1

The Australian Public Service (APS) plays an essential role in Australian Government administration, assisting government to carry out its responsibilities to the Australian people. Its work touches the lives of all Australians and it is responsible for acting in the public interest, ensuring the integrity of government processes and providing an apolitical perspective on policy and delivery options.
As the world becomes increasingly interconnected, the challenges that the APS must respond to are becoming increasingly complex, fast-moving and integrated. At the same time, the nature of work is changing. The quantity and speed of information is increasing, and technology is providing new ways to deliver services and make government information available to citizens. This is changing the manner in which policy options are analysed and services delivered, and it is increasing the expectations of citizens and government.
As the world changes, the APS must continue to evolve its practices to stay ahead of a changing world. The APS’ strength as an institution and its ability to understand the nature of the challenges facing the nation, and respond quickly and effectively is fundamental to the success of our country and our society. To do this, the APS requires effective leaders and a highly capable workforce equipped to meet the challenges of the modern world, the changing nature of work and the increased expectations of citizens.
This strategy was developed to respond to the changing requirements of the APS and enhance leadership development and core skills learning and development 1 to position the APS to effectively respond to current and emerging challenges.
The APSC established the Strategic Centre for Leadership, Learning and Development in July 2010 to address the leadership and core skills challenges outlined above and identified in Ahead of the Game:
Blueprint for the Reform of Australian Government Administration . Funding for the implementation of the Strategic Centre for a period of five years (major review at three years) was subsequently provided via a Memorandum of Understanding (MOU) with agencies employing more than 200 staff under the Public Service Act 1999 .
One of the key deliverables under the MOU is an annual leadership and core skills development strategy. Initial work during 2010-11 focused on identifying the leadership development requirements across the APS, and in April 2011 the Secretaries Board supported implementation of the APS
Leadership Development Strategy (2011). The APSC has now implemented a number of key elements of this strategy, including the pilot Band 2 Talent Development Program and a refreshed approach to
1 Ahead of the Game: Blueprint for the Reform of Australian Government Administration (2010).
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Senior Executive Service (SES) orientation. Ongoing work to update and refresh the APSC’s suite of
SES leadership and management development programs and events and to review and, if necessary, update Executive Level leadership and management development, is also underway.
In 2012, the APSC has validated and refreshed the leadership development needs and priorities, and expanded its focus to include the identification of core skills gaps and opportunities. This work has resulted in the APS Leadership and Core Skills Strategy 2012 summarised in this paper.
Four related development areas have been identified as within the scope of this work:

Foundation skills: These are essential workplace skills that are relevant to employees at all levels. These skills underpin leadership capability, core skills and management skills, and they are essential for effective operation in an organisation. Unlike core and management skills, foundation skills are not specific to the public sector, although they are applied differently in different public sector contexts (policy development, delivery, regulation).

Core public service skills: These are public sector-specific knowledge and skills that are essential to the public service institution and of relevance to all public servants. Development of these skills would normally occur at the APS-EL levels.

Management skills: These skills build on the core public service skills and provide the skills that are needed as public servants move into positions of authority (normally at the EL-SES levels, although some APS staff are in positions of authority). The framework identifies the public sector-specific management skills that support sound decision-making and enable public sector managers to navigate APS systems and processes.

Leadership: These are the leadership capabilities that allow public servants to influence others and set the culture of our workplaces. Leadership capability is “the other side of the coin” that complements core and management skills. As acknowledged in the framework, leadership is a practice rather than a position and leaders need to be developed at all levels, although the initial focus is on the SES.
Job family and agency specific skills development are beyond the scope of this strategy. The scope of
the strategy is shown visually in Figure 1 ниже.
The management skills that complement leadership capability.
Core skills that are essential to an effective public service.
The leadership capabilities required at all levels across the
APS.
Foundation skills for effective operation in organisations
Out of scope:
Job family or agency-specific skills
Figure 1: Strategy scope
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Based on the consultation, research and government report findings, the APSC has identified a number of potential priorities for the 2012-13 period. Priorities were identified based on the potential impact (consistently identified gap across the service or potential for cultural impact), urgency (crossservice skills required for future success) and importance (capabilities that need to be maintained or enhanced across the service).
Based on these considerations, the proposed priorities identified for the 2012-13 period are outlined
below and pictured in Figure 2 ниже.
Figure 2: APS Leadership and Core Skills Priorities 2012-13
Core and Foundation skills priorities
A range of skills specific to the public service, as well as foundational ‘employability’ skills have been identified as priorities through our consultation and research. The 2012-13 core and foundation skills priorities are:
Core skills

Policy development and implementation. A strong policy capability that translates on the ground into effective service delivery is essential to a public service institution. Particular emphasis has been proposed in improving the connection between policy and implementation.
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
Working within and across teams. Working across teams and across agencies will be a key capability to deliver ‘joined up’ policy and services. The initial focus would be on dealing with change and working in teams, with all aspects identified under working within and across teams addressed in 2012-13.

Applying ethical and legal public sector frameworks. Effective public servants require a good understanding of the ethical and legal frameworks that govern their work and guide their decision-making. The initial focus would be on decision-making and risk, with all aspects identified under applying ethical and legal frameworks addressed in 2012-13.
Foundation skills

Structuring work. Strengthening skills in workload management, time management and skills such as project management to support more effective delivery of work.

Compelling communication. Improving APS communication skills, including tailoring to varied audiences with diverse needs.
Leadership and Management skills priorities
Leadership and management development activities will recognise that managers need to develop both their management skills (effective use of authority) and their leadership skills (using influence to create change).
Management development priorities

People and organisational development. Agency consultations and State of the Service survey data have consistently identified people management as an ongoing gap and area for improvement, with managing the development of people, including through performance management, particularly highlighted.

Decision-making and judgement in the public sector (including risk management, public value, financial management). Consultation highlighted the importance of building management skills that enable managers to fulfil their role in ensuring the integrity of government processes and providing a dispassionate perspective on policy and service delivery options. Similarly, research and consultation highlighted that public sector managers must have the skills to operate in an environment characterised by doing ‘more with less 2 ’.
Leadership Development priorities
All leadership programs are based on the Knowing | Doing | Being framework identified in the 2011
Strategy.
2 CSIRO (2010) Our Future World, An Analysis of Global Trends, Shocks and Scenarios
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Areas of focus – Knowing and Doing

People leadership: including creating an innovative and engaged culture, facilitating learning and performance, motivating and developing people, leading diversity.

Strategic leadership : including thinking globally, scanning the environment, systems thinking, generating options and possibilities, establishing vision & outcomes, government business acumen, decision making and planning.

Leading change: including initiating and sustaining change, mobilising systems, brokering solutions and commitment to action, supporting people through change.

Political nous: scanning & understanding the power context, thinking and acting politically, building coalitions for change, risk savvy, analysing stakeholders’ issues, concerns, perspectives.
Areas of focus - Being
The Being element of the framework represents the need to develop leadership which – among other things – is agile, resilient, authentic, open to learning and able to read, draw upon and respond to the situation and the perspectives of others.
.
The 2012-13 priorities are contextualised in a broader framework capturing the full set of skills
clusters identified by agencies as areas where development effort might be focused (see Table 1).
Development framework skills clusters
Foundation skills
Compelling communication
(2012-13 priority)
Core Skills
Applying ethical and legal frameworks (2012-13 priority)
Understanding government Building relationships and engagement
Structuring work (2012-13 priority) Working within and across teams
(2012-13 priority)
Analytical thinking Professional public service skills
Table 1 Development framework skills clusters
Management skills
Decision-making and judgment in the public sector (2012-13 priority)
Working with government
People and organisational development (2012-13 priority)
Professional public service skills
The skills identified within each skills cluster are outlined in the section Environmental impact on
APS skills from page 18 of this strategy.
During the implementation phase, research and consultation will be undertaken to understand the detailed learning requirements and to develop the detailed learning program to support development in each of the priority areas. Depending on specific learning needs, there are a number of ways that this may occur.
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Core public service skills
As many agencies are already actively delivering core skills programs, the APSC intends to take a practical approach to implementing this component of the strategy and will leverage existing fit-forpurpose programs where they exist.
To this end, the APSC will work with agencies to define the learning need and programs, and will conduct a gap analysis to identify existing programs that meet all (or part) of the identified learning need.
To provide maximum flexibility for agencies, the APSC will aim to provide a range of delivery options, including providing the learning specification to agencies for in-house tailoring and delivery, identifying quality assured providers, and where appropriate providing some centrally delivered programs (classroom-based or e-learning).
Foundation skills
Two approaches are being considered to support the development of foundation skills. The first is to develop dedicated learning programs to support the development of specific foundation skills.
Alternatively, the development of foundation skills may be embedded into core and management learning activities (for example a policy skills program might include elements to develop compelling communications skills in the policy context). The approach taken will be considered on a case-by-case basis.
Anticipated timeline
Analysis for core and foundation skills priorities is to be completed early to mid 2013, with progressive intervention roll out in 2013 and 2014.
The implementation of the APS Leadership Development Strategy will continue in 2012-13.
Leadership and management development will be considered in parallel, recognising that, while it is possible to identify elements that are characterised as leadership and elements that are characterised as management, effectiveness requires a combination of both.
Underway: SES leadership development implementation
Following from the 2011 strategy process, design, procurement and delivery of leadership development programs targeted at SES leaders is currently underway, including:

SES Orientation. A refreshed orientation program, which aligns with the principles in the
2011 APS Leadership Development Strategy , was launched in June 2012. This program includes both management skills building (e.g. decision-making within public service ethical and legal frameworks) and opportunities to enhance leadership capabilities.

Band 1, 2, 3 Leadership Programs. A cross-APS design process is currently well advanced, and refreshed programs aligned to the 2011 strategy will be progressively launched from
October 2012 through to June 2013.
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
Talent development programs. Currently underway for Band 2 and Band 3, talent programs are an opportunity to provide tailored leadership development to those with the potential to move into more senior roles.
These programs are subject to continuous improvement, and will be amended to meet the needs of the changing APS context and emerging drivers.
Management skills
Analysis of the management skills priorities identified in this strategy will be completed by the end of
2012. Learning interventions will be designed in the first half of 2013. It is anticipated that learning interventions may be integrated with leadership development activities, SES events, or possibly as stand-alone learning programs.
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Introduction ........................................................................................................................................... 10
Context .............................................................................................................................................. 10
Scope ................................................................................................................................................. 10
Methodology ..................................................................................................................................... 11
The APS environment ........................................................................................................................... 13
Forces impacting the APS ................................................................................................................. 13
How is the nature of work and the workforce changing? What is enduring? ................................... 16
Environmental impact on APS skills .................................................................................................... 18
What does it mean to be an effective public servant in this environment? ....................................... 18
What does it mean to be an effective public service leader in this environment? ............................ 20
Priorities for 2012-13: gaps and opportunities ...................................................................................... 21
Management skills and public sector core skills ............................................................................... 21
Public sector core skills .................................................................................................................... 22
Foundation skills ............................................................................................................................... 24
Leadership capabilities ...................................................................................................................... 25
Developing our future ........................................................................................................................... 26
Core public sector skills and management skills .............................................................................. 26
Foundation skills ............................................................................................................................... 26
Leadership capabilities ...................................................................................................................... 26
Evaluating for success ........................................................................................................................... 28
Appendices ............................................................................................................................................ 29
Definitions......................................................................................................................................... 29
About the Strategic Centre for Leadership, Learning and Development .......................................... 31
Background to the Strategic Centre .............................................................................................. 31
Objectives of the Strategic Centre ................................................................................................ 31
Reference list ........................................................................................................................................ 33
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The Australian Public Service (APS) plays an essential role in Australian Government administration, assisting government to carry out its responsibilities to the Australian people. Its work touches the lives of all Australians and it is responsible for acting in the public interest, ensuring the integrity of government processes and providing an apolitical perspective on policy and delivery options.
As the world becomes increasingly interconnected, the challenges that the APS must respond to are becoming increasingly complex, fast-moving and integrated. At the same time, the nature of work is changing. The quantity and speed of information is increasing, and technology is providing new ways to deliver services and make government information available to citizens. This is changing the manner in which policy options are analysed and services delivered, and it is increasing the expectations of citizens and government.
As the world changes, the APS must continue to evolve its practices to stay ahead of a changing world. The APS’ strength as an institution and its ability to understand the nature of the challenges facing the nation, and respond quickly and effectively is fundamental to the success of our country and our society. To do this, the APS requires effective leaders and a highly capable workforce equipped to meet the challenges of the modern world, the changing nature of work and the increased expectations of citizens.
This strategy was developed to respond to the changing requirements of the APS and enhance leadership development and core skills learning and development 3 to position the APS to effectively respond to current and emerging challenges.
This strategy aims to ensure that the APS workforce has the core skills and leadership capabilities needed to perform effectively in the context of changing APS business requirements. It validates and refreshes the APS Leadership Development Strategy (2011), and expands its focus beyond leadership to incorporate core and management skills.
The scope of this strategy is drawn from Ahead of the Game: Blueprint for Reform of Australian
Government Administration (2010). It aims to identify existing gaps and opportunities to development skills and capabilities across four related development areas:

Core public service skills: These are public sector-specific knowledge and skills that are essential to the public service institution and of relevance to all public servants. Development of these skills would generally occur at the APS-EL levels.
3 Ahead of the Game: Blueprint for the Reform of Australian Government Administration (2010).
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
Management skills: These skills build on the core public service skills, developing the knowledge and skills that allow individuals in positions of authority to successfully negotiate public service systems and processes. Development of these skills would generally occur at the EL-SES levels; however this should only be applied as a rule of thumb.

Leadership capability: These are the leadership capabilities that are used to influence others and set the culture of our workplaces. Leadership capability is “the other side of the coin” that complements core and management skills. This strategy understands leadership to be a practice rather than a position, and leadership occurs at all levels.

Foundation skills: These are essential workplace skills that are relevant to employees at all levels. These skills underpin core skills and management skills, and they are essential for effective operation in an organisation. Unlike core and management skills, foundation skills are not specific to the public sector, although they are applied differently in different public sector contexts (policy development, delivery, regulation).
Job family or agency-specific skills are beyond the scope of this strategy. The scope of the strategy is
shown in Figure 3 ниже.
The management skills that complement leadership capability.
Core skills that are essential to an effective public service.
The leadership capabilities required at all levels across the APS.
Foundation skills for effective operation in organisations
Out of scope:
Job family or agency-specific skills
Figure 3: Strategy scope
Definitions of each of the skills areas within the scope of this strategy are available in the Appendix
on page 29.
The strategy was developed by analysing drivers in the environment and changing APS business needs to identify the leadership, management and core skills that need to be developed or maintained.
The strategy aims to answer six key questions:
1.
What are the forces impacting the APS?
2.
How is the nature of work (and the workforce) changing as a result of these forces? What aspects are enduring?
3.
What does this mean for APS core skills and for APS leadership capability?
4.
What are the development priorities across the system for 2012-13?
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5.
How do we develop these skills?
6.
How do we evaluate success?
To answer the guiding questions, data was gathered and analysed from four key sources:
 consultation with a representative sample of APS agencies 4 comprising two distinct sets of data:
­ Secretary and senior SES perspectives
­ Human Resources/Learning and Development perspectives,
 review of government reports and interviews with review function staff (for example
Australian National Audit Office reports, Ombudsman reports, Capability Reviews), and
 review of academic research and contemporary practice.
The resulting strategy identifies the challenges facing the APS, what this means for leadership capability and core skills, and what the APS needs to do to respond to the challenges and requirements. It should be noted that the strategy identifies the leadership capabilities and core skills areas where there is an existing skills gap or an opportunity to develop capability for the future. It does not attempt to identify the complete leadership and core skill-set of a public servant.
4 57 agencies contributed to the development of this Strategy.
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1.
What are the forces impacting the APS?
2.
How is the nature of work (and the workforce) changing as a result of these forces? What aspects are enduring?
3.
What does this mean for APS core skills and for APS leadership capability?
4.
What are the development priorities across the system for 2012-13?
5.
How do we develop these skills?
6.
How do we evaluate success?
Conducting an environmental horizon scan was beyond the scope of this strategy. This strategy instead draws upon existing horizon scanning work that identifies the trends impacting the practice of public administration, and the trends impacting Australia and the APS (Bourgon & Milley, 2010)
(Hajkowicz & Moody, 2010) (Hajkowicz, Cook, & Littleboy, 2012) (Australian Public Service
Commission, 2012). Drawing together the broad range of horizon scanning work, the following were identified as significant forces impacting the APS:
The Asian Century
The scale and pace of Asia’s transformation is unprecedented and will have profound implications for
Australia (Department of the Prime Minister and Cabinet, December 2011). As we move into the
Asian Century the strategic, economic, social and political landscape will continue to transform in an era where “the Silk Road is turning into the Silk Highway 5 ”. The challenge facing the APS is to ensure Australia and its citizens are positioned to take advantage of the opportunities of the Asian
Century, while successfully meeting its challenges. The Australian Government White Paper process,
Australia in the Asian Century, reinforces the significance of this changing dynamic.
While the Asian Century will impact on all Australians and all public servants, it will have particularly strong implications for APS leaders, who will need the strategic vision, political nous and interpersonal skills required to engage proactively in the region and manage shifting power dynamics.
They will also require the strong people and change leadership needed to help their organisations and teams to successfully adapt to new dynamics, new opportunities and new challenges.
Delivering services and information efficiently and effectively – public sector productivity
Translating policy into effective delivery is characterised by complex delivery partnerships (not only with other agencies but with the private and not-for-profit sector), the ability to leverage the opportunities presented by new technologies and a sophisticated focus on outcomes. At the same time,
5 Hajkowicz, S., Cook, H., and Littleboy, A., (2012). Our future world: global megatrends that will change the way we live
(the 2012 revision), CSIRO, Australia.
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in an environment characterised by ‘doing more with less’, there is a tension between reduced resources and increasing demands on agencies, which creates the challenge of delivering in emerging areas within tight budgets and timeframes (Australian Public Service Commission, 2012).
In this environment the leadership challenge is to think across systems to understand the flow-on effects of their work in other agencies and to collaborate across organisational boundaries. Leaders need to surface innovation, think strategically and motivate others to find more effective ways of delivering services and providing government information. This requires knowledge and skills in policy development, implementation and change management. It also requires the management skills that support efficient and effective creation of public value. This means being able to manage the risks that accompany innovation, managing projects and programs effectively, having the business acumen to select value-for-money business models and designing collaborative governance mechanisms. It also means having strong relationship management skills combined with the ability to understand the perspective of others, and the strategic thinking and creative capacity that finds new ways to reconcile competing priorities amongst partners (O'Flynn, 2012).
Citizen-centred solutions & personalisation
The rapid pace of technological change together with increasing consumer expectations is transforming the way society operates, including transforming our workplaces, our business sector and the delivery of government services. The proliferation of personalised services is shifting the expectations of government (Australian Public Service Commission, 2012), with citizens and business expecting “personalised services that meet their unique needs and wants whilst being delivered en masse” (Hajkowicz, Cook, & Littleboy, 2012).
For the APS, this means that citizens must be kept at the centre of policy and service design. This requires sophisticated coordination to ‘join up’ services across organisational boundaries, and meaningful engagement with community groups, businesses and other stakeholders to shape policy and service design. Leaders will require the capability to develop strategic and coherent solutions, and lead and manage change. The APS will also need to maintain and enhance its ability to collaborate across sectors and build relationships across competing stakeholder groups, whilst operating within the broader public interest (Institute of Public Administration Australia, 2012).
Multi-faceted challenges in a large, interdependent system
In today’s environment, the APS is increasingly confronted by complex, adaptive challenges such as climate change or water allocations. These are challenges that have no clear answers, no easy solutions and where divergent interests splinter stakeholder groups, resulting in policy being highly contested (Heifetz, Grashow, & Linsky, 2009). This is further complicated by the connected, interdependent nature of today’s world where the local can quickly become global (Bourgon &
Milley, 2010).
In this environment, it is more important than ever that policy development and implementation is supported by a sound evidence base and meaningful stakeholder engagement. This environment challenges leaders to maintain resilience as they experience set-backs, and requires the ability to lead change in a highly charged environment combined with highly developed emotional intelligence. In this environment, all public servants also need strong communications skills that allow us to present
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an argument quickly and clearly, combined with the ability to build relationships to work towards bridging competing interests.
Increasing quantity and speed of information
The world of work in the 21 st century is one where a few keystrokes allow an individual to communicate almost instantaneously with one colleague or with large numbers of individuals.
Technology-enabled communications supports remote working, virtual teams and individual flexibility, but it has also transformed the workplace into one where workers deal with more data and information than ever before.
Faced with vast quantities of information and competing priorities, public servants today require the skills to plan and prioritise, quickly identifying the important from the critical. They must have the capacity to work across teams and organisational boundaries, recognising where information is relevant to others. At the same time, they must continue to be guided by a strong understanding of the
APS’ ethical and legal frameworks to maintain strict privacy requirements and meet the accountability standards expected by citizens and government.
Rapid pace of change
Cultural change plays an important role in bringing about the shifts in practice that will support the
APS to meet future challenges. Cultural change is becoming a constant in the APS. As citizens’ expectations evolve and as policy issues become more complex and connected, the requirement to find new approaches and adapt to new demands becomes ever more important.
Leaders at all levels have a critically important role in shaping the culture of the APS by role modelling the values and behaviours that we are seeking to embed, and by helping others to adopt new practices in pursuit of a shared vision of the future. The business planning, change management and people management skills required to effectively manage change will be a key element enabling managers to effectively drive change, whilst all APS employees will need the skills to be able to deal with and adapt to change.
Demographic change
Across the nation, businesses are anticipating the impact of changing workforce demographics. By
June 2050, around 22.6% of the Australian population is projected to be aged 65 and over
(Commonwealth of Australia, 2010). Over time, there will be a reduction in the available workforce and an increase in the competition for talent. For public sector organisations, it will be essential to attract and retain a diverse workforce, including different generations, cultures and minority groups.
Recognising that the APS will need to attract and retain a diverse workforce, leaders will need to be able to create cultures where differences are leveraged to allow the organisation to thrive. Managers will need to be able to get the most out of diversity, catering to different learning and communication styles, different work-life balance needs and different preferences about how their contributions are recognised (Hannam & Yordi, 2011).
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Contested environment for public policy
In an expanding market for policy advice, the public service will need to remain mindful of balancing responsiveness to government with providing robust, impartial advice. In an expanding market offering policy and service delivery, we must respond effectively to the changing nature of work while making sound decisions within APS values and frameworks.
This means the APS will need the ability to scan the environment to understand the future drivers of policy and change, and implementing strategic action in response. This also means that the APS as an institution must ensure it maintains robust professional public service skills at all levels. As with any public service institution, the APS will not be government’s adviser of choice without a strong delivery, regulatory, and policy development and implementation capability, combined with the ability to manage relationships with ministers and other stakeholders. This is underpinned by strong ethics throughout the sector, to guide our advice and decision-making.
As drivers in the environment come to bear on the APS, aspects of work and the workforce will change, while others will endure. Some of the key impacts on the world of work will include:

Technology will increasingly be a focus of the way we work and the way we serve. This will allow teams to increasingly operate across geographic boundaries, through virtual teams and remote working. It will also provide new ways of delivering government services and engaging with stakeholders.

Collaboration will be critical in all aspects of APS work. As challenges become more complex, citizens will expect to be involved in meaningful dialogue that provides an opportunity to engage in policy and service design. Services will be expected to be delivered seamlessly across APS organisational boundaries, and the APS will need to work closely with other APS agencies, with the not-for-profit sector and with jurisdictions to deliver outcomes.

Adapting to and embracing change will become the norm across the APS as agencies respond to emerging needs at pace.

Diversity will become increasingly important. It has always been important for the APS to reflect the diversity of the nation it serves, but as the war for talent continues to heat up, the
APS will need to attract, retain and leverage the skills brought by different generations, different cultures and different life experiences.

APS values and frameworks are enduring and as the world of work evolves, the APS must continue to operate with the high level of integrity set out in our values and frameworks.
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The nature of leadership is also changing as a result of these forces. Table 2 identifies the leadership requirements that supported the APS in the past and the additional requirements being placed on our leaders now and into the future.
Leadership requirements that supported the APS in the past
Expertise and systems deeply effective and deployed in a single stream
Provide the right answers to questions about what needs to be done
Restructure for efficiencies and alignment
In addition, our future leaders need to ...6
Adapt multiple systems and align teams with new environments
Ask the right questions as answers might not be self evident and require collaborative processes
Can work across changing, complex systems
Apply your expertise within your domain
Utilise your expertise to make decisions and implement
Set direction and mobilise people
Align and apply expertise of groups to impact the system
Shape the context to enable and foster good decisionmaking
Shape collective and individual experiences to foster innovation
Table 2: The changing nature of leadership
6
Various sources including Kotter 1998, Storey 2004, Senge 2000, Pfeffer & Sutton 1999, Charan et al 2001, Ulrich 1999,
Ibarra et al 2010, Bennis & Thomas 2002, Goffee & Jones 2006, Hartley and Benington, 2008
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1.
What are the forces impacting the APS?
2.
How is the nature of work (and the workforce) changing as a result of these forces? What aspects are enduring?
3.
What does this mean for APS core skills and for APS leadership capability?
4.
What are the development priorities across the system for 2012-13?
5.
How do we develop these skills?
6.
How do we evaluate success?
Core public service skills
In the fast-paced, complex environment of today’s APS, public servants need the public sectorspecific knowledge and skills that ensure they are able to:
 operate within the frameworks and values expected of the APS;
 understand and support government processes;
 collaborate within and across teams/agencies to solve problems; and
 apply effective public-sector professional skills within their area of expertise to deliver public value.
The core skills clusters identified in this strategy (including the key skills with each cluster) are
outlined in Table 3 ниже.
Applying ethical & legal frameworks
APS ethics and values
Understanding government
The role of the APS
Working within & across teams
APS people management
Performance management
Cross-agency working
Professional public service skills
Policy
Delivery
Regulatory
APS frameworks Understanding parliamentary processes
APS decision-making & risk
Procurement essentials
Understanding legislative processes
Responding to the
Minister’s office
Contract management
Table 3: Core public service skills
Working with stakeholders
Dealing with change
Working in teams
Working with diversity
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Management skills
Building on these core skills, as public servants move into positions of authority, they require management skills that will support sound decision-making and enable them to navigate APS systems and processes to support effective execution. The management skills identified in this strategy build on (and are higher orders of) the core public service skills.
The management skills clusters (including the key skills with each cluster) are outlined in Table 4 ниже.
Decision-making & judgement
Public sector accountability
Creating public value
Financial management and budgeting
Project, program and risk management in a complex environment
Procurement essentials
Developing a business case
Table 4: Management skills
Working with government
Briefing and responding to APS decision-makers,
Ministers & Parliament
Working with the
Minister
Developing Cabinet
Submissions
People & organisational development
Coaching and developing others
Building and leading high performing teams
Planning and managing change
Appearing before
Parliamentary
Committees
Working with stakeholders and jurisdictions
Getting the most out of diversity
Business planning
Performance management
Professional public service skill
Policy development & implementation
Delivery management
Regulatory frameworks and practices
Managing relationships with Ministers, stakeholders and others
Foundation skills
Underpinning the public sector-specific core and management skills, public servants require a firm grounding in foundational workplace (employability) skills that are common to the public and private sectors, including skills in:

Structuring work. In today’s fast-paced environment, public servants need structured methods of working. This means having the skills to decompose a task into its constituent skills, planning and prioritising.

Compelling communication. Communication skills are a key part of transacting business. In the APS we require the ability to present an argument clearly, concisely and in a compelling manner, going to the heart of the issue with speed and clarity.

Building relationships and engagement. Building relationships and engaging in meaningful consultation with citizens, stakeholder groups and working across teams, across agencies and across jurisdictions goes to the heart of public service work and are critical foundation skills across the APS.
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
Analytical thinking . Applying analytical thinking is a critical part of work. This means having the skills to define a problem, collect relevant data, identify bias in evidence, evaluate evidence, weigh up arguments and confirm whether the evidence supports a particular conclusion.
Complementing core and management skills, the APS requires effective leaders at all levels. As the environment for policy and service delivery changes, our culture needs to adapt. Leaders at all levels are the custodians of our culture and need the skills to lead in this environment. Increasing complexity, pace and interconnectedness means that the capabilities needed of our leaders are different than in the past. All APS employees are leaders and can model the leadership behaviours that create our culture.
The Knowing | Doing | Being framework (Nohria & Khurana, 2010) articulated in the 2011 APS
Leadership Development Strategy remains a useful frame for leadership development in the APS.
This means that leaders must have a strong knowledge base ( knowing), they must display the observable behaviours and skills to execute ( doing ), and they must have a strong self-concept and highly developed emotional intelligence ( being ).
Figure 4: Knowing | Doing | Being development framework
Notably , the Knowing | Doing | Being framework incorporates the Integrated Leadership System
(ILS) in the doing component. The ILS focuses on five leadership behaviours: shapes strategic thinking, communicates with influence, exemplifies personal drive and integrity, achieves results, and cultivates productive working relationships. By expanding the focus of leadership development to include the knowing and being components, the Knowing | Doing | Being framework builds on and expands the ILS.
For the purposes of learning design, Knowing | Doing | Being can be further broken down into a number of strategic elements. The strategic elements of knowing and doing require a combination of political nous (reading the context), strategic capability (shaping the context), change capability
(operating within and across contexts), and people capability (working with and through people). The strategic aspect of being is on understanding the self in context.
20

1.
What are the forces impacting the APS?
2.
How is the nature of work (and the workforce) changing as a result of these forces? What aspects are enduring?
3.
What does this mean for APS core skills and for APS leadership capability?
4.
What are the development priorities across the system for 2012-13?
5.
How do we develop these skills?
6.
How do we evaluate success?
The consultation and research process recognised several areas of skill gap across the system within the management, core, foundation and leadership categories. Priorities for development within these categories have been identified. Factors were taken into consideration to identify the priorities across the system include:

Impact: Priority is given to those areas where there is potential to have greater initial cultural impact, or where there is a consistently identified gap to be addressed across the service.

Urgent future requirement: Priority is given to those areas identified as an urgent future requirement due to external drivers.

Capabilities that must be maintained and enhanced: Priority is given to those capabilities that must be maintained and enhanced.
The research and consultation process identified twelve broad skills clusters across management, core and foundation skills where development attention might be focused. These skills clusters are discussed in the following section, including identifying those clusters where development effort will be focused in 2012-13.
Of particular note is the explicit recognition of the context in which leadership development and core skills development is occurring during the 2012-13 period and beyond. The increasing emphasis on the role of Australia in the Asian Century, and the enhanced focus on productivity and efficiency are critical elements that will inform the nature of all development activities.
Management skills
Decision-making and judgement in the public sector – priority skills cluster for 2012-13
The APS works in the public interest and is responsible for ensuring the integrity of government processes and providing a dispassionate perspective on policy and service delivery options. In this context, Agencies consistently identified a requirement to maintain and enhance decision-making and judgement in public sector managers. Areas for focus include knowledge and application of APS ethics and values and governance frameworks, and making decisions within these frames.
These focuses are supported by evidence from the Commonwealth Ombudsman (Frey, 2012), the
Merit Protection Commissioner (2011), Gateway Reviews (Department of Finance and Deregulation,
21

2007-2010), the Treasury (2011), the Commonwealth Financial Accountability Review (Department of Finance and Deregulation, 2012), and Government Skills Australia (GSA) (2012).
Working with government
In the management context, skills to effectively work within the government system and with ministers’ offices and committees, as well as developing an understanding of the environment and operating with (small p) political nous and savvy need to be strengthened. Values such as political neutrality in the context of providing advice to government need to be explored. This need was consistently identified during consultation for the learning themes for the SES Leadership and Talent
Development Suite and is supported by the 2010-11 State of the Service Report (Australian Public
Service Commission, 2011).
People and organisational development – priority skills cluster for 2012-13
The tension between reduced resources and increasing demands on agencies, coupled with competition for personnel and classification creep, means honing management skills in people and organisational development is vital. The people and organisational development cluster contains a number of specific sets of skills, including coaching and developing others and building and leading high performing teams. Of critical importance is the need for managers to see people management, including performance management, as a key part of their role
The need to improve people management skills, including performance management, is supported by the Australian Public Service Commission (APSC) (State of the Service Report 2010-11, 2011) the
Merit Protection Commissioner (Annual Report 2010-11, 2011) and the Blueprint (Commonwealth of
Australia, 2010). Agency consultations also rated this a high priority.
Professional public sector skills
Certain skills are not common to all public servants but must nonetheless be developed and maintained by the public service in order to operate effectively. The skills identified for focussed development will be located here within ‘professional public sector skills’ and may include public policy development and implementation, delivery management and regulatory frameworks and practices. No priorities within this group have been identified at the management foundations level for
2012-13.
Applying ethical and legal frameworks – priority skills cluster for 2012-13
It is important to skill employees in the art of ‘being a public servant’ with its associated accountabilities and responsibilities. This cluster includes awareness of self as a public servant; appropriate workplace behaviour; professionalism, ethics, values and conduct; and knowledge and appropriate application of APS governance frameworks. Making decisions and understanding accountability within these frameworks are key skills requiring development. These focuses are supported by evidence from the Commonwealth Ombudsman (2011), the Merit Protection
Commissioner (Merit Protection Commissioner, 2011), the Commonwealth Financial Accountability
22

Review (Department of Finance and Deregulation, 2012), the Australian Human Resources Institute
(AHRI) (Leadership and Core Skills Consultation, 2012), and GSA (2012).
Understanding government
Gaining an understanding of the system and its operations is fundamental to operating effectively in the APS. This includes understanding the APS within the Commonwealth context, and within the
Westminster system; an appreciation of the relationship between agencies, their portfolios and their minister; and knowledge of parliamentary processes such as Senate Estimates, committees, and the legislative process. Developing an understanding of the broader context in which individuals in the
APS operate, and the flow-on effects of actions to other agencies is a gap consistently identified by agencies and observed by the Commonwealth Ombudsman (2011).
Working within and across teams – priority skills cluster for 2012-13
Skills within the cluster of working within and across teams are important across the system. Skill gaps within this group include the fundamentals of teamwork and the ability to work with ongoing change and increasing ambiguity; however performance management was consistently identified as an area where improvements could deliver benefits across the APS, including a more engaged workforce.
The Merit Protection Commissioner, in particular, has commented on the need to develop interpersonal, performance management and self-management skills (2011) while the State of the
Service Report of 2010-11 reports the most frequent reason for seeking internal reviews of action was performance feedback or assessment (Australian Public Service Commission, 2011). Performance management includes skills in giving and receiving feedback, participating in difficult conversations, motivating staff, managing for excellence as well as tackling poor performance, and goal setting.
Professional public sector skills
Certain skills are not common to all public servants but must nonetheless be developed and maintained by the public service in order to operate effectively. The skills identified for focussed development are located here within ‘professional public sector skills’. For 2012-13, a clear focus is on improving policy development and implementation skills at the APS-EL level, while skills in regulation and delivery may feature in future strategies.

Policy development and implementation – priority for 2012-13
The development of skills in policy development and implementation are a priority for the APS. A public service must have a strong policy capability that translates on the ground into effective service delivery. Agency consultations and review findings identified opportunities to improve the connection between policy and implementation. The policy skills gap presents first and foremost in awareness of policy including the current policy debates, the policy process and an understanding of policy in the context of the government agenda. Beyond this understanding, developing the capability includes understanding policy frameworks; building the ability to engage in or access research for translation into, or support of, policy; and enhancing the ability to build value propositions and undertake cost benefit analyses.
Supporting policy development and implementation as a priority is the Blueprint (Commonwealth of
Australia, 2010), the Australian National Audit Office (ANAO) (Auditor-General, 2011) and
23

(McPhee, 2011), the Treasury (2011), the Institute of Public Administration Australia (IPAA) (2012), and GSA (2012).
Structuring work – priority skills cluster for 2012-13
The development of employees’ abilities to structure work is a key skill priority for this strategy with
Agency consultation and APS review findings consistently identified opportunities to strengthen APS project management skills to support more effective delivery of work. Structuring work presents in several different ways, from higher order project management skills (being able to apply frameworks across various projects, planning, prioritising, decision-making, resource, time and risk management), through to managing one’s workload, balancing good process with speed, and prioritising demands.
This priority is supported by the Blueprint (Commonwealth of Australia, 2010), Gateway Reviews
(Department of Finance and Deregulation, 2007-2010), the Treasury (2011), IPAA (2012), and GSA
(2012).
Analytical thinking
Analytical thinking is a foundation skill for all employees. Opportunities to develop skills in research and analysis; conceptualising ideas; filtering, synthesising and making sense of information; strategic thinking; and systems thinking have been identified. Employees need to be able to understand consequences, contextualise problems and place short term decisions and actions in medium and long term contexts. This is supported by evidence from the Blueprint (2010), IPAA (2012), and Chapter 11 of Rethinking Public Service Delivery (O'Flynn, 2012).
Compelling communication – priority skills cluster for 2012-13
The ability to communicate is a central skill across all workplaces, including the APS. This goes beyond the ability to write and speak with others (although this remains critical), to making appropriate use of an evidence base, understanding and adapting to different audiences, and using negotiation and influencing skills to communicate in compelling and persuasive ways. Written communication skills continue to require focus, including the use of appropriate styles, use of plain
English, grammar basics and structuring information appropriately to develop an argument. The need for improved communication skills is supported by the Commonwealth Ombudsman (2011), the
Treasury (2011), and IPAA (2012). The Joint Committee of Public Accounts and Audit has also expressed an interest in the use of plain English in the APS (2012).
Building relationships and engagement
Building relationships and engaging with stakeholders are foundational workplace skills. Possessing the skills and abilities to engage with a wide variety of stakeholders across multiple sectors is vital.
The APS must nurture a true citizen focus and engage stakeholders beyond a transactional approach.
While more complex skills around facilitation, consultation, negotiation and collaboration need to be developed, basic customer service issues must also be attended to. The Commonwealth Ombudsman
(2011), Gateway Reviews (Department of Finance and Deregulation, 2007-2010), the Treasury
(2011), AHRI (Leadership and Core Skills Consultation, 2012), IPAA (2011) and (2012), and the
24

Institute of Policy Studies (IPS) (2011) support improving the APS’ relationship development and stakeholder engagement skills.
Leadership development will continue to be based on the Knowing | Doing | Being frameworks, with particular focus on:

People leadership: including creating an innovative and engaged culture, facilitating learning and performance, motivating and developing people, leading diversity.

Strategic leadership : including thinking globally, scanning the environment, systems thinking, generating options and possibilities, establishing vision & outcomes, government business acumen, decision making and planning.

Leading change: including initiating and sustaining change, mobilising systems, brokering solutions and commitment to action, supporting people through change.

Political nous: scanning & understanding the power context, thinking and acting politically, building coalitions for change, risk savvy, analysing stakeholders’ issues, concerns, perspectives.

Being: representing the need to develop leadership which – among other things – is agile, resilient, authentic, open to learning and able to read, draw upon and respond to the situation and the perspectives of others.
While the APS remains committed to ‘leadership at all levels’, the leadership development focus on
SES levels is important as their cultural impact on organisations is generally greater as they systemically model the required leadership behaviours.
In 2012-13, SES leadership development and talent management will continue to be a priority, with the focus expanding to include Executive Level 2 leadership and talent development.
25

1.
What are the forces impacting the APS?
2.
How is the nature of work (and the workforce) changing as a result of these forces? What aspects are enduring?
3.
What does this mean for APS core skills and for APS leadership capability?
4.
What are the development priorities across the system for 2012-13?
5.
How do we develop these skills?
6.
How do we evaluate success?
As many agencies are already actively delivering core skills programs, a practical approach will be taken to implement these components of the strategy and leverage existing fit-for-purpose programs where they exist. This will include working with agencies to define the learning need and using a gap analysis methodology to identify existing programs that meet all (or part) of the identified learning need.
To provide maximum flexibility for agencies, the implementation approach will aim to provide a range of delivery options, including providing the learning specification to agencies for in-house tailoring and delivery, identifying quality assured providers, and where appropriate providing some centrally delivered programs (classroom-based or e-learning).
Programs in this space span knowledge and skills development, and will take the most appropriate learning format. This might include online learning, traditional classroom-based learning, networkbased learning, coaching and mentoring, or 70-20-10 programs. Where possible, programs will be designed so that elements are able to be tailored to specific segments of the public sector.
Two possible approaches are being considered to support the development of foundation skills. The first is to develop dedicated learning programs to support the development of specific foundation skills. Alternatively, the development of foundation skills may be embedded into core and management learning activities (for example a policy skills program might include elements to develop compelling communications skills in the policy context). The approach taken will be considered on a case-by-case basis.
In 2012-13, effort will be focused on continuing implementation of the priorities identified in the
2011 APS Leadership Development Strategy. Following from the 2011 strategy process, design, procurement and delivery of leadership development programs targeted at SES leaders is currently underway, including:

SES Orientation. A refreshed orientation program, which aligns with the principles in the
2011 APS Leadership Development Strategy, was launched in June 2012. This program
26

includes both management skills building (e.g. decision making within public service ethical and legal frameworks) and opportunities to enhance leadership capabilities.

Band 1, 2, 3 Leadership Programs. A cross-APS design process is currently well advanced, and refreshed programs aligned to the 2011 strategy will be progressively launched from
November 2012 through to June 2013.

Talent development programs. Currently underway for Band 2 and Band 3, talent programs are an opportunity to provide tailored leadership development to those with the potential to move into more senior roles.
In 2012-13, the Strategic Centre will also undertake a review of Executive Level leadership development and talent management to identify any required changes to the current approach, including enhancing opportunities for collaboration and sharing of practice across agencies.
It should be noted that leadership and management development will be considered in parallel, recognising that, while it is possible to identify elements that are characterised as leadership and elements that are characterised as management, effectiveness requires a combination of both.
27

1.
What are the forces impacting the APS?
2.
How is the nature of work (and the workforce) changing as a result of these forces? What aspects are enduring?
3.
What does this mean for APS core skills and for APS leadership capability?
4.
What are the development priorities across the system for 12012-13?
5.
How do we develop these skills?
6.
How do we evaluate success?
Although evaluation of learning and development is notoriously difficult, the APSC has developed a benefits management framework to track the effectiveness of its leadership, learning and development work. In relation to this strategy, evaluation will occur at two levels:

The strategy will be evaluated to determine whether it delivered the intended benefits of enhanced capability of APS leaders, enhanced core skills of the APS workforce and efficient and effective development system.

Programs will be evaluated to determine whether they deliver on the elements of the strategy that they were designed to support, whether they have resulted in sustained behavioural change or resulted in skills being transferred into the workplace and whether programs are contemporary and of high quality.
A comprehensive evaluation strategy is developed for each program or learning intervention to ensure they are closely aligned with and build the capabilities identified in this strategy . The Strategic
Centre’s evaluation approach includes tracking whether programs deliver sustained change to workplace behaviour over time.
To date, a comprehensive evaluation has been undertaken for the pilot Jawun secondment program, a mid-program evaluation has been undertaken for the pilot Band 2 Talent Development Program, and the evaluation strategy has been developed and is being implemented for the SES Orientation
Program.
28

In the context of this strategy, leadership in the APS is understood to be:
‘the practice of using influence to bring about change; establishing future direction, helping people to see the direction and work towards it, and developing people’.
7
Effective leaders have a significant positive impact on their organisations. They focus energy, inspire, bring people together in the spirit of collaboration and create an environment of honesty and accountability. Good leaders bring out the best in their people, helping them to work towards shared objectives and lifting the capability of their organisations. In essence, effective leaders help their organisations thrive.
While leadership capability plays a critical role in any organisation, this strategy recognises that leadership capability must be complemented by the technical skills and knowledge needed to operate effectively within APS systems, processes and rules.
The APS Leadership Development Strategy (2011) recognised being an effective leader in the APS was a combination of leadership and management, and developing management skills is critical to success as an APS leader.
In this strategy, management is understood to be ‘ the use of formal authority and processes to get things done’.
Management skills are required as an individual moves into a position of authority.
Management skills build on core public service skills, which are understood to be, ‘ those skills that are common to all public servants, regardless of their Agency or job family, or those skills that are essential to an effective public service institution’ . In this strategy, the core skills are primarily lower orders of management skills.
Underpinning core and management skills are foundation skills, which are ‘those skills necessary for effective functioning in any workplace’.
Term
Foundation skills
Core skills
Leadership
Definition
Foundational workplace skills which are not public sector-specific.
Public sector-specific skills and knowledge common to all public servants, regardless of agency or job family; and skills essential to the public service institution.
The practice of using influence to bring about change; establishing future direction, helping people to see the direction and work towards it, and developing people.
Leadership skills are relevant, and should be developed, at all levels.
7 Adapted by the APSC from various sources, including: Australian Public Service Commission (2011) APS Leadership
Development Strategy, Australian Public Service Commission (2011) Capability Review Model Description, National
Institute of Governance (2003) Public Service Leadership emerging issue: a report for the Australian Public Service
Commission , Rost (1991), Leadership for the 21 st Century.
29

Term
Management
Job family or agencyspecific skills
Definition
The use of formal authority and processes to get things done.
Those skills particular to a role, vocation or agency. Out of scope for this strategy.
30

Recommendations 4.5 and 7.3 of the Blueprint identified a requirement to enhance leadership development, talent management, and core skills learning and development across the APS. The
Strategic Centre was established within the APSC in July 2010 to give effect to these recommendations. The Strategic Centre’s funding model – it is funded through a Memoranda of
Understanding with other APS agencies - serves to remind the Centre of its role and purpose – to achieve outcomes for, and in partnership with, APS agencies. This agency focus has meant significant consultation and collaboration on all Strategic Centre outputs. The activities of the Strategic Centre will be subject to formal evaluation after three years.
The Strategic Centre’s objectives are:
Figure 5: Strategic Centre objectives
To support the delivery of these objectives, the Strategic Centre has seven key deliverables:
1.
Annual APS leadership and core skills development strategy
31

2.
Aligned contemporary leadership and core skills program design
3.
Quality assured providers
4.
Central procurement and brokerage of programs (where agreed value for money)
5.
Rigorous strategy and program evaluation
6.
Intensive development of high potential leaders
7.
Thought leadership, support and advice for agencies.
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