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