relation of HRM matters.

The RAFs are also congruent with CARICAD’s model for the 21st Century Public Sector which identified 5 key tenets vital for building flexible, agile and adaptable organisations. In a broad sense, PSOs must be i) Technologically Innovative and data driven: freely accessible and shareable data, greater focus on IT as an enabler of service, and increased transparency, public participation and innovation; ii) Systemically transformative: institutional transformation relative to structures, leadership, partnerships, procedures and practices, mindset change, management of human and financial resources etc.; iii) Talent Management focused: attracting, selecting, nurturing, developing and retaining high potential; iv) Outcomes focused:

5 Governance, Accountability, Standards, Openness, Capacity and Legislation.

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focus on results and on achieving impact; and v) Citizen-centric: delivery of services based on the needs of the people served and engaging citizens in policy and service design.

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Radical Reframing of HRMThe major strategic human resource challenge in the public service is to create an HRM approach and implement it in a way that supports, rather than hinders, the constant alignment with the North Star6 by which it is navigating, i.e. its overall purpose and aspiration. The Umbrella Model essentially represents a critical HRM strategy to achieve high performance and change in the public service particularly in this era. This section of the paper describes the various dimensions of each of the eight RAFs under the broad headings of organisation and people. The expectation is that HRM will be seen as a force for strategic response to change in the public service.

1. Organisation Focus

An organisation-centric approach to optimising the public service’s people, processes and technology is a proven way to guarantee that structures, systems and processes will be able to drive the performance and efficiency improvements in the public service. The following Reframing Areas of Focus (RAF) are considered imperative to ensure that the public service stays afloat and weathers the COVID-19 storm as the pandemic lingers on. The struggle will not be easy and will require imagination, innovation, intention and integrity.

RAF 1: Re-Organising Services

Today’s public service grew out of the need to move from a mechanistic, complex system to a more adaptive system, hence the ongoing focus on public sector transformation. In today’s VUCA environment, there is no place for ‘business as usual’ and focus must be directed at re-organising services and functions to meet the needs of citizens. The political directorate, senior managers, public officers and stakeholders will need to engage in a serious examination of the functions of government and how those functions can be best performed. This requires a significant

6 What is the North Star for your Strategic Planning? | Insigniam Quarterly

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reorientation of the public service to align with government’s priorities. This means ensuring that systematic national development planning becomes a part of the culture of PSOs. A “prioritisation exercise” is a good place to start. This will be necessary across every ministry, department and agency (MDA), in order to identify the work that must continue to ensure essential services and programmes are delivered, and the processes that need to be streamlined. Functional reviews and organisational capacity assessments will be necessary to ensure mandate-aligned and fit-for-purpose MDAs.

Critical to the prioritisation imperatives mentioned above will be customer connectivity, that is, building more enduring relationships of trust with customers – both internal and external. Customer connectivity is not limited to databases and online connectivity, but in the realm of HRM, it also refers to the engagement of customers in HR practices whether it is training and development, creation of HR strategies or staff orientation. The public service perspective must be outside-in, starting with and serving customers. As such, systems must be citizen-centric and values-enabled.

Citizen-centricity is at the heart of digital transformation. Reframing HRM must be digitally integrated so that it is meaningful to all by offering data support, access, feedback and increased prospects for analysis and transformation. A number of CARICAD Member States are re-thinking e-government and embracing the concept of digital government. Digital government has a wide variety of benefits including greater efficiency, increased transparency, wider and deeper use of ICT, cost-effectiveness and greater participation by citizens. The future of PSOs must of necessity involve rethinking services and processes and changing behaviour so that public services are delivered more efficiently to people. In fact, PSOs must not only cater to citizens without access to technology but also ensure equity of access so that all citizens have access to services. The increasing number of millennials as a key demographic cadre in PSOs should not be overlooked. They are the generation that have grown up with many of the technology

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applications that are critical instruments of change. They play a key role in the use of technology and should be encouraged in their creativity in the public service.

Since ICT systems are increasingly based on standards, patterns of doing business will change. Therefore, there must be an effective assessment of critical processes using techniques such as Business Process Reengineering (BPR) to effectively identify the type of processes that are required to sustain the business of government.

Similarly, rationalisation of the workforce, while a very demanding process, offers an effective way of streamlining the workforce aimed at maximising output. Rationalisation involves an evaluation of the available skill sets, headcount, staffing levels and job roles required by the organisation, following which, it will be necessary to create an interplay of roles and redesign/reshaping of job descriptions and specifications. The interplay may sometimes require merger of job roles.

Rationalisation will not only ensure business continuity by maximising resource utilisation but also motivate the workforce to give its best. This has been demonstrated where such exercises have been undertaken. Therefore, it is a recommended preferred step before any decision to downsize.

Overall, it will be important for the public service to adopt a Whole of Government (WoG) approach whereby ministries and departments work across agencies to address challenges7 and eliminate situations in which, for example, different HRM policies undermine each other. This co-ordinated approach will i) assist in optimising the use of scarce human and financial resources, ii) enable better-informed and improved functioning of HR Units, and iii) result in the provision of seamless rather than fragmented access to services by internal customers and citizens at large.

7 Deploying the whole of government | Deloitte US

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RAF 2: Re-Considering HR Analytics

COVID-19 will be here for a while. Public service organisations will therefore need to restructure their data processes and HR systems to be agile and lean. HR Analytics can effectively facilitate organisations in that regard. HR Analytics is the process of collecting and analysing HR data in order to improve workforce performance and facilitate informed decision-making about employees. This method of data analysis is es-sential for ensuring alignment of HR to organisational objectives.

Most PSOs already have data that is routinely collected. Unfortunately, raw data on its own may not actually provide very useful insight. In the current situation, human resource information systems (HRIS) including standalone HR software as well as features available in SMART STREAM (HR and payroll platform), can effectively facilitate PSOs. When HR analytics are available to an organisation, some of the benefits include, for example, the ability to run evaluative tests that can assist in defining the workload of each employee and mapping how the workload is changing under COVID-19. The data analysis in cohesion with HRIS can draw out changing skill sets that were not required before, but now are critical for the organisation’s sustenance. HR Analytics are also beneficial for carrying out rationalisation of human resources in a scientific, justified and equitable manner.

Having data-backed evidence means that PSOs can make better informed HR decisions, focus on making necessary workforce improvements and plan for future initiatives. Therefore, PSOs need to consider greater investment in HR information systems to ensure operation at a fully productive level.

Although Artificial Intelligence (AI)8 may not be currently used to any great extent in HRM by PSOs, there is certainly scope for its future use in advanced HR analytics. Oracle, a multinational computer technology corporation, has identified some growing trends regarding the use of AI in HRM including predicting high performing recruits, sourcing best-fit

8 AI – A tool that automates and accomplishes most of the HR functions, from recruitment to talent management

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candidates with résumé analysis, and identifying at-risk talent through attrition modeling9. AI software offers an opportunity for Departments with responsibility for HRM as well as HR units, to embrace and utilise analytics-supported HR-related processes such as recruitment and selection, as well as e-learning platforms to enable personalised learning pathways for employees. The possibilities are endless.

AI is already driving the way organisations function globally, and our region must stay abreast of the increasing pace of change in order to enable quicker service delivery through automated transactional work. AI capabilities will need to be developed to expand the ability of HR professionals to be more productive by applying their skills to work in the most valuable way.

RAF 3: Re-Examining Institutional Mechanisms

If PSOs are to succeed post-COVID-19, they must embrace innovation – whether in products, service delivery, corporate strategies, operating procedures, administrative processes, or customer service. According to UNDP, Innovation “is about identifying more effective solutions that add value for the people affected by development challenges”10. Implicit in this definition is the notion of “doing different things and doing things differently”11 to cater to the rapidly changing and uncertain nature of systems in a VUCA world. In line with the notion of doing things differently, public sector management legislation and HR policies must be updated to reflect a clear position on issues in order to create impact towards building productive and resilient organisations.

Similarly, another critical area that PSOs must address is performance management systems. Based on knowledge of PSOs in CARICAD member states, performance management, on both people and systems levels, is not functioning as it should. This is necessary for optimising government’s performance. The political realities in our

9 Cited in Using AI for HR - Is it the Future of Work? By Maya Nowak, July 201910 https://www.undp.org/content/undp/en/home/2030-agenda-for-sustaina ble-development/partnerships/sdg-finance--private-sector/innovation.html11 Innovation in the UN: Quick Guide

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region often inhibit the true use of performance management in programme reviews, budget processes and employee development and upward mobility. The process itself is perceived by some as having led to negative experiences for employees, biased information on which to make decisions, decline in perception of fairness and lack of critical feedback by managers.

Some of the disruptions caused by the pandemic have led to a number of different outcomes for employees ranging from taking on additional work to support their organisations, to being redeployed based on the needs of the organisation, or adjusting hours in order to balance additional responsibilities outside of work. It may be necessary for PSOs to revaluate aspects of their performance management systems to better respond to the current context. It will be important to focus more intentionally, at both individual and organisational levels, on performance indicators, results and outcomes in line with goals and available resources, using a results-based management approach. Capacity building in the area of RBM will be necessary to support the CARICOM effort to institutionalise RBM as a critical planning and management tool in PSOs in the region. There must also be targeted consideration and utilisation of techniques such as, inter alia, Strategic Planning and Scenario Planning to effectively guide the reframing of the public sector as a whole, and identify the type of competencies required for the sustenance of the business of government.

Additionally, PSOs should consider whether performance management is failing because it is being viewed as coming from a source of command and control. Going forward, PSOs must consider a different approach; one where an attitude of consciousness and a duty of care towards employee well-being are practiced, so that Performance Management is not only seen as a tool for achievement of stretch-goals, but also seen as a source of awareness and consciousness regarding the targeted development and well-being of employees. Researchers have identified certain competencies for managers and supervisors that can positively influence performance management including sensitivity to the environment, relationship-building and the valuing of employee input.

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With regard to the management of talent, PSOs must be prepared to engage employees and retain talented employees. Even in these pandemic times, high turnover of talented employees in the public service would cost the organisation dearly. In that regard, HR policies should be competency-based and designed to focus on retention and building appropriate talent. The concept of a learning organisation, is even more relevant in this VUCA environment if talent is to be valued and retained. As espoused by Peter Senge12, a learning organisation is a group of people working together to enhance their capabilities to create results they really care about. PSOs must therefore facilitate the learning of their employees as they continuously strive to transform themselves and create conditions of high performance.

Importantly, PSOs will also be required to develop human resource strategies that are integrated with their strategic and operational plans, in order to ensure that their future staffing needs are met. These strategies should include specific employment equity objectives and targets for achieving a representative workforce. Once approved, the human resource strategies should drive all human resource management activities and serve as a dashboard for measuring success. The effectiveness of the strategies will depend, however, on their continuing relevance and alignment to Government’s national priorities. Any HR strategy must be supported by HR information systems that provide accurate and timely information on how the strategy is operating in practice.

As a key HR strategy, the filling of positions should be guided by Public Sector Management legislation and aim to:

• identify the most suitable person for the job, from the widest possible pool of talent. Selection criteria will be based only on the inherent requirements of the position to be filled and will be based on competencies rather than undue over-emphasis on academic qualifications. Merit must be defined within the context of employment equity.

12 The Fifth Discipline -The Art and Practice of the Learning Organisation, Peter Senge 2006

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• achieve employment equity, and

• provide equal opportunities for advancement for people at all levels within the Public service.

The Public Service Commission (PSC) or equivalent body has a significant role to play in terms of ensuring compliance with constitutionally enshrined democratic principles and values of the public service. Given that vital role, it is important that relevant and up-to-date systems and mechanisms be put in place to facilitate decision-making in relation to their power to appoint officers to hold or act in offices including appointments, promotions and transfers; their power to exercise disciplinary control over public officers and their power to remove persons from office. This points to the need for the PSC to ensure that the right people are placed in the right positions at the right time, so that public officers can optimise their learning and growth while delivering consistently high performance. In order for Commissions in general to function at peak performance level, it will be important for those entities to re-assess current organisational design and internal capabilities to inspire innovation and enable optimal support of the HRM agenda.

With this new wave of Reframing HRM in the public service, the Committees of Permanent Secretaries and Senior Management Teams will need to refocus and reactivate for them to make a more purposeful difference in the public service during and beyond the pandemic. The role of COPS has been defined by CARICAD as “undertaking joint planning, collaboration, consultation, monitoring, evaluation of and reporting on, major public sector initiatives; analysing the strategic and operational implications of policy for project and programme management and offer recommendations to Cabinet; leading efforts to deliver consistently high standards of service through coordination of inter-ministerial and inter-agency implementation of Government’s priorities13.

The issue of a refocused COPS is not with the recognition of need for, or the realisation that modern HRM practices lead to better prepared,

13 Governance Code and Operational Guidelines for Committees of Permanent Secretaries in the Public Services of CARICAD Member States, CARICAD, 2017

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productive and a more effective workforce, but with the actual formalisation and implementation of the Reframed Areas of Action (RAF)s. As such, in order to become more effective, there will be need for:

i) Clearer terms of reference of what is expected of the committee to guide chair and members.

ii) Consistent and output-focused virtual/face-to-face meetings; this entails provision for meeting space that matches the needs of the committee, a written agenda and any necessary informa-tion mailed out to members in advance of the meeting.

iii) Greater accountability in terms of actual delivery against set ob-jective key results (OKR); these measurable outcomes would be the basis for regular reporting of the committee on HRM and other matters.

In general, the importance of key stakeholder engagement in the reframing process cannot be overstated, whether COPS, Commissions, Unions, Citizens among others. In that regard, steps must be taken by PSOs to embrace and strengthen the 3P concept of public-private partnerships as an alternative mode of governance for delivery of public services cognisant also of the significance of a 4th P namely, people in collaborative partnerships.

RAF 4: Re-Modeling towards a Digital Workspace Mechanisms

During the COVID-19 crisis, the most unanticipated structural change has been witnessed by most, that is, the division of the workforce into in-office workers and remote workers. While it has been necessary for employees to work remotely, there has also been a need for core employees in frontline jobs, to work in physical locations and deal with customers or other stakeholders. HR initiatives have been accelerated in order to devise systems for remote workers to ensure effective collaboration-flexibility to work from home. PSOs are encouraged to develop policies and standard operating procedures (SOPs) for remote

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workers to ensure effectiveness. These policy initiatives may help to reduce stress for both managers and employees and mitigate possible conflicting situations. There is currently a trend of thought that a better digital environment is conducive to retaining employees because they are more engaged. Retention of good talent is undoubtedly a top priority for management.

Adoption of digital workspace technologies continues to grow at a rapid pace. As PSOs evaluate and choose the platform that will provide critical support to employees and users, making the right decision is imperative. The guidance of Chief Information Officers (CIO) and parallel technical professionals should be sought when these decisions are being made.

With respect to physical space at an office, the trend globally seems to favour ‘floating’ or flexible workspaces which encourage open workspace where most employees occupy open cubicles for better interaction. This aligns with the recommendations of maintaining appropriate social distance at work. PSOs may need to consider this arrangement for certain types of jobs depending on the nature of work and what is required, in order to contain high costs related to rental of physical space and buildings.

Digitisation of records is another key area of work for PSOs. This involves the process of converting hardcopy or non-digital records into digital format and includes digitising text, photographs, maps, converting analog voice recordings to digital media etc. A few CARICAD Member States have begun the process of digitising records. This is a critical component of any Business Continuity Plan to promote greater security in the event of a major disaster or pandemic or even changes in personnel. CARICAD has shared a template for a Business Continuity Plans with Member States. Some key considerations when planning digitisation of records include record-keeping requirements such as indexing, non-disposal of original source records without due authorisation; and authenticity of records must be demonstrated. Another consideration would be to conduct a business needs analysis

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to determine long-term commitment of resources such as migration and storage costs and to ensure that digital records management capability in terms of meeting quality standards and maintenance are available.

It will be interesting to observe the spirit of innovation in the above respects and the attendant approaches that will be adopted by governments as the COVID-19 pandemic situation evolves.

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2. People Focus

The past decade has been marked by crises and rapid change, all impacting PSOs. As a result, there have been a plethora of programmes introduced targeting the management and development of human resources, some of which have not had significant systematic impact on the public service. The COVID-19 pandemic has refocused attention of HRM, to the extent that this period can be labelled the “people era”. This section of the paper discusses the four People-related RAFs with the expectation that the adoption of the strategic approaches being proposed will result in human resources (people) who are engaged, valued and mobilised in such a way that it facilitates the achievement of strategic objectives in the public service.

RAF 5: Re-Thinking Employment Arrangements

People are at the frontline of organisations’ responses to the COVID-19 crisis. The crisis is forcing organisations to urgently develop, adapt or improve employment arrangements, work policies and procedures. As organisations struggle to keep employees safe and informed, it behooves those in management positions to think about what changes will be more permanent, so that employees as well as organisational leadership will be guided through those changes.

With regard to employment practices, PSOs in CARICAD member states have a distinct tenure arrangement comprising established and unestablished employees. This means that employees may be engaged on a permanent (established) or temporary (unestablished) basis. Employees are also engaged on fixed-term contract or as daily-paid workers. The difference between established and unestablished employees is generally (i) on the basis of tenure and (ii) the method of entry into the public service. In some member states, the unestablished cadre is referred to as a parallel service because of competing size. Generally, all public officers are covered by the provisions of a Public Service Regulations/Act; however unestablished employees may be covered by collective bargaining arrangements. There has been some effort

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by certain member states to regularise the established/unestablished tenure arrangements. In the post-COVID-19 era, Governments may need to consider abolition of the distinction in tenure arrangements i.e. whether a public officer is established or unestablished. Importantly, where public service regulations are outdated, every effort should be made to update, enact and enforce regulations. This means that the differences between established and unestablished will no longer exist and also the framework under which recruitment to the public service is carried out would be more competency-based and equitable. There are very significant strategic, policy and operational challenges that must be addressed in bringing about this change.

Updated public service regulations should also consider new employment trends such as the use of part-time work and more flexible working patterns, such as job-sharing and furloughed arrangements. Doing so could provide increased employment opportunities, for example to enable parents with young children or persons responsible for elder care to combine a career with their family responsibilities more easily. Flexible working patterns will be subject to the approved regulations and operational needs.

Since the pandemic, there has been an increase in remote/teleworking. Remote/teleworking both describe work arrangements where an employee works outside of a traditional central location such as an office. Both imply working from home at least on a part-time basis. Remote working is not a new concept. In fact, remote working is a global trend that became more commonplace during the last twenty years. Working remotely in the Caribbean region has generally not been a consideration for many PSOs; the pandemic, however, has taught us that this is possible. The COVID-19 pandemic forced PSOs to manage shutdowns and social distancing requirements, and public officers moved from never working remotely to working remotely full-time.

Remote working is here to stay, but who will be doing it? Some words of caution are necessary amid the recognition that remote working is here to stay. i) It must be recognised that when the workplace extends to

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the home, training and resources also need to support the employee in their new workplace; and ii) The McKinsey Group14, based on research, warns that some work that technically can be done remotely is best done in person. The process of determining what jobs are better suited for remote work vs in-office must therefore be carefully analysed.

The HR landscape has evolved significantly over the years. An ever-growing number of organisations have advanced from a traditional administrative landscape to adopting a more strategic approach to HR, for example ensuring access to the right talent base and adopting more flexible employment arrangements. PSOs may need to consider alternative and more flexible employment arrangements, in order to access scarce skills.

The very nature of employment in the public service is, in many respects, quite different from the private sector. While the public service in particular does not have a tradition in granting employees flexible working time, there may need to be a marked divergence in employment patterns. The use of part-time work, job-sharing and more flexible working hours may be encouraged as a means of managing peaks and troughs of work more efficiently and effectively, and of providing working conditions which are more responsive to the public service and public officers’ needs. Existing rights of employees, however, must be considered and the process should be subjected to consultation and negotiation with unions.

Owing to the impact of COVID-19 and a reduced workforce in some instances, PSOs may need to consider engagement of former employees who have resigned, retired early or prematurely if they successfully apply and meet the requirements for a post. They could function as mentors, trainers or subject matter experts engaged in skills transfer.

To conclude this RAF, the issue of equitable reward cannot be overlooked. PSOs must address employee compensation through alterations to classification and pay systems, review of pay broad-

14 Mckinsey.com/featured-insights/future-of-work/the-future-of-work-after- COVID-19

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banding, and alignment of performance evaluation and reward systems. This will correspond with needs continually expressed by employees for appropriate placement, development, and recognition.

RAF 6: Re-Orienting Employee Support

Prior to the COVID-19 crisis there was very little attention paid to mental health of employees in the public service. The current crisis has brought home the need to focus on the holistic well-being of employees. With salary adjustments/reductions, job losses within families, reduced working hours, health concerns and overall uncertainties, the mental health situation has become critical. Even with flexible timing, digital empowerment, and health & safety initiatives, some employees have been stressed due to what might be considered to be overall social alienation. In this current pandemic, employees may be working from home but with an increased sense of worry, a burden of uncertainty regarding their future. Some employees may not even be certain where they will be in the next few months or the next year, and all of these developments are likely to take a toll on mental health.

PSOs therefore need to consider this as a crisis situation requiring immediate attention. It begins with sending strong clear psychologically-empowering messages to employees that the organisation is fully committed to work with them through this crisis. Employees must be given a sense of purpose and assurance that their commitment is crucial, and that they are valued. It will be important to engage in targeted health and well-being activities where employees are able to disconnect from stressors and connect with more positive emotions about life. If employees feel that managers care, that they have their interest at heart, and that some action is being taken to ensure their safety and well-being, they will be more productive. This will require courageous, compassionate and committed leaders to disregard the old “big stick” approach to management and to shift to creating an atmosphere of care and not fear. The successful implementation of Employee Assistance Programmes (EAP) in a number of PSOs is

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noteworthy and is strongly recommended to others who have not done so. The EAP provides counseling services to help employees manage life-stressors of all kinds.

Another major HRM objective will be the development of a genuine culture of respect for diversity which builds positively on employees’ differing cultural backgrounds. PSOs need to be affirming people irrespective of race, gender and disability so that all sections of society have an equal opportunity.

RAF 7: Re-Training and Re-Tooling

A new normal is already emerging since the advent of COVID-19 in 2020. There has been an increase in advanced online, mobile and remote working technologies to keep organisations functioning. This new-found exposure will no doubt drive organisations worldwide into a digital governance revolution. Continuous re-skilling, re-training and cross-training of employees will be necessary in order to enhance the workforce and increase productivity during and well beyond the pandemic.

PSOs need to prioritise activities to ensure delivery of value to the organisation. This approach will assist in decision-making regarding the re-training and re-tooling of employees. Re-training and re-tooling are focused on unlearning and re-learning new processes and also strengthening the ability of employees to deliver performance in areas that really matter during this current pandemic scenario. Employees will need to be encouraged and allowed time to learn new tools and skills as well as be provided with opportunities for relevant training and development. It is recommended that PSOs consider the following types of learning technology for workforce training, professional development and onboarding:

• Virtual instructor-led training such as webinars since face-to-face learning may not be possible in the short term

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• Online courses

• Blended learning approaches including a mixture of online technology-based learning and in-person sessions

• Remote secondments provide an excellent learning opportunity to work for a different organisation, in another country for a specified period of time. In the prevailing environment a highly structured work programme and pattern of engagement would be essential. This is a more intensive learning experience than classroom or online courses and secondees get to put their knowledge to use, while the host organisation benefits from their expertise through a remote arrangement.

COVID-19 has raised uncertainty levels regarding availability and readiness of leaders and managers to a great degree. In an article titled “Leadership in times of COVID-19”, the author notes that “the current situation poses an enormous challenge for leaders across the world. The uncertainty embedded in this situation makes the ‘leadership challenge’ even more complex”15. Succession planning therefore becomes even more important for strategic positions within PSOs. Grooming high potential employees is critical to ensure there are enough mission-critical employees in the right jobs, with the appropriate knowledge and skill readiness to assume strategic offices at short notice. Recently, there have been efforts by organisations in developed countries to transform how recruitment and capability building is approached. There is now a focus on skills and capabilities as opposed to relying solely on academic qualifications. Such a stance could be a key consideration in our PSOs going forward, as it would enable individuals to be recognised for their skills and not solely the credentials that they possess.

Efforts must be made to ensure the capabilities of public officers are more relevant and remain current. The qualification-based approach should be re-oriented towards the actual skills and competencies of

15 Leadership in the times of COVID-19, Deloitte May 2020 https://www2.deloitte.com/content/dam/Deloitte/in/Documents/human-ca pital/in-hc-Leadership-in-the-times-of-Crisis-noexp.pdf

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employees. PSOs should put measures in place to become better at embedding good leaders throughout the organisation. This will require not only a common understanding of what leaders should know, be and do, but also the consistent development of effective leaders through psychometric assessment, training and development, mentoring, coaching, participation in teams, cross-functional assignments, and action-based training activities etc. Assessing bench strength (the capability of staff to move into positions of greater responsibility when required) in support of leadership as well as identification of potential leaders through a structured succession management programme are fundamental to the idea of embedding good leaders. CARICAD’s Leadership Development Programme provides opportunities for middle and top-level public officials to development/build on their leadership capabilities and increase their leadership capacity in current/future potential leadership jobs.

The role of Public Service Training Institutions/Units (PSTI/PSTU) in re-training and re-tooling is vital to keep public officers abreast with the rapidly changing environment. Most CARICAD member states have established public service training systems over the past two decades. It will be however incumbent on governments to ensure that PSTI/PSTUs are adequately resourced in order to meet training objectives to improve professional capabilities of employees for increased efficiency of the public service at a national level. To achieve greater efficiency, training policies must be up-to-date and relevant, training needs must be assessed in a systematic manner, training modalities must be fit for purpose and evaluation of training impact must be a core component of ‘training success’. At the regional level, greater cooperation is required among PSTI/PSTUs to ensure centres of excellence in specialised areas. Networking at the regional level provides a basis to also exchange views and experience and coordinate training activities. Importantly, the re-tooling of PSTI/PSTUs to make them fit for purpose will be a necessary contributor to success.

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RAF 8: Re-Evaluating Roles and Responsibilities

As discussed earlier, COVID-19 has pushed organisations into working differently. The future of work looks exciting with options to work from home and other out-of-office locations, as well as more flexible in-office workspaces. These arrangements in terms of the impact on work should not be treated lightly nor taken for granted. As pointed out in the Harvard Business Review16 “the impact on work is far more profound than just changing where people work; it is also fundamentally altering what work is performed and how we perform it”.

Indeed, the importance of clearly defined roles and responsibilities cannot be underestimated. Defining roles and responsibilities in PSOs will provide clarity, alignment and expectations to employees carrying out the work. Clarifying roles and responsibilities for jobs that have changed during the pandemic is important to facilitate more effective communication and collaboration within and between MDAs resulting in greater integration.

Roles and responsibilities may sound straightforward, but if clarity is not provided, exceptional results that organisations expect may not occur. It will be important therefore for PSOs to revise/update Job Descriptions as well as Objectives and Key Results (OKRs).

Teamwork has also increased since the pandemic. However, the importance of role and responsibility definition in operationalising teams is often overlooked. The skills required to manage teams have changed and there is agreement that managers and leaders need to adapt to running and supporting diverse teams17. Having clear Terms of Reference for teams will be necessary so that each person’s role and success criteria within the team are defined, for a more positive impact in terms of improved communication, cooperation, workload and met deadlines.

16 https://hbr.org/2020/04/how-the-coronavirus-crisis-is-redefining-jobs17 https://home.kpmg/xx/en/home/industries/government-public-sector/ the-new-reality-for-government/human-resources.html

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ConclusionThe COVID-19 pandemic has brought the urgency of building a resilient 21st Century public sector, with the right systems, right skills, right leadership, and a culture that is conducive to change.

For PSOs there may be reason to be optimistic. The current crises of the COVID-19 pandemic and natural hazards/disasters could serve as the catalyst for radical change. Our people in the Caribbean region may now be receptive to more radical transformation, having felt a new sense of purpose and willingness to be innovative during the pandemic.

Strategic re-organisation of the public service and by extension the reframing of HRM are required to effectively respond to the VUCA scenario and adapt to the tenets of 21st Century public sector. Now more than ever, PSOs will have to deal with uncertainty and therefore it must be confronted head on. A good way of doing this is to build scenarios to manage VUCA and ensure that strategic results and outcomes are achieved.

In that regard, PSOs will need to adopt/stretch strategies and mindsets that combat VUCA and create a new reversed VUCA paradigm, which the author of this paper has coined an ACUV paradigm. In that context, PSOs will need to i) develop Agility as a core competence to keep pace with changing needs during challenges such as COVID-19 and beyond; create an environment where agile leaders and teams collaborate, learn from each other, and are focused on quality and continuous learning; create values-enabled systems; do more with less to address increasingly complex and mounting ranges of issues; demonstrate integrity and coach employees through uncertainty. ii) Build Capabilities to ensure that employees are fully equipped to navigate the ship; sustain a learning organisation; develop job descriptions that are focused on competencies; use in-person as well as technology to build capabilities; ensure people’s creativity and ability are present to avoid slips in performance. iii) Embrace the Unique characteristics about our Caribbean culture, being creators with active

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mindsets and not just consumers; become knowledge experts and being driven to create indigenous narratives; being aware of our organisational nature and ensure that employees are fully equipped to navigate the ship; sustain a learning organisation; develop job descriptions that are focused on competencies; and ensure people’s creativity and ability are present to avoid slips in performance. iv) Visioning entails painting and implementing a values-based North Star vision of the future as a compass to motivate and help employees remain resilient. This involves distilling a clear, shared and compelling purpose; strategic positioning and innovation, integrating RBM in the planning process for successful delivery; and being confident about the future for the organisation requiring a change in mindsets.

The concept is best illustrated in the graphic at Figure 3:

Figure 3: Managing VUCA with ACUV

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The reframing of HRM in the public service will require an ACUV approach. This means that the effort should be championed by the Ministry/Department with responsibility for Public Administration as well as Service Commissions, as they have leadership roles for making calculated and informed HR decisions. These Agencies will, among other things:

1. Ensure that the new human resource policies are supported by key stakeholders.

2. Consult and, where necessary, reach agreement on human resource policy with representatives of organised labour at national level.

3. Ensure that the statutory framework supports the practical application of new human resource management policies.

4. Ensure that human resource management policies are aligned with other transformation initiatives.

5. Seek to ensure that centrally-controlled systems, such as SMART STREAM are developed to support ministries, departments and agencies’ implementation of the new human resource management policies and applications.

6. Assist ministries, departments and agencies in implementing the new human resource management policies by providing guidance and, in conjunction with training providers, help to develop capacity.

Going forward, the public service will be forced to look at how it can drive up efficiencies and reduce costs at the same time. In order to achieve this, it is important for governments to think about what changes may be more permanent, so that organisational leadership and public officers can be guided through those changes. There is indeed an opportunity for PSOs to take advantage of this pandemic by examining themselves through the lens of adaptation, and focusing attention on interventions that are both organisation-centric and people-centric.

Achieving HRM reframing may not be an easy feat particularly in a public service environment; but it is possible if we reset the compass. As we look forward to ‘normal’, after the pandemic and regional distress caused by the La Soufriere Volcano eruptions, PSOs must commit to embracing and

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sustaining an approach that focuses on nurturing and developing employees while transitioning to values-enabled systems and achieving corporate objectives and outcomes. Resetting the compass may also require bi-partisan agreement at the national level in certain circumstances, to secure stable, long-term capability planning and funding of programmes that are crucial for socio-economic development. The process of change requires releasing/shedding some things that are not value-adding. In order to shed, transform and achieve system-wide efficiencies, consistency in the use of ACUV in a VUCA environment will be vital.

Mrs. Rosemund R. Warrington is the in-house Senior Certified Specialist in Strategic Human Resource and Organisation Development & Effectiveness (HR/ODE) at CARICAD. Over the years, Mrs. Warrington has represented CARICAD in providing HR/ODE services both in Public and Private Sector organisations in the Caribbean region. These services include the development of HR Strategies, HR Audits, Skills Assessments, Competency Frameworks, Workload Measurements, Recruitment and Selection Strategies, Workforce Planning, Competency-based Performance Management Systems, Job Evaluations, HRD Plans, Capacity Building, HR Policy Manuals, Job Analysis and Job Description Writing, Succession Planning, Training Systems Review and Re-Design, Organisational Capacity Assessments and such.

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CARICAD (2017). Governance Code and Operational Guidelines for Committees of Permanent Secretaries in the Public Services of CARICAD Member States.

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Lund, S. et al (2021). The Future of Work after COVID-19. Retrieved from Mckinsey.com/featured-insights/future-of-work/the-future-of-work-after-COVID-19.

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