competency management in the belgian federal government

K.U.Leuven, Public Management Institute, 2010 1

COMPETENCY MANAGEMENT IN THE BELGIAN

FEDERAL GOVERNMENT

Sophie Op de Beeck, Public Management Institute, Katholieke Universiteit Leuven Annie Hondeghem, Public Management Institute, Katholieke Universiteit Leuven

With input from:

Sabine Jennes, Federal Public Service Personnel and Organisation (1) INTRODUCTION 1.1 Origin of Competency Management in the Belgian Federal Government At present, the national and regional Belgian governments are integrating competency management in their HR policy (OECD, 2007). This is the result of modernisation processes in which modern human resource management (HRM) and competency management are emphasised. Compared to other countries, however, the modernisation process took off much later in the Belgian public sector. During the 1990s, the first initiatives concerning competencies and competency management emerged. The start of competency management in the Flemish administration dates from the early 1990s, whereas it appeared only in 1999 in the Belgian federal government (Hondeghem et al., 2005). More specifically, the introduction of modern HRM and competency management in the Belgian federal government dates from the launch of the Copernicus plan in 1999. The origin of the Copernicus plan lies in the elections of June 1999, which disturbed political relations on the federal level. After 40 years of governing, the Christian-Democrats found themselves in the opposition and lost office to a Purple-Green coalition (Liberals, Socialists and Greens) (Hondeghem & Parys, 2002). In the government statement of July 7, 1999, a radical modernisation of the public sector was the highest priority (Federale regering, 1999). The modernisation was intended to increase the legitimacy of government after falling into discredit under the influence of many crises (e.g. dioxin case, Dutroux affair...) (Hondeghem & Parys, 2002). The new Minister of Civil Service and Modernisation, Luc Van den Bossche, introduced the revolutionary Copernicus plan to reform the public administration (Hondeghem & Parys, 2002). One of the four pillars of the Copernicus reform is a modern personnel policy (FOD P&O, 2002). Competency management is a fundamental element in the modernisation of the personnel policy and it was the leading thread through the Copernicus plan. That is why competencies are now essential in all HRM processes (Scheepers & Parys, 2005). According to Hondeghem, Horton and Scheepers (2005), competency management was not possible within the federal administration before the Copernican revolution, because two key factors were missing. First, strategic objectives were not used. Second, personnel were not seen as human resources committed to the organisation’s strategic objectives. With the introduction of competency management, the key objectives of the organisation on the one


hand, and the optimal use and development of the key competencies on the other, are directly linked (Hondeghem et al., 2005). Moreover, careers based on grade and seniority prevailed. As a result, competency management was not viewed as needed or necessary before the Copernicus reform (FOD P&O, 2009c). 1.2 Reasons for Introducing Competency Management in the Belgian Federal

Government As discussed above, competency management in the federal government was introduced as a crucial element of a broader reform project, the Copernicus plan. In a trajectory of organisational change, it was an attractive and multifaceted tool and promised to be a useful integrative application. Before the introduction of competency management, there were some difficulties in recruitment and retention, and in personnel planning and career advancement due to the classic career systems. Competency management, however, provides the federal administration with a more attractive image in the labour market as well as signalling a move to greater flexibility in career development. It is clear that competency management was picked up by the federal government to lever not only broad organisational change, representing a strong symbolic break with the past, but cultural change as well (Brans & Hondeghem, 2005). In general, it was the intention to introduce change in the career management system. Furthermore, it created a common language between the different organisations and covering the different HR processes (FOD P&O, 2009c). (2) HOW DOES THE BELGIAN FEDERAL GOVERNMENT MANAGE ITS COMPETENCIES? 2.1 Definitions According to the Belgian federal government, a competency is all the knowledge, skills, values and attitudes that a public servant applies to function well in his/her job; namely to realise the results that are expected of him. Competencies describe ‘how’ a function should be exercised, not ‘what’ the function entails. Competencies are also measurable and developable. Moreover, different functions require a variety of competencies, and a particular result is generally influenced by the interaction between multiple competencies (Federale overheid, 2003, p. 3). The federal public service Personnel & Organisation (FPS P&O) uses the following definitions of the key concepts (FOD P&O, 2009c):

- A competency is a coherent set of skills, attitudes and knowledge that are expressed in observable behaviour and that have predictive value for the effective performance of a function or a specific role.

- Competency management is a set of activities aimed at realising the mission of the organisation and optimising the performance of employees and hence to recruit and to develop competencies of individuals and teams.

- A competency model provides a structured overview of all the competencies that employees of an organisation are requiring (particularly to achieve the objectives).


2.2 Competency model The existing competency model of the federal government is called the ‘5+1 competency model’. This model consists of five clusters of generic competencies and a cluster of technical competencies (figure 1). Generic competencies are behavioural competencies which are needed more or less in each function and which are not directly linked to the job as such. Technical competencies are specific skills and knowledge which are needed for specific jobs (Federale overheid, 2003; Hondeghem et al., 2005). Each function requires a combination of both generic and technical competencies (Scheepers & Parys, 2005). Up until 2009, technical competencies were only explained in the job descriptions. Simultaneous to the 2009 adjustments to the 5+1 competency model, however, a general framework was developed (FOD P&O, 2009c).

Figure 1 – The 5+1 Competency Model of the Federal Government

Source: FOD P&O, 2009c

The clusters of generic competencies are: dealing with information, dealing with tasks, giving direction and leading, interpersonal relations and personal effectiveness. In each cluster (except the last one), there is a hierarchy in degree of difficulty of acquiring the competencies. The arrow in figure 2 indicates an increase in complexity and impact of competencies located closest to the title of the competency cluster (indicating ‘low’) to the competencies most remote way (indicating ‘high’). For the cluster of dealing with information e.g. the competency ‘understanding’ is easier to acquire than the competency of ‘analysing’ which is easier than ‘integrating’ etc. The reason for this hierarchy is lies in the methodological construction of the model and its internal coherence: the competencies get more complex and their impact increases. (FOD P&O, 2009c).

Personal effectiveness

Interpersonal relations

Dealing with tasks

Giving direction and

leading

Dealing with information

Technical competencies

Generic competencies


For each competency in the competency model, there exists a definition and an operationalisation in terms of effective behaviour, the so-called behavioural indicators (Federale overheid, 2003; Hondeghem et al., 2005). These behavioural indicators differ according to the relevant public servant level (A, B, C or D). The definitions and behavioural indicators are presented in the competency dictionary of the federal government. Their terminology is adapted to the culture and specificity of the federal government (Federale overheid, 2003). During the 2009 review of the competency model, the vocabulary was made less interpretable and it was made sure that there was no overlap between competencies (FOD P&O, 2009a).

Figure 2 – Competencies in the Competency Model of the Federal Government

LOW

HIGH


Dealing with tasks

Giving direction and leading



Understanding data

Execute tasks Share one’s know-how

Communicating Show respect

Assimilate data Structure the workload

Supporting Active listening Adaptability

Analyse data Problem solving

Managing employees

Team working Show reliability

Integrate data Decision-making

Motivating Service oriented action

Show commitment

Innovating Organising Coaching/ developing

Advising Managing stress

Conceptualising Managing the service

Building teams Influencing Self development

Understand the organisation

Managing the organisation

Managing teams Relation building

Achieving goals

Develop vision Guiding the organisation

Inspiring Network building

Organisation involvement

Source: FOD P&O, 2009c Originally, some competencies were not integrated in the competency framework. That was because, in addition to the competencies in the 5+1 competency model, the values of the federal government were identified. These are the so-called core competencies of the federal government, namely: service, collaboration, loyalty, result orientation and personal development. They should be accomplished by all public servants and contribute to achieving the mission and strategy of the federal government (Federale overheid, 2003; Hondeghem et al., 2005; Scheepers & Parys, 2005). These values were not part of the initial competency model. Now, these core competencies are linked to some of the competencies in the framework to ensure internal coherence (figure 2: highlighted in bold). How these values were integrated into the 5+1 competency model is represented in figure 3. In addition, behavioural indicators related to values such as diversity, sustainable development and well-being of employees have been introduced in the competency model during the recent adjustment of the model (FOD P&O, 2009a).

COMPLEXITY– IMPACT


Figure 3 – Integration of Core Competencies

Core competencies/values ~ Generic competencies Integrated core competencies

Collaboration

Team working

Team working

Service

Service oriented action

Service oriented action

Loyalty

Show reliability

Show reliability

Result orientation Show commitment +

achieving goals

Achieving goals

Personal development Self development +

adaptability

Self development

Taking the core competencies of the federal government into account, the existing competency model could also be interpreted as a matrix with the five core competencies overlapping all five competency clusters (figure 4) (OECD, 2007)1.

Figure 4 – Competency Matrix

1 This is an interpretation, but is a priori not defined as such in the original competency model of the Belgian federal government.

Collaboration

Service

Loyalty

Result orientation

Personal development

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COMPETENCY CLUSTERS


The required competencies for each function are presented in the job description. In 2008, a federal cartography (database) has been developed, containing all the job descriptions in the federal administration. Classification is different for level A than for the other levels. For level A, more than 1500 job descriptions are included. These are classified into 17 professional groups which are based on the need of specific knowledge and expertise. The functions at level B, C and D are classified and described under the form of function families, which group functions with comparable responsibilities and competencies. For level B 24 job families have been defined, for level C 26 and for level D 16. The description of each function family includes the purpose, the result areas and the competencies of a group of functions in level B, C or D (Federale overheid, 2009). Together with the new competency model, competency profiles were defined. They are based on the role (expert/support – leader – project manager), level and class of the public servant in question. The competency profile is consists of a set of competencies which is chosen out of the 5+1 competency model. Each competency comes with a set of behavioural indicators that may be different depending on the level of the function (FOD P&O, 2009a). Recently, the leadership competencies of the Federal government were identified according to the priorities and core activities of the three distinct managing levels: line management, middle management, and top management.

Figure 5 – Leadership Competencies in the Federal Government

LOW

HIGH


Dealing with tasks

Giving direction and leading



Understanding data

Execute tasks Share one’s know-how

Communicating Show respect

Assimilate data Structure the

workload Supporting Active listening Adaptability

Analyse data Problem solving

Managing employees Team working

Show reliability

Integrate data Decision-making

Motivating Service

oriented action Show

commitment Innovating

Organising Coaching/ developing

Advising Managing stress

Conceptualising Managing the

service Building teams Influencing Self

development

Understand the organisation

Managing the organisation

Managing teams

Relation building

Achieving goals

Develop vision Guiding the organisation

Inspiring Network building

Organisation involvement

Source: FOD P&O, 2009b = line management = middle management = top management

2.3 Organisation of Competency Management The organisation of competency management is determined by the new structure of the federal government. As part of the Copernicus plan, the structure of the federal administration

COMPLEXITY– IMPACT


has changed. The traditional federal ministries have been transformed into federal public services (FPSs). At the moment, there are ten vertical FPSs and four horizontal FPSs. The vertical FPSs are responsible for a specific policy domain, such as finance, internal affairs, social security and so on. The horizontal FPSs are internal oriented services, such as Information and Communication Technology and Personnel and Organisation. They play a supportive and coordinating role. Each vertical FPS has a unit which puts the horizontal domains into practice. The vertical and horizontal federal public services cooperate in a matrix structure (figure 6) (FOD P&O, 2002; Hondeghem & Parys, 2002). Next to the federal public services, the federal administration also comprises several programmatic public services, scientific institutions, institutions of public utility, and public institutions for social security (Fedweb, 2009).

Figure 6 – The New Federal Organisation Chart

Source: Hondeghem & Parys, 2002

An important aspect of this new organisation structure is the repositioning of the HRM function. Research by OECD (1996) found two trends in the reform of personnel management in the public sector: decentralisation of operational HR tasks to departments and agencies, and more responsibility in HR tasks for line managers. Both trends can be found in the reform of the federal organisation chart. The horizontal FPS Personnel and Organisation is new. Every FPS consists of a P&O unit under the guidance of an HR manager who has to develop an HR policy. There is an agreement on a new allocation of tasks between the horizontal P&O and the vertical P&O units. The horizontal department is responsible for the conception of a global P&O strategy for the whole federal government, defining and monitoring standards and guidelines for P&O activities, and managing some shared services, such as the recruitment and selection organ Selor and the training institute OFO. The decentralised P&O units are responsible for the daily operational P&O activities (Hondeghem & Parys, 2002). Regarding competency management, the new structure means that both the horizontal and the vertical P&O units are to some extent responsible for its organisation. The horizontal FPS P&O determines the direction of competency management. As a result, there is a global competency model and several derived tools. The competency-based selection tests and competency trainings are executed by Selor and OFO respectively, under the guidance of the horizontal FPS P&O. When and which training is taken by the public servant, is determined

FPS 1 FPS 2 FPS 3 FPS...

FPS General Coordination

FPS Information and Communication Technology

FPS Personnel and Organisation

FPS Budget and Management control


by the vertical P&O units and by line management. In respect of the generic guidelines, the vertical P&O units also implement competency management in line with the specificity of their organisation. 2.4 Development of competency management The introduction of competency management was coordinated by the Federal Public Service Personnel & Organisation (FPS P&O) as part of a participatory approach with the various federal organisations. Some of the methods used in the development of competency management were: thematic working groups (development of methodologies, development of the model…), working groups for the HR processes, organisational implementation through pilot projects etc. Then, competency management was introduced in the organisations and to the employees by different platforms in line with the different target groups (HR staff, line management, public servants of level A, B, C or D…) through communications, spreading information, training and so on (FOD P&O, 2009c). The FPS P&O, however, wasn’t the only party involved in the development and implementation of competency management. As stated above, the FPS P&O and more specifically, the Directorate-general for the Development of the Organisation and Personnel was responsible for the coordination of the introduction of competency management. They consulted multiple private partners for external expertise, but also worked with internal partners such as Selor (recruitment and selection organ), OFO (training institute) and the Directorate-general for Communication. Finally, the different federal organisations made and active contribution according to their needs (FOD P&O, 2009c). 2.5 Competency Management as a Basis for Various HR Processes As discussed above, one of the four pillars of the federal government’s Copernicus plan was to ‘modernise HRM’. Up until the reform, the federal government engaged in very little personnel planning and the approach to training and development was extremely fragmented. Recruitment and staff selection were both centralised and rigid, and remuneration was based solely on grade and seniority. Copernicus transformed a number of HR processes. Part of the horizontal integration of those processes is supported by competency management (Brans & Hondeghem, 2005). The 5+1 competency model of the federal government has already been used for several purposes. The main purpose was to define job profiles for several function families but the idea of competencies has also been integrated into several HR-processes (Hondeghem et al., 2005). At present, the evaluation and development of competencies has such a significant place in the HRM cycle, so that all processes are based on competency management (figure 7) (Scheepers & Parys, 2005).


Figure 7 – Competency Management as the Centre of HRM Processes

Source: Scheepers & Parys, 2005

2.5.1 Recruitment and Selection The new processes of recruitment and selection should ensure that the necessary human potential is available and the right person is in the right job at the right time. Although qualifications are still a condition for admission to specific vacancies, competencies are generally the basis for recruitment and selection. Therefore, the new recruitment procedures are supported by the competency model and competency profiles (Brans & Hondeghem, 2005; Hondeghem et al., 2005). One of the first reforms of the Copernicus plan was the transformation of the Central Recruitment Office (Vast Wervingssecretariaat) into what is now called Selor (Selection and Orientation Office) (Brans & Hondeghem, 2005). In 2007, 70% of selections organised by Selor (Selection and Orientation Office) required a certain experience and a level of competencies (OECD, 2007). Recruitment and selection are based on both diplomas and tests. Selor’s recruitment strategy has moved from mega-generalist knowledge exams to the recruitment of specific profiles through competency-based recruitment (OECD, 2007). Consequently, tests are focusing on the competencies of the candidate (Hondeghem & Parys, 2002). Another new element in the selection procedure is the use of assessment centres, which are well-known instruments for competency monitoring (Hondeghem et al., 2005). Recently, there has been an attempt to replace the educational qualification requirements (diplomas) by competency requirements. This means that people can also be appointed to specific functions if they can demonstrate the necessary competencies (elsewhere acquired competencies) even if they do not have the required diploma. This procedure is however resisted in Belgium as diplomas are regarded as more objective and a barrier against nepotism. So far, this competency philosophy can only be applied in selection procedures in case of scarcity of specific qualifications on the labour market (e.g. IT professionals) and it is hardly implemented (Hondeghem, 2009).

Evaluation

Development

Remuneration Recruitment & Selection COMPETENCIES


The modernisation of recruitment and selection procedures started with a focus on the top civil servants. An important innovation in the deployment rules since the Copernicus reform is the introduction of a mandate system for top civil servants, which means a new career system, replacing definite by temporary appointments for six years (with the possibility of renewal). This new system fits in the trend to enhance responsibility and accountability of top civil servants. The minister responsible for the civil service considered the mandate system as a key leverage of the modernisation agenda as it would enhance the management capacity of the federal administration which he considered insufficient. The initial plan was that about 400 positions in the federal administration should be declared vacant. This was part of a strategy to replace the current top civil servants (Hondeghem, 2009). In order to select the new top managers, competency profiles were defined. According to the initial Royal Decree (May 2, 2001), the selection procedure consisted of two parts: an assessment centre to test generic leadership competencies, and an interview with an expert jury to test function specific competencies. In a more recent Royal Decree (June 15, 2004), the assessment centre has been excluded from the selection procedure. Now, a mixture of generic and specific competencies is tested in an interview with an expert jury, which is responsible for the whole procedure (Pelgrims, 2005).

2.5.2 Personal and Organisational Development Performance assessment is to be seen in combination with competency management and competency assessment. It focuses on both performance objectives to be met and on development goals to be reached. At present, there is a consensus to strive for a performance evaluation system, which should be clear-cut, objective and transparent (agreed in Collective Bargaining 2009-2010, item 16) (FOD P&O, 2009b). The Royal Decree of August 2, 2002 concerning an evaluation cycle in the federal government, led to the introduction of the ‘development circles’. These development circles are to help in achieving the organisation goals and to develop the competencies of the public servants. An individual training plan is a crucial element in the development circles and are made for each public servant. In other words, the focus lies on developing competencies in order to achieve personal and organisational objectives, rather than on evaluating or sanctioning public servants (FOD P&O, 2009a; Hondeghem et al., 2005; Scheepers & Parys, 2005). The development circle consists of four phases: function discussion, planning discussion, performance review, and assessment interview. The last phase is followed by a planning discussion, which is the beginning of a new development circle (Scheepers & Parys, 2005). In theory, these development circles should be based on the defined competency profiles. In practice, however, some organisations use the competency profiles, while others don’t (FOD P&O, 2009a). Knowledge on the development circles is considerable and it has contributed to a better understanding between supervisor and employee in enhancing knowledge on what is expected of each actor. Nevertheless, it was observed that more attention should now be given to improve the processes and visualise the results (FOD P&O, 2009b). Furthermore, training and development are important aspects of competency management. It is a means of increasing the competencies and employability of public servants, which enhances the flexibility and the quality of the public service (Hondeghem & Parys, 2002).


Competency development and competency assessment are key both in training issues as in career development. Development in all its’ forms is by excellence the tool to develop the competencies of the civil servant, as individual, but also as part of the organisation or the level on which he or she is operational. Competency development is more than training alone. In the employee life cycle of every collaborator – the basis for the development process – development starts from the inflow, continues through the present flow and even on occasion of the outflow. Tools like 360° assessment, self assessment, personal development plan, performance assessment, competency and behavioural indicators, function interviews, exit interviews, various training possibilities and specific training programmes are integrated and their use promoted (FOD P&O, 2009b). The training route that each public servant starts at the beginning of his/her career and that will continue to the end, begins with the initial training during the trial period. Directly after that, public servants can enrol in certified training (cf. infra). Besides that, there are also open professional trainings that meet the individual competency gaps arising from the development circles (individual training plans) or that are necessary for progress in the career (Dupont, 2006).

Certified Training Schemes for Managers The introduction of tailor made training programmes for managing people and employees of all levels is a major issue. In October 2009, the PUMP-programme (Public Management Programme), a 2 year intensive, interactive and experience-oriented training path for promising high potentials has come to an end. The PUMP ran for 8 years and was organised by 2 universities, acting as tenders for the FPS P&O. Induced by the Copernicus reform, it first started in 2001. Its goal: to contribute to the re-engineering of the federal administration into a modern, performing and quality driven organisation by training civil servants to acquire the generic and specific knowledge, skills, attitudes and aptitudes to sustain this modernisation process. It delivered a PUMP-certificate, equivalent to certified training certificate. Whilst the PUMP is not continued as such, its objectives, its topics, its training methods will be integrated in a broader development trajectory giving the possibility to the FPS P&O to offer on a yearly basis development possibilities to a large group of managing people, not only seniors but also middle and line managers and to introduce adapted training programmes (agreed in Collective Bargaining 2009-2010). The new project will take into account 3 target groups:

- the line management (operational management, junior managers and middle management)

- the middle management (tactical management, giving lead to other executives) - the top management (strategic management, senior executives)

For each target group, there will be an adapted and flexible modular trajectory, which will be solidly integrated within the participants’ organisations. Those new trajectories are result oriented and focus on developing leadership capacities and managing competencies (FOD P&O, 2009b). The “Vitruvius” programme on leadership development is the first to be launched. It is mainly designed for the middle management but has also been presented to senior


management. Launched in October 2008, it is now in its second series covering the period 2009-2010. Its goal is to develop a new integrated leadership style within the federal administration. The programme includes five content modules and covers three cycles. Each cycle covers 23 days of training over a period of 8 months. The philosophy is that learning is an individual and an interactive process in which the trainee is the object, the bearer and co-designer of the training process and is being monitored by a system of peer coaching. This training is part of the personal development plan of each participant and focuses on the specific training needs of the individual participant and his or her organisation enhancing thus the change management capacity within and making it sustainable. The clients of this flexible training programme are small groups of a selected public of managing directors and line managers – even if they are debutants – of federal public services and their employees involved in leadership development. This centrally organised training is complementary to local initiatives on leadership development (Fedweb, 2009; FOD P&O, 2009b).

Standard Training Schemes At present, OFO, the training institute for the federal administration provides standard trainings for some 2000 till 2500 civil servants comprising training on personal effectiveness and management techniques. The demand is essentially individual driven focussing on specific operational and tactical problems encountered in their own way of providing service, or in their team. The outcome, if any, is therefore locally and not part of an integrated process (FOD P&O, 2009b).

Certified Training Schemes According to the OECD (2007), certified training has become one of the main competency management tools in the federal government. Every six or eight years, public servants from levels A through D can voluntary take certified training organised by OFO, the training institute of the federal government (OECD, 2007). Its goal: to update and to develop the qualifications and competencies of all civil servants. They are the sole key to career development. Public servants are stimulated to participate in these trainings by a ‘competency allowance’, which they receive when training objectives are met. The competency allowance is a bonus to the normal remuneration (Dupont, 2006; Hondeghem et al., 2005; Scheepers & Parys, 2005). In 2009 the range of certified training programmes has been extended and new ground rules and quality requirements have been fixed (Dispositions of 29th of April 2009, Official Journal of 4th of May 2009) enhancing the transparency of the system. Those certified trainings are delivered according to the position of the civil servant and the speciality he or she exercises. Those trainings aim to develop generic competencies common to most of the functions and are sanctioned by a test testing the degree of compliance to the learning objectives. Some training is open to participants of different levels. In that case, there is a difference in the degree of difficulty of the test. When successful – you have to obtain 60% – according to the level, a special competency allowance is given or access is granted to a higher salary scale (FOD P&O, 2009b).


Special Certified Training Schemes: Elsewhere Acquired Competencies Scheme Elsewhere acquired competences (EAC, this is the literal translation of the concept ‘elders verworven competenties’ used in the Belgian labour market) are certified by either possessing a diploma and/or certificate, delivered by schools and/or universities or certified training courses or organisations. Normally the civil servant has such diplomas and/or certificates on or before entry in the civil service as a prerequisite for entering public service. Sometimes people are willing, fit and through experience able to do certain functions, especially in bottleneck jobs, but for one reason or another, do not possess the required certified diplomas or certificates. If that is the case, the minister for civil service affairs will be able to decide to overrule the obligation of having the diploma or certificate necessary to exercise or even to apply for those specific jobs. Selor, the federal selection and recruitment agency, will then organise tests to assess the mastering of the required competencies acquired outside the system. The certificate will be valid for 5 years (agreed in Collective Bargaining 2009-2010) (FOD P&O, 2009b).

2.5.3 Remuneration Policy Not only the new appraisal system is focused on the development of competencies, but so is the new remuneration policy. Before Copernicus, the salary of public servants was determined by seniority, grade and knowledge exams that often had little to do with someone’s actual job (Hondeghem & Parys, 2002; Hondeghem et al., 2005). Now, however, remuneration is linked to competency assessment and development. A first innovation in the remuneration system was the introduction of a job weighing exercise to determine the pay of the new top managers. This job evaluation was partly based on assessing competencies and helped to legitimise a substantial pay rise in order to compete with the private sector. The system of job evaluation, however, was not fully applied as the highest positions (the so-called ‘N’-level) still have the same salary, while the weight of their jobs is not the same. This standardisation is the result of the threat that the same weighting might be applied to the portfolios of ministers, which the ministers could not accept (Brans & Hondeghem, 2005; Hondeghem & Parys, 2002). For the other top management functions (N-1 and N-2), the job evaluation system was applied more consistently (Hondeghem, 2009). Performance related pay remains a controversial concept in the remuneration policy of both public servants as the new top managers. Traditions and principles of equality in the federal government still strongly resist variable pay (Hondeghem & Parys, 2002). One of the most important changes to the remuneration system is the introduction of competency-based pay. As stated above, the new appraisal system offers public servants from levels A to D the possibility to earn an extra ‘competency allowance’ on top of their normal pay. This additional allowance is linked to a examination which is taken at the end of the certified training. Once public servants succeed in this competency examination, they receive the competency allowance each year for six to eight years depending on the public servant’s specific situation. This connects remuneration to public servants’ ability and willingness to develop their competencies in order to meet their personal as well as the organisational objectives (Hondeghem & Parys, 2002; Hondeghem et al., 2005).


From the beginning it was decided that remuneration should be linked to competency development. However, Hondeghem et al. (2005) question whether it was the right decision to install this link so soon, given the fact that competency management has only recently been introduced in the public sector. Both OECD (2007) and Scheepers and Parys (2005) notice that competency management in the case of the federal government might undermine the implementation of a performance-based approach of HRM. That is to say, the appraisal system is disconnected from the remuneration system. At this time, remuneration is linked to the will of public servants to develop their competencies instead of to the way their competencies are being translated into (the quality of) performance. As a result, staff and management attention may become disproportionately focused on competencies rather than on results and individual performance (OECD, 2007; Scheepers & Parys, 2005). 2.6 Horizontal and vertical integration Competency management can be regarded as a central anchor of the new HR policy of the federal government. There is a vertical integration of competency management with the vision and strategy of the organisation. The FPS P&O confirms that political objectives are translated into strategic goals for the organisation. Each of these strategic goals is then subdivided into individual and collective operational objectives. Furthermore, there is also horizontal integration as competencies are linking different HR processes. One of the added values of competency management, according to the FPS P&O, is that it facilitates consistency between the HR processes through a common language. The initial goal of introducing competency management in the federal government is a holistic approach. And although several HR processes make use of competencies, some processes use them in more depth (e.g. selection) than others (FOD P&O, 2009c). According to OECD (2007), a holistic approach to competency management can already be observed, as the federal government allows linkages between policy plans, performance management and competencies. Consequently, OECD considers competency management in the federal government as fairly advanced in an international comparison. 2.7 Benefits, Difficulties and Key Success Factors Some of the benefits of competency management, mentioned by the FPS P&O are: common language, consistency between processes, quality of selections, continuity in monitoring the careers of public servants (FOD P&O, 2009c). Nevertheless, the transition towards competency management wasn’t effortless. The scale of the federal government (83.000 public servants) makes a generic implementation within many different organisations complex. The FPS P&O experienced several more difficulties: finding the balance between a common language and respecting the specificity of the different federal organisations; finding the balance between a sound methodology and ease of use; ensuring a consistent implementation in the different organisations (FOD P&O, 2009c). Moreover, Hondeghem and Parys (2002) found several institutional factors that hinder the integration of competency management. First, there is a strong legalistic tradition in the Belgian public sector. Personnel management is defined in terms of rights and duties of personnel, which are anchored in


detailed regulations and procedures. This impedes flexible personnel management primarily oriented towards the organisation’s objectives, which is a condition for competency management. The FPS P&O, however, sees this legalistic tradition as a possible leverage for competency management, once it is introduced. Although, it may take up a lot of time, it creates a legal framework in which competency management can be applied (FOD P&O, 2009a). Second, the HR policy remains very centralised in the horizontal federal public service. The horizontal FPS implements the strategy and supports the vertical organisations. The organisations themselves have (limited) input on developing their HR strategies. During the 2009 review of the competency model, the federal government also chose to work in participation with the vertical organisations, since their experience was of crucial importance (FOD P&O, 2009a). Important instruments of steering, such as recruitment and selection, are the responsibility of the centrally managed institution Selor. The responsibility of line managers remains limited, while their role is essential in competency management. They do, however, play a crucial role in the development circles. Third, there is a tradition of a closed career system and security of tenure. This is contrary to competency management, which aims to put the right person in the right place according to their competencies, in order to maximise their added value to the organisation. Recently, however, internal mobility is more and more encouraged, particularly given the age pyramid and the wishes of new generations. With a new generation of public servants coming in, the federal government stimulates the increasing need for internal mobility (FOD P&O, 2009a). Fourth, there is a hindrance caused by public sector values such as objectivity and equality, meaning that everyone should have equal opportunities an should be treated in a fair way. These values are difficult to reconcile with different treatment of individuals as a result of differences in performance or competencies. Differentiation among individuals according to added value is, however, an essential characteristic of competency management. On the contrary, according to the FPS P&O (2009a), public sector values and competency management do not have to be completely incompatible. Finally, there is a difficulty regarding the cultural context of Belgium. The vision and mentality concerning the civil service differs between the North (Flanders) and the South (Wallonia) of Belgium. Flanders supports public management reforms quite easily, while Wallonia still strongly adheres to traditional conceptions of public service. In the federal government, both cultures co-exist, which might make change and thus the introduction of competency management more difficult (Hondeghem & Parys, 2002). In practice, the mixture of these two cultures doesn’t seem to cause any additional difficulties in their competency management. On the contrary, it is often considered as a richness (FOD P&O, 2009a). According to the FPS P&O, there are several success factors when introducing competency management (FOD P&O, 2009c):

- Sponsorship - Participatory approach - A methodologically well built competency model - Communication plan - Training - Follow-up of implementation - Solid coordination to ensure consistency - Integration of the different HR processes - Ease of use for the different target groups (management, public servants, HR

professionals...)


- Adaptability according to the priorities of the different organisations - …

(3) REVIEW OF THE STATE OF THE ART PRACTICES For a quality-oriented government, competent and motivated public servants are crucial. In the current labour market, there’s a battle both to attract talented people and to retain them. Therefore, the government will continue to have to position itself as an attractive employer. This doesn’t ask for major reforms, but for a broader development of HR processes and for strengthening certain accents in HR. There is an impulse for developing leadership, attracting and retaining talent, competency development and developing a transparent framework of attractive careers (Vervotte, 2008a). Regarding competency management, the FPS P&O mentions several new practices and future plans: a (more) holistic approach, increasing use of competency profiles, 360 degree feedback, optimisation of the integration between different HR processes, a potential evolution towards talent management, a further development of workforce planning etc. (FOD P&O, 2009c). In what follows, we give a review of the latest practices relating to competency management in the Belgian federal government. The current mandate system for top civil servants has undergone a thorough analysis from which a number of areas for improvement have been identified. For example, the job description, competency and weighing model should be more consistent with the models used for levels A, B, C and D. Seven thematic working groups have been established to focus on topics such as the underlying competency model, the optimisation of the selection process and the development of top civil servants. These working groups were given the task to work out practical solutions to these issues and to prepare them for implementation within an integrated whole. In the second half of 2009 the first results should be ready for consideration (Vervotte, 2008b). During the last few years, the federal government has also been engaged in the area of ‘elsewhere acquired competencies’ (EAC). The EAC logic means that candidates who don’t have the appropriate diploma, but do have the necessary competencies (acquired through experience, training…), get the opportunity to participate in the selection procedures. This can be done using a so-called ‘boarding pass’, which can be obtained by succeeding in a test organised by Selor and is a ticket to the actual selection. The test will be organised at fixed intervals and will measure the competencies (both generic and specific) that correspond with the required qualification level. In 2008, a pilot project was launched as part of a transition process from level B to C regarding the grade of ICT expert. The lessons learned from this pilot project, should allow to apply the EAC logic in a broader field from 2009. The initial thought is to apply it in recruitment and selection for IT professionals and other scarce jobs. Of course, all of this must happen within a clear legal framework (Vervotte, 2008b). One of the focuses in the public servant policy for 2009 is to optimise the recruitment and selection process. In today’s labour market it is crucial to have processes that allow for adequate and quality candidates to recruit and select with a minimum lead time. Some of the main objectives to achieve that are: the recognition of elsewhere acquired competencies and the transition from a CV database to an evolving database of candidates with certified competencies (Vervotte, 2008b).


In a constantly evolving labour market, the federal government as an employer must ensure that its public servants are and remain employable. The quality of their competencies determine the extent to which the objectives can be achieved. That is why the investment in people and competencies should be structurally supported by investing in training and development. The government as employer has a major responsibility, but the public servants have to be encouraged to take control of the development of their own competencies (Vervotte, 2008a). In the policy note for 2008, the investment in the development of middle management got priority. Too often, a less supportive middle management is the missing link for a real learning and development culture in the organisation. It is essential that middle managers have access to specific training, coaching and exchange channels, so that they can develop their competencies and will be prepared to take on leadership in the future. In a wider perspective, the manner of recruiting the middle management should be reflected on. The competencies regarding dealing with and motivating public servants must certainly be as important as the technical background of candidates (Vervotte, 2008a). In addition, the impact of the certified trainings should be reconsidered. Currently, they are the key component in the career of public servants. Validly, competency development gets a central place in the career, but the question is whether the system in its present form is sustainable in the long term. During the first half of 2009, a thorough analysis was done so that the actions to amend the system of certified training can start somewhere in the second half of 2009 (Vervotte, 2008b). The policy note for 2008 also mentions the development of a framework for career guidance. Career guidance is needed to help public servants to grasp one’s own competencies and their potential in the context of performing the current function, the desired function, redirection… It allows to develop competencies focused on the functional needs that exist within the organisation(s). As a result, internal mobility and retention of competencies within the federal government are promoted (Vervotte, 2008a). From an organisational point of view, it is also important to know which competencies are available in the organisation and in the federal government. Through instruments such as competency databases, connected to an e-HR application which is currently being developed, it becomes possible to promote an alignment between the organisational needs and the competencies of public servants. In the end, it is about a maximum response to the labour market that exists within the federal government (Vervotte, 2008a). Finally, the focus is placed on mobility as the instrument that gives public servants the opportunity to make use of their competencies and to enrich their professional experience. Moreover, it enables the different organisations to discover new talent. For that purpose, Selor developed a new instrument, the so-called ‘competency balance’, in 2006. Public servants can use this ‘competency balance’ to better understand their strengths and weaknesses and to find out which competencies they should acquire to meet the requirements of the function they wish to pursue. The ‘competency balance’ should result in an adjusted training programme, in cooperation with the training institute OFO and training institutes of the individual organisations (Dupont, 2005; 2006). The federal government will also look into how a temporary exchange of public servants between departments of the federal government, other governments, internationally, public enterprises and even the private sector can be organised. In this way, it is possible to promote the development of competencies through practical experiences (Vervotte, 2008a).


The ageing issue is an important challenge. The endeavour is – next to keep staff over 50 motivated and involved – to ensure that their level of competency remains high and up to date, and to safe keep their critical knowledge in order to ensure the continuity of service and policy advice. Therefore, since 2006, the FPS P&O gives support to the federal administrations in preparing and using tools for the transfer of knowledge between seniors and juniors. Several campaigns raising awareness were launched and methodological tools are available. Furthermore, for those civil servants at the eve of their retirement, the federal training institute OFO proposes a number of training possibilities to help them in passing on their knowledge (FOD P&O, 2009b). In 2008, the federal administration (FPS P&O) decided to thoroughly analyse the existing 5+1 competency model in order to adjust it to current requirements. In 2009, the 5+1 competency model was actually reviewed, based on the needs in the different federal organisations and on a five year experience with the existing model. The results of the review are currently being finalised after which they will be communicated to the vertical P&O units. In addition to the review of the existing competency model, the FPS P&O developed a method to list the technical competencies of the federal government. Up until then, there was no set structure or enumeration regarding these technical competencies. It was the responsibility of the decentralised federal organisations. In sum, the philosophy behind this entire review process was not to change everything but to ameliorate the existing tools (FOD P&O, 2009a; 2009c). A schematic overview of the entire review process is given in figure 8.


Figure 8 – Review Process of the 5+1 Competency Model

Source: FOD P&O, 2009b

(4) ANALYSIS OF THE FUTURE COMPETENCIES 4.1 Future competencies Competencies are the core of the HR modernisation process. The ongoing changes that face the federal government call for an adjustment of the competencies to the requirements of new situations (Dupont, 2006). The FPS P&O identifies competencies such as flexibility, service orientation and self development as being crucial in adapting to new government strategies, representing the society, and serving citizens, organisations and institutions. The focus also lies on the five core competencies: service, collaboration, loyalty, result orientation and personal development (FOD P&O, 2009c). The most recent policy note of the federal government regarding public servants, titled Together towards quality and quality oriented public services (Vervotte, 2008b), is based on four major pillars:

- Customer oriented public services


- Responsible, effective and results oriented public services - An attractive, dynamic and innovative employer - An integrated government

From these pillars, we can identify several competencies which government will need in the future. Public servants will need to be quality oriented, customer oriented, responsible, effective and results oriented. Continuing on these four pillars, a qualitative and successful government requires a well thought management which leads based on results. The top management of the federal organisations should also show a vision. Additionally, to ensure a result oriented performance and culture, certain preconditions must be met. For example, the achievement of objectives should be measurable and assessable at every organisational level in a transparent and integrated manner. This is the only way a culture of ‘ownership’ and loyalty can be created. Next to achieving the predetermined results, a quality oriented government is characterised by the continuing reflection of the offered solutions. In this context, the innovative and creative capacity should be encouraged (Vervotte, 2008b). The changing labour market is one of the biggest challenges of the moment. Both private and public sector organisations have experienced difficulties in finding qualified personnel. Moreover, up to 40% of federal public servants will retire in the next 10 years. Therefore, it is important to develop a proactive policy to deal with the outflow of personnel caused by retirement (Vervotte, 2008b). Some of the challenges ahead are: to ensure that the knowledge and expertise that is present in the government today, is still available tomorrow; to prepare and train the leaders of tomorrow; to promote government on the labour market as an attractive employer; to optimise the selection procedures; to increase internal mobility; to develop the competencies of public servants through continuous training; and to modernise the public servant statute. These challenges do not only fit within the issues of ageing, but also in other policy areas such as being an innovative and attractive employer by creating a dynamic and motivating HR policy (Vervotte, 2008b). The interpersonal differences regarding ethnicity, gender, age, health, etc. are a source of wealth for society, the labour market and the administration. That is why the federal government aims to maximise the use of all competencies of public servants so that performance and results can be improved. To integrate all those competencies present in society, the government is embedding a diversity policy in the overall HR policy. Furthermore, in the selection of interested immigrants or people from ethnic minorities, competencies such as ethno communication and networking are considered to be essential (Vervotte, 2008a; 2008b). Finally, knowledge management is an essential element in the development of individual competencies to the extent it deals with knowledge sharing and other processes by which the organisation can maintain existing knowledge and develop new knowledge (Dupont, 2005). Knowledge sharing is one of the methods to protect and develop the organisational knowhow, which is now present in the federal government (Dupont, 2006).


4.2 Planning for Future Competencies Workforce planning is the translation of the government’s objectives to HR processes and thus forms an important part of strategic HRM. In 2003, a new instrument, the so-called personnel plan, was introduced. This personnel plan is a new dynamic instrument of workforce planning which contains a long term dimension based on the strategic vision of the organisation (Dupont, 2005). This personnel plan should contain the following elements:

- A table with the initial and the desired situation of public servants in full-time equivalents for the current budgetary year

- A table with actions to realise the desired situation - A personnel inventory

In the federal government, workforce planning can be found at two levels: both the horizontal FPS P&O and the vertical P&O units have a responsibility in this area. The horizontal FPS P&O has to develop a vision for the workforce planning in the federal government and translate that vision into a global strategy. Nevertheless, it is the responsibility of each vertical P&O unit to prepare, shape and implement the plan regarding the input, throughput and output of personnel in the short and the long term (Scheepers & Parys, 2005). According to the FPS P&O, workforce planning and the so-called personnel plan are applied in several organisations. The actual goal is to also plan for the necessary competencies. However, this is a domain which is just recently emerging (FOD P&O, 2009c) Based on this information, Belgium’s workforce planning can be placed on Lavelle’s (2007) evolutionary path of workforce planning. From the personnel plan we can infer that both basic gap analysis and workforce analytics are carried out. Modelling and forecasting (actions for the desired situation) is present to some degree. We couldn’t find any evidence for a segmentation strategy. Although the federal government is planning for competencies, there is no difference between mission-critical and non-mission-critical competencies. (5) EVALUATION OF COMPETENCY MANAGEMENT IN THE FEDERAL GOVERNMENT Competency thinking was the leading thread running through the Copernicus plan. It formed an integrating concept for the new HRM policy as a whole as well as for the separate HR processes. Hondeghem, Horton and Scheepers’ (2005) evaluation of competency management in the Belgian federal government is mixed. They find it is positive that there is a move towards competency management, because it forms a leverage for the modernisation of HRM. The introduction of competency management, however, has happened too quickly. As a result, there is an unbalance between competency management and performance management: people are rewarded because they invest in development, not because they obtained good results (Hondeghem et al., 2005; Scheepers & Parys, 2005). That is what Scheepers and Parys (2005) describe as the separation of performance and reward (figure 9).


Figure 9 – HR cycle in Which Remuneration is Linked to Development

Source: Scheepers & Parys, 2005

The career of a federal public servant should reflect its development in the public service. That is why competency development is and remains the central idea behind the public career. The concept op certified training takes a central place in that career. The efforts made in the field of competency development shouldn’t, however, be reduced to certified training (Dupont, 2005). In the end, competencies should be the driver behind the entire career of the public servants. The importance of the diploma must be taken into perspective with respect to the elsewhere acquired competencies (Vervotte, 2008a). Although all HR processes start from competency management, Hondeghem et al. found in 2005 that there was a lack of integration. The competency model was not clearly linked to the appraisal system, neither to the remuneration system. Now, priority is given specifically to the integration of competency management. Also, the current objective is to increase the link between the appraisal system and competency management through the recently developed competency profiles and by setting development goals (FOD P&O, 2009a). In Belgium, there is also a risk of bureaucratisation. As stated above, there is a strong legalistic tradition, which makes the system very complex. Consequently, the system risks to bypass its initial goal, which was a better use of human resources and competencies (Hondeghem et al., 2005). In conclusion, according to Brans and Hondeghem (2005), the competency model of the federal government follows international trends, with a focus on behavioural competencies. Technical competencies are, however, in advance. The FPS P&O considers the added value of competency management as high as it provides a common language and an integration of HR processes. The level of maturity, however, varies from one federal organisation to the other. Nevertheless, there will be a future for competency management in the Belgian federal government (FOD P&O, 2009c).

Selection Performance Appraisal

Development

Remuneration


References Brans, M. & Hondeghem, A. (2005) “Competency Frameworks in the Belgian Governments:

Causes, Construction and Contents”, Public Administration, 83 (4), pp. 823-837. Dupont, C. (2005) Algemene beleidsnota van de minister van Ambtenarenzaken,

Maatschappelijke Integratie, Grootstedenbeleid en Gelijke Kansen belast met de Interculturaliteit – Deel Ambtenarenzaken 2005-2006, Belgische Kamer van Volksvertegenwoordigers, 14 november.

Dupont, C. (2006) Algemene beleidsnota van de minister van Ambtenarenzaken, Maatschappelijke Integratie, Grootstedenbeleid en Gelijke Kansen belast met de Interculturaliteit – Deel Ambtenarenzaken 2006-2007, Belgische Kamer van Volksvertegenwoordigers, 31 oktober.

Federale overheid (2003) Competentiewoordenboek. Federale overheid (2009) Federale Cartografie – Federale functies en functiefamilies [online]

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FOD P&O (2002) Copernicus: Midden in de toekomst – De hervorming van de Belgische federale overheid (brochure), Federale Overheidsdienst Personeel en Organisatie.

FOD P&O (2009a) Interview October 27, 2009, Federale Overheidsdienst Personeel en Organisatie, Brussel.

FOD P&O (2009b) Major HRM Developments in Belgium (federal administration), Handout at the Annual Meeting of the Public Employment and Management Working Party, OECD Conference Centre, Paris, 15-16 December 2009.

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Hondeghem, A. (2009) The National Civil Service in Belgium. Update of: Hondeghem, A. (2000) “The National Civil Service in Belgium”, in Bekke, H.A.G.M. & Van der Meer F.M (Eds.) (2000) Civil service systems in Western Europe, Edward Elgar, UK: Cheltenham, pp. 120-147.

Hondeghem, A. & Parys, M. (2002) “Competency Management in Belgium: The Flemish and Federal Governments on the Move”, in Horton, S., Hondeghem, A. & Farnham, D. (Eds.) (2002) Competency Management in the Public Sector: European Variations on a Theme, International Institute of Administrative Science monographs, 19, IOS, Amsterdam, pp. 49-64.

Hondeghem, A., Horton, S. & Scheepers, S. (2005) “Modèles de gestion des competences en Europe”, Revue française d’administration publique, 16, pp. 561-576.

Horton, S., Hondeghem, A. & Farnham, D. (Eds.) (2002) Competency Management in the Public Sector: European Variations on a Theme, International Institute of Administrative Science monographs, 19, IOS, Amsterdam.

Lavelle, J. (2007) “On Workforce Architecture, Employment Relationships and Lifecycles: Expanding the Purview of Workforce Planning and Management”, Public Personnel Management, 36 (4), pp. 371-385.

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Pelgrims, C. (2005) “Op zoek naar topmanagers voor de federale administratie”, in Hondeghem, A. & Depré, R. (Red.) (2005) De Copernicushervorming in perspectief: veranderingsmanagement in de federale overheid, Vanden Broele, Brugge.

Scheepers, S. & Parys, M. (2005) “De moeizame weg van personeelsadministratie naar modern HRM en competentiemanagement”, in Hondeghem, A. & Depré, R. (Red.) (2005) De Copernicushervorming in perspectief: veranderingsmanagement in de federale overheid, Vanden Broele, Brugge.

Vervotte, I. (2008a) Algemene beleidsnota van de minister van Ambtenarenzaken en Overheidsbedrijven – Deel Ambtenarenzaken 2007-2008, Belgische Kamer van Volksvertegenwoordigers, 21 april.

Vervotte, I. (2008b) Algemene beleidsnota van de minister van Ambtenarenzaken en Overheidsbedrijven – Deel Ambtenarenzaken 2008-2009, Belgische Kamer van Volksvertegenwoordigers, 5 november.

Remarks Report prepared by Sophie Op de Beeck and Annie Hondeghem at the Public Management Institute, K.U.Leuven. With input from Sabine Jennes, an expert from the Federal Public Service of Personnel & Organisation.

competency management in the belgian federal government

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