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EGPA – European Group of Public Administration
Studygroup on Public Personnel Policies (SG3)
“Managing Diversities”
EGPA conference 2012 in Bergen, Norway
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Talent Management in the Flemish Public Sector
Positioning the Talent Management approach of the Flemish Government
Dorien Buttiens1 & Prof. Dr. Annie Hondeghem
Public Management Institute, University of Leuven, Belgium
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1. Introduction
In the last decennium, Talent Management has been put forward as a solution for various
challenges in society like for example the demographic evolutions on the labour market. At the
same time Talent Management runs the risk of being depicted as a passing hype since a
common definition as well as a scope and a conceptual framework are still non‐existing.
Furthermore, most research on Talent Management can be situated in the private sector. In
doing research on Talent management in the public sector, attention must be paid to the
specific context in which governments develop their HR policy (Thunissen, Boselie & Fruytier,
2011, p. 11).
In this paper, the first stage of the research project on ‘Talent management in the Flemish
Government’ is presented. We first describe the context in which a Talent Management strategy
became a top priority for HR‐managers in general and for the Flemish Government in particular.
In what follows, a short theoretical background is given in which Talent Management is situated
in the field of strategic HRM. We chose to highlight the theories and models that can be coupled
1 This text is based on research conducted within the frame of the Policy Research Centre on Governmental Organization ‐ Decisive Governance (SBOV III ‐ 2012‐2015), funded by the Flemish government. The views expressed herein are those of the author(s) and not those of the Flemish government.
to the approaches of Talent management that are presented in the following of the paper.
Furthermore, the characteristics of the public sector, with respect to Talent Management are
specified. The third part of the paper sets out two main approaches of Talent management:
exclusive and inclusive Talent Management. Exclusive Talent Management is aimed at a specific
segment of employees in the organization while inclusive Talent management includes every
employee of the organization in implementing the Talent Management policy.
These appraoches are applied to analyze the vision and practice of Talent management in the
Flemish Government. The research methods used are: a document analysis and semi‐structured
interviews with two civil servants. The document analysis captures general policy documents as
well as policy documents with regard to the personnel policies of the Flemish Government. The
interviewed civil servants were chosen because they are involved in the development of a vision
on Talent management in the Flemish Government.
The results show that the Flemish Government positions herself on the inclusive Talent
Management realm. The view is that every employee has talents and these talents must be
developed, in order to achieve organizational and individual goals.
2. Context
The popularity of Talent Management in academic and practice‐oriented literature can be
explained by several trends in society.
First, a shortage of talented employees on the labour market is emerging, caused by the wave of
retirement of the baby boom generation. For organizations, the attraction and retention of
competent employees is therefore top priority (Baert, e.a., 2011, pp. 20‐21).
Second, the expectations of employees concerning their career and work situation have
changed. Loyalty towards the employer is for example replaced by the need for personal
development. Experiences and challenges in different contexts (within and between
organizations) have become a newly valued aspect of careers of individuals (Hiltrop, 1995, pp.
289‐290; Anderson & Schalk, 1998, p. 642).
Third, the unstable economic climate forces organizations to work efficiently with a constrained
budget. This means that efficiency and effectiveness are values that are again high on the
agenda of organizations. Also, the HR policy of organizations is confronted with an external
pressure which results in a culture that is driven by confined performance indicators.
Organizations want (a group of) employees to be stimulated to perform at their best. As a
consequence, in private as well as public organizations a tension between financial‐economic
goals and ethical values rises (Leisink, 2005). This tension can also be found in the strategical
aspirations of an organization in their Talent Management policy and the personnel
management in general. When presenting the different approaches to Talent Management in
this paper, this tension will be highlighted.
Also the Flemish government is confronted with these different trends in society. In order to be
able to deal with these challenges, the Flemish government included the key project ‘Modern
HR policy’ in the horizontal policy project ‘Flanders in Action’. This key project focuses, among
others, on ‘Competence and Talent Management’. The aim of the project is to contribute to the
HR‐vision of the ‘Modern HR policy’:
‘The Flemish government is conducting an integrated and sustainable HR policy aimed at
the realization of its strategic objectives and focusing on attracting, developing, and
retaining (scarce) talent. Attention is paid to social responsibility, cost awareness, and
employability’ (College van Ambtenaren‐generaal, 07.04.2011, p.4).
It is within this project that the vision of the Flemish government on Talent Management is
developed.
3. Strategic HRM and Talent Management: a theoretical background
Before diving into the definitions of talent and Talent Management, we want to situate the
origin of (the different approaches to) Talent Management. Therefore, we will present a short
overview of theories and different views that can be linked with the different approaches to
Talent Management.
3.1. Human capital as a resource for sustained competitive advantage
In Talent Management the strategic value of employees is one of the basic assumptions. This
assumption was first put forward by the resource‐based view (RBV) of the firm. The RBV puts
emphasis on internal resources2 of the firm in producing a sustained competitive advantage, in
contrast to external resources (such as industry position). As a consequence, also the
consideration of human capital as an important resource became a more legitimate assumption.
This assumption is further enforced by Barney’s specification (1991) of the resource
2 These resources are financial resources (equity, debt and retained earnings), physical resources (machines,..), organizational resources ( information technology systems, organizational design,..) and human resources (knowledge, skills, abilities and social network) (Boselie, 2010, p.47)
characteristics that are necessary for obtaining a sustained competitive advantage. Resources in
his view must be rare, valuable, inimitable and nonsubstitutable. Human capital can be
characterized by these specific criteria. In literature though, the human capital is split up in the
human capital pool and the HR practices. Different views exist on whether it is the human
capital pool itself 3 or the HR‐practices4 that possess these characteristics and constitute the
competitive advantage. Building on these views, Wright, Dunford & Snell (2001) distinguish
three components of the human resource architecture that are necessary to achieve sustainable
competitive advantage can be achieved. These three components are the human capital pool,
employee behavior and the HR practices or people management system. In this view, both the
human capital pool as the HR practices must be accounted for when striving for a competitive
advantage. These components are presented in figure 1.
The human capital pool refers to the stock of employee skills in the firm at any given point in
time. This pool changes overtime and must be monitored to suit with the strategic goals of the
firm.
The second component is the employee behavior. Apart from skills, the employee is also
recognized as a cognitive and emotional being who possesses free will. This means for example
3 This view was presented by Wright et al (1994). With the human capital pool, the authors refer to a highly skilled and highly motivated workforce. 4 Lado & Wilson (1994) state that a firm’s HR‐practices are a source of competitive advantage. They noted that the system of HR‐practices of a firm is impossible to imitate because of the complementaries and interdependencies among the set of practices.
Figure 1. A model of the basic strategic HRM components (Wright, Dunford & Snell, 2001,p. 705)
that a firm may have access to an excellent human capital pool but the poor design of work or
the mismanagement of people can result in a suboptimal strategic impact. In other words, the
full potential of the human capital pool cannot be reached. The members of the human capital
pool must individually and collectively choose to engage in behavior that benefits the firm
(Boselie, 2010).
The third component is the people management system of a firm. Wright et al. (2001, p. 705)
state that ‘by using the term system, we turn focus to the importance of understanding the
multiple practices that impact employees rather than single practices. By using the term people,
rather than HR, we expand the relevant practices to those beyond the control of the HR‐
function, such as communication (both upward and downward), work design, culture,
leadership and a host of others that impact employees and shape their competencies,
cognitions and attitudes’.
Wright, Dunford & Snell (2001, p. 706) conclude by stating that to gain sustained competitive
advantage, a superior position must be achieved on the three described components: ‘a
combination of human capital elements such as the development of stocks of skills, strategically
relevant behaviors and supporting people management systems.’
When linking the theory of Wright, Dunford & Snell (2001) to Talent management, it is clear that
the Talent Management policy of an organization is part of the people management system
since Talent Management is often focused on developing and maintaining a talent pool and
attracting and retaining employees (influencing employee behavior). Moreover, Thunnissen,
Boselie & Fruytier (2011) state that the Talent Management policy of an organization should be
a people management system in which attention is paid to managing people and managing
work.
3.2. Valuing some more than others?
In addition to the above, Lepak & Snell (1999) present a popular architectural approach to
strategic HRM, that is partly based on RBV and can be described as one of the basic principles in
exclusive Talent Management5 (see 4). Lepak & Snell (1999) distinguish between peripheral and
core employees. The core employees are of higher value because of their uniqueness and skills,
in contrast to the peripheral employees. In this view, the core employees constitute the real
human and social capital of the organization. The main contribution of this model is the explicit
acknowledgement of different employee groups in an organization with potentially different HR
5 Exclusive talent management is aimed at a specific segment of employees in the organization
practices and systems to achieve (financial) organizational goals (Boselie, 2010, p. 150)6. Boselie
(2010) notes however that differentiation between different employee groups can have
potentially negative effects on people. He points to the mechanism of distributive justice, in
which peripheral employees can perceive injustice when the group of ‘core’ employees gets
more opportunities in, for example, development. This can be the case when an organization
chooses an exclusive Talent Management approach. More general, when taking into account
the social legitimacy of an organization7, differentiation can have a negative impact on the
organization, concerning for example the corporate reputation (Boselie, 2010).
Social legitimacy is, next to labour productivity and organizational flexibility, defined by Boxall &
Purcell (2003) as one of three critical HR goals of an organization. They remark that a natural
tension between these different goals exist. Boselie (2010) states that there appears to be an
optimum point at which the three critical goals are balanced. This brings us to the strategic
balance model (Boselie, 2010, p. 9).
3.3. Balancing the Talent Management goals
The balanced approach starts from the assumption that organizational success can only be
achieved when both financial and societal performance are taken into account. This model
contrasts sharply with the Anglo‐Saxon or Anglo‐American managerialist‐oriented models since
they focus on creating shareholder value in terms of profit and market value. The two
performance fields of the balanced approach must be above average to create a sustainable
competitive advantage (Boselie, 2010). Peccei (2004 in Paauwe, 2009) remarks that a set of HR
practices that works good for financial‐economic goals, is not necessarily equally good for, e.g.
the well‐being of employees. This issue highlights again that also for HR‐practices attention
must be paid to the different dimensions of performance. Boselie (2010) concludes that when
taking into account multiple stakeholder interests and a broader societal view in the design of
the employment relationship in an organization, it is likely to result in ‘good’ people
management (CFR Wright, Dunford & Snell, 2003)
With regard to Talent Management, Thunissen, Boselie & Fruytier (2011) find that the view on
Talent Management in academic literature is characterized by a managerialist orientation in
6 Boselie (2010, p. 150) places this model in the Anglo‐American view in which particularly pure economic values are prioritized. 7 Social legitimacy can be situated at a macro level, concerning the legitimacy of an organization to the outside environment, or at a more micro level, concerning the organization’s legitimacy to its own employees (fairness) (Paauwe, 2004).
which the organizational effectiveness is prevailing. The consequence of this approach can
disadvantage the employee as well as the society. This is not in line with the above‐mentioned
balanced approach. Talent Management, as a people management system, should thus pay
attention to integrate a balanced approach in order to contribute to the long‐term success and
achievement of sustained competitive advantage.
3.4. Talent Management in the public sector
On the one hand, governments must participate in the war for talent if they want to attract and
retain competent employees. A modern HR‐policy is thus essential. On the other hand, the
public sector context is characterized by numerous rules, prescriptions and norms and values
which limit the flexibility to design a modern HR policy. These characteristics must be kept in
mind when designing Talent Management in the context of the public sector. Furthermore, also
in the personnel management in the public sector rival values are present: efficiency and
effectivity as well as equality, justice, representation and legal certainty must be taken into
account when designing the HR policy. Tensions that may rise while implementing (some
approaches of) Talent Management are explained in literature as follows: ‘the implementation
of Talent Management initiatives presents specific tensions and dilemmas for public sector
managers which arise largely from well‐embedded organizational approaches to equality and
diversity’ (Harris & Foster, 2010). In this respect, Bach (2000) states that, in the public sector,
attention must be paid to the pressures to move away from social legitimacy, in favor of the
economic side. The balance between the societal and economic values must be guarded.
Thunnissen, Boselie & Fruytier (2011) find that, in academic literature, research concerning
Talent Management can mainly be situated in profit organizations. They conclude that,
considering the specific context and characteristics of the public sector, the current models are
not appropriate to research and describe Talent Management in the public sector. We see, for
example that the critical HR‐goals of Boxall & Purcell (2003), mentioned above, have as ultimate
business goals: creating and maintaining viability with adequate returns to shareholders and
striving for sustained competitive advantage. The problem is that public sector organizations do
not have shareholders. Boselie (2010) states however that these ultimate business goals can be
adapted to a broad range of organizations8.
The models and theories, mentioned in the theoretical background, will have to be adapted
when used in research in the public sector. It is clear though that the HR practices will have to
8 These considerations are kept in mind by the researcher in the following stages of the research.
take into account rival values and goals. This also reflects the characteristics of a public sector
institution in which several stakeholders have to be accounted for. The balanced approach thus
seems a more natural reflex for the public sector.
4. From definitions to approaches to Talent Management
To fully introduce the concept of Talent Management, we will present some definitions of talent
and Talent Management. As we mentioned in the introduction, Thunissen, Boselie & Fruytier
(2011) conclude that a common definition of Talent Management is not possible because of the
dependence on the context of an organization. It is possible though to distinguish different
approaches to Talent Management. Several authors categorize Talent Management approaches
on differing criteria. We will discuss a selection of definitions that exemplify the different
emphases currently present in literature.
4.1. Definitions of talent and Talent Management
Thunissen, Boselie & Fruytier (2011) conclude that the definition of the concept Talent
Management is one of the most recurrent themes in the academic literature of Talent
Management. When going through these numerous definitions of Talent Management, various
scopes and emphases come to surface. To give an example of the different conceptualizations
that exist, we will present a few definitions:
‘Talent management is the use of an integrated set of activities to ensure that the
organization attracts, retains, motivates and develops the talented people it needs now
and in the future. The aim is to secure the flow of talent, bearing in mind that talent is a
major corporate source’ (Armstrong, 2007).
Armstrong (2007) stresses in this definition the integrated set of activities to attract, retain,
motivate and develop (future) employees. Furthermore, in this definition, it is not clear how the
author defines ‘talented people’ or ‘the flow of talent’. When reading through the entire article
though, the author explicitly states that ‘everyone in an organization has talent, even if some
have more talent than others. Talent Management processes should not be limited to the
favored few’ (2007, p. 390).
The definition of the Chartered Institute of Personnel and Development (2009) follows the focus
of Armstrong (2007) on the activities to attract, identify, develop and retain employees but
presents a different idea of the notion of talent:
‘Talent management is the systematic attraction, identification, development,
engagement/retention and deployment of those individuals who are of particular value
to an organization, either in view of their ‘high potential’ for the future or because they
are fulfilling business/operational‐critical roles’ (Chartered Institute of personnel and
development, 2009)
The Chartered Institute of Personnel and Development focuses in her definition on a segment of
the workforce of an organization, notably the ‘high potential’ or ‘high performing’ group.
The last definition of Van Beirendonck (2010) emphasizes the strengths of each individual:
‘Talent Management is getting the best out of people by making use of their strengths
and interests and by organizing the context in such a way that those talents can have the
space needed to further develop’ (Van Beirendonck, 2010, own translation).
The strengths and interests of an employee are in this definition considered as the talents of an
organization. Subsequently Van Beirendonck (2010) stresses the importance of a stimulating
context and an optimal organization of the work situation in order to unfold the strengths of
individuals.
By presenting some definitions of Talent Management, the wide range of different standpoints
and emphases becomes clear. Moreover, we see that the conceptualization of talent is of great
influence to the differences in defining Talent Management. Several authors (Thunissen, Boselie
& Fruytier, 2011, Gallardo‐Gallardo, 2012) state that the way an organization defines talent is
context dependent. Some defining context factors for the definition of talent are: characteristics
of the organization (e.g.: sector, organization goals, labour market) and the nature of the job
(e.g.: knowledge‐oriented, routine). The definition of talent will thus differ depending on the
context of the organization. Gallardo‐Gallardo (2012) developed a typology of the different
approaches to talent in an organization. A distinction is made between the subject and object
approach.
In the subject approach of talent the ‘employee as a person’ is considered as a talent in the
organization. In addition, this approach can be inclusive or exclusive. The inclusive subject
approach stresses the added value of the human resource for the organization in the current
knowledge economy and makes no distinction between groups of employees. Critics state that
the notion of talent in this approach can be exchanged with the notion of employee of the
organization (Lewis & Heckman, 2006). No added value is created. The exclusive subject
approach of talent is aimed at a specific segment of the workforce. An HR policy with specific
programs and actions is developed for this group of employees. In most organizations this group
consists of ‘the high performers’ or ‘high potentials’ of the organization. Only this group is
considered as talents for the organization.
The object approach of talent defines talent as a set of exceptional skills with regard to
knowledge and competencies. In this approach the concept of talent refers to a characteristic of
a person and not to the individual as a whole9. Some authors add commitment and motivation
to the concept of talent in the object approach (Ulrich & Ulrich, 2010; Boudreau & Ramstad,
2005; Martin & Schmidt, 2010). Also the nature/nurture debate can be situated within this
approach. Some authors consider talent to be something natural which cannot be mastered
(Hinrichs, 1966 in Gallardo‐Gallardo, 2011). Others presume that experience and effort
determine whether someone is talented in a specific field. The middle way are definitions that
contain aspects of both views.
We conclude this paragraph by stating that the concept of talent as well as Talent Management
can be applied in a very broad or a very narrow way (Garrow & Hirsch, 2008). Different
definitions of Talent Management and talent circulate. These can be situated in different
approaches in which the view on the concept talent presupposes the approach of Talent
Management. In the next paragraph these different approaches will be presented.
4.2. Approaches to Talent Management
In academic literature, Talent Management approaches are subdivided along differing criteria.
Lewis and Heckman (2006) for example distinguish in their literature review on Talent
Management three views on Talent Management. For the current research, we developed a
framework in which we make a distinction of Talent Management approaches based on the
scope of the Talent Management strategy of an organization. The scope can be inclusive or
exclusive. This distinction is clear‐cut and gives a straight forward base for deciding which Talent
Management policy can be implemented in practice.
4.2.1. Inclusive Talent Management
In the inclusive approach to Talent Management every employee of the organization is part of
the target group. Moreover, this means that there is no subdivision of employees on the base of
their (future) performance. We make a distinction on the base of the approach to talent.
9 As is the case in the subject approach of talent.
The inclusive subject approach of talent can be related to the first view to Talent Management
that Lewis and Heckman (2006) distinguished in their literature review. This approach to Talent
Management encompasses a collection of typical human resource practices, functions, activities
or specialist areas such as recruiting, selection, development, and career and succession
management. There is some difference in the perspective that practitioners take: some focus on
specific sub disciplines when talking about Talent management (f.e.: succession planning, leader
development) while others emphasize the need to use HR‐techniques for attracting and
retaining talents on an organization‐wide level (instead of the department or function level).
Lewis and Heckman (2006) state that in this approach the term ‘human resources’ of the
organization is replaced with the ‘talents’ of the organization.
The second approach to inclusive Talent Management is based on the object approach to
talent. This view starts from the assumption that the strenghts/talents of every employee have
to be developed and supported within the Talent Management strategy of an organization.
Every employee is stimulated to achieve high performance. This corresponds with the view of
Lewis and Heckman (2006) on handling talent in a generic way (Buckingham & Vosburgh, 2001;
Walker & Larocco, 2002 in Lewis & Heckman, 2006).
This view on Talent Management fits in with the ‘soft approach’ to HRM10 and the strategic
balance model (Boselie, 2010). With the inclusive Talent Management approach it is possible to
include the multidimensional view on performance (the individual and societal level as wel as
the economic goals of the organization). Critics state however that, in the soft approach to
HRM, attention is distracted from the return on investment of the organization (Boudreau &
Ramstad, 2005). In this respect, Knies (2012) concludes that an organization can acknowledge
that everyone posseses strengths and competencies (‘talents’) that can be of value for the goals
of the organization. So on the one hand, the organization strives to fulfill the wishes and needs
of the individual but on the other hand, organizational success is being put forward. Hence,
there is a balance between the different values.
4.2.2. Exclusive Talent Management
Exclusive Talent Management is aimed at a specific segment of employees in the organization.
As a consequence employees who are not considered as talents will not be included in the
Talent Management practices. This approach can be connected with the view of Talent
Management of Lewis & Heckman in which talent is something generic and organizations
10 It can be linked with the Harvard‐model of Beer et al. in which the HR‐policy concentrates on the long term and is focused on three levels: the individual wellbeing, societal goals and the effectiveness of the organization.
choose to focus on ‘high potentials’ and/or ‘high performers’. Also the follow‐up of strategic
positions in the organization is one of the priorities in the Talent Management policy11 since
these strategic positions contribute for a large extent to the competitive advantage of the
organization (Collings & Mellahi, 2009). Another view on Talent Management that can be placed
in this approach is called ‘topgrading’. This means that the organization wants to hire/develop
high performers for every position in the organization:
‘packing entire companies with A‐players – high performers, form senior management
tot minimum wage employees – those in the top 10% of talent for their pay’ (Lewis &
Heckman, 2006).
The organization focuses thus on a specific segment of the labour market. Gallardo‐Gallardo
(2011) concludes that this view can be applied in organizations in which the performance of the
organization is dependent on the results of all employees, like for example luxe resorts and
innovative consultants.
The views above can be coupled to the exclusive subject approach of talent. However, it is also
possible to apply the object approach to talent in this view. It can for example be found when
organizations are looking for specific strengths, necessary in a key strategic position.
Regarding the performance goals of an organization, it is clear that the exclusive approach of
Talent Management is much more focused on the organizational effectiveness than the
inclusive approach. The societal view on performance is thus harder to link with the
differentiation strategy in exclusive Talent Management. The exclusive Talent management
approach can be situated in the managerialist‐oriented models that focus on the performance
of the organization and neglect the individual and societal goals. According to Boselie (2010)
and Paauwe (2009) this narrow definition of performance misses out on the positive effects that
can be achieved when HR practices also take into account both internal and external
stakeholders (based on criteria as fairness and legitimacy)12.
11 When looking to the identified approaches of Lewis & Heckman (2006), the second approach seems closely related because of the emphasis on talent pools and an adequate flow of employees throughout the organization (Kesler, 2002; Pacsal, 2004 in Lewis & Heckman, 2006). 12 Paauwe (2009) refers to lower employee absence, higher satisfaction, greater willingness to stay with the organization and higher effort. These effects result from taking into account the relational rationality which refers to establishing sustainable and trustworthy relationships with both internal and external stakeholders based on criteria of fairness and legitimacy.
4.3. Overview of approaches
The different positions an organization can take concerning Talent management are bundled in
the following overview:
Table 1. Approaches to Talent Management
Approach to talent Focus of organization
Inclusive Talent
Management
Inclusive subject
approach
Talent management = HRM ‐
Every individual is a talent
Object approach
Every individual can be stimulated to his highest
performance by developing and supporting individual
strengths
Exclusive Talent
Management
Exclusive subject
approach
Only a specific segment of employees of the
organization/labour market is targeted with the Talent
Management strategy – ‘High potentials’ and/or ‘high
performers’
Object approach
The focus is on specific strengths that are needed in a
key position of the organization. Only employees with
these specific talents will be selected for the Talent
Management strategy13.
This framework will be used to position the approach to Talent management of the Flemish
government.
5. Methodology
This paper presents the position and approach of the Flemish government on Talent
Management. In the previous chapter, we presented an overview of the approaches that an
organization can adopt. This overview serves as a framework that we will use to position the
approach of the Flemish government.
The research methods that were used, are a document analysis and semi‐structured expert
interviews with two civil servants. The document analysis is aimed at general policy documents
as well as policy documents with regard to the personnel policies of the Flemish government.
13 The selection base is thus the specific strengths of the employee but the HR‐actions are naturally aimed at the employees with these strengths.
The selected documents are: the Coalition Agreement 2009‐2014, the policy note of the policy
domain ‘Administrative Affairs’ (‘Bestuurszaken’; 2009‐2014), the vision note on ‘Modern HR‐
policy’ and the vision note on ‘Up to a policy of talents in the Flemish Government’14. When
going through the documents, special attention was paid to the occurence of the key words
‘talent’ and ‘talent management’.
The document analysis is complemented with semi‐structured expert interviews with two civil
servants. These civil servants, the project leader and a member of the project team, are closely
involved with the key project ‘Modern HR policy’ and the subproject on ‘Competency
management and Talent Management’.
6. Results
We present the findings by starting to describe the vision of the Flemish government on talent
and Talent Management in the Coalition Agreement 2009‐2014. We then present the results
from the policy note ‘Administrative Affairs’, the vision note on ‘Modern HR policy’ and the
more specified vision note on ‘Up to a policy of talents in the Flemish government’. The results
of the document analysis of this vision note are complemented with the information obtained
from the semi‐structured expert interviews.
Coalition Agreement 2009‐2014
The Coalition Agreement presents the policy plans of the Flemish government for the next
legislative period of five years (2009‐2014). The concepts of ‘talent’ and ‘Talent Management’
are cited in very general contexts. When mentioning talent in the theme of ‘Flanders’ learning
society’ (‘De lerende Vlaming’), the context of people getting life‐long chances to develop their
talents is dominant:
“We must invest in the development of talents and skills of every child, every young person
and every adult. Every talent must find its place on the labour market.” (Flemish
government, 15.07.2009, p. 24).
In the theme ‘A Decisive Government’, the goals for the personnel management of the Flemish
government are put forward. The Coalition Agreement states that the Flemish government
must do more with less. Changes in the personnel management are thus necessary:
14 In Dutch: ‘Naar een talentenbeleid in de Vlaamse Overheid’
“We need to invest in talented, engaged employees, who are more employable through
intern mobility in and between the different levels of government” (Flemish government,
15.07.2009, p. 78).
One of the goals is to be an ‘Exemplary Employer’ (‘Voorbeeldig Werkgeverschap’) in which
cost‐consciousness and societal responsibility are top priorities:
“Being an ‘Exemplary Employer’ means implementing a modern HR policy, based on Talent
Management, coupled with a correct reward that is in line with the prevailing market.”
(Flemish government, 15.07.2009, p. 78)
It is clear that talent is used in a very general context, for example to point to people in society.
With respect to the HR policy, the Flemish government wishes to employ talented employees in
order to achieve efficient and effective working government institutions. Talent Management
does play a part in this objective. However, it is not specified which approach the Flemish
government wants to implement.
Policy note ‘Administrative Affairs’ (‘Bestuurszaken’) 2009‐2014
The policy note ‘Administrative Affairs’ presents the planned policy for the policy domain of
‘Administrative Affairs’ for the next legislative period of five years (2009‐2014). The policy
development of the general HR policy is classified within this policy domain. The policy note
centralizes ten strategic goals, of which one is focused on the development of an innovative HR
policy. An important part of this strategic goal is ‘attracting, developing and retaining the scarce
talent […]’ (Bourgeois, 2009, p. 7). To stimulate the attraction of talent, ‘being an employer of
choice’ is also a strategic aspiration. Furthermore, by following‐up the future personnel needs,
there is enough time left to search for the missing ‘talents’ (Bourgeois, 2009, p. 27). Though
talent is mentioned several times in the policy note, there is no consistent use of an approach to
talent.
With regard to Talent Management, the Minister of Administrative Affairs, Geert Bourgeois,
concludes that the development of good leaders and the stimulation of the employability of
employees should be emphasized :
“I want to develop careers in function of Talent Management and the strategic needs of the
organization, with a clear connection to the workforce planning.” (Bourgeois, 2009, p. 29).
Moreover, the personnel development of employees should start from the strengths of every
individual, taking into account the organizational strategy (Bourgeois, 2009, p. 30).
In conclusion, the Minister of ‘Administrative Affairs’ wants to use Talent management to
achieve some strategical goals, like attracting and developing competent employees, in order to
contribute to the organizational success and the personal development of the individual. It is
however not clear which approach to Talent Management and talent is chosen.
Vision note on ‘Modern HR policy’
The vision note on ‘Modern HR policy’ is developed within the framework of the horizontal
policy project ‘Flanders in Action’ of the Flemish government15 and presents the organization‐
wide point of view of the Flemish Government on the HR policy:
“The Flemish government is conducting an integrated and sustainable HR policy aimed at the
realization of its strategic objectives and focusing on attracting, developing, and retaining
(scarce) talent. Attention is paid to social responsibility, cost awareness, and employability”
(College van Ambtenaren‐Generaal, 07.04.2011, p.4)
Talent is thus one of the central concepts in the formulated vision. Remarkably, in the
remainder of the document, not much attention is paid to the concept of talent and Talent
Management. However, in the context of leadership and the skills of a leader, talent is
mentioned:
“He/she is responsible for the development of talents within his/her team, but should be able
to allow talents to go to others entities […]“ (College van Ambtenaren‐Generaal, 07.04.2011,
p.13).
“As a coach, the leader uses Talent Management to optimally deploy workers within their
area of responsibility.” (College van Ambtenaren‐Generaal, 07.04.2011, p.14).
In this document, again, it is not clear which approach on talent or Talent Management is taken.
Talent is used in a very general way and seems to incline to the subject approach of talent (cfr.
the above‐mentioned quotations)
The policy documents that we presented up to here, proved to be very general in defining talent
and Talent Management. The following document is the vision note on ‘Up to a policy of talent
in the Flemish government’. This document captures in detail the approach to talent and Talent
Management.
15 ‘Flanders in Action’ is partly included in the coalition agreement in the form of ‘breakthroughs’. One of the seven breakthroughs is titled ‘Decisive Government’ and focuses on the intern management of the Government. The multi‐annual program ‘Decisive Government is developed within this framework. The vision nota on Modern HR‐policy is the first output of the key project ‘Modern HR‐policy’ within the multi‐annual program.
Vision note ‘Up to a policy of talents in the Flemish Government’
This note is published as an output of the project ‘Competence and Talent management’ as part
of the key project on ‘Modern HR policy’. This note focuses on the vision and development of
Talent Management in the Flemish government. The analysis of this document is supplemented
with the information obtained from the interviews. In this way, a more complete picture can be
presented. We first discuss the approach to talent.
“In general, managing talents is predominantly associated with a high potential policy. This
high potential policy is aimed at young and promising employees. In the Flemish
government, however, we believe that everyone has talent!” (Flemish Government, 2012,
p.7)
The above‐mentioned quotation moves away from the exclusive subject approach to talent.
‘Everyone has talent’ fits in with the object approach. This approach is confirmed in other
extracts of the text:
“Talent is not connected to age, gender or origin. Instead of focusing on the favoured few,
the Flemish government wants to create a favourable atmosphere in which talents can be
acknowledged and put to full use” (Flemish government, 2012, p. 8).
“Talent is (…) a natural aptitude, a gift, something you like to do and something you’re good
at. Talent starts from within the individual. Personality and background play an important
role.” (Flemish government, 2012, p. 8)
“Using talent in an organization means appreciating the natural strengths and positive
elements of all employees.” (Flemish government, 2012, p. 14).
“We already mentioned, we want to start from diversity and certainly not from a high
potential policy. (…) Everyone has talent!” (Flemish government, 2012, p. 16).
When summarized, this is what the Flemish Government means when talking about talent:
“Talent is the combination of doing something good and doing something you like to do. This
generates an automatic passion to get results. When developing talent, the right context,
support and a proper fit with individual, societal and organizational goals is necessary.”
(Flemish government, 2012, p. 9)
The project leader stressed in the interview, however, that several organizations (departments
and agencies in the Flemish government) have different views on talent and Talent
Management. One of the goals within the project is to establish a common understanding of
what the Flemish government entities understand as talent and Talent Management. The
general view put forward in the vision note is the foundation for this common understanding.
Regarding the vision note on talent, we can conclude that the cited extracts and the final
definition of talent fits with the object approach of talent (Gallardo‐Gallardo, 2012). The further
refinement of the definition by the Flemish government is focused on the relation of talent with
individual interests and the fit with personal, societal and organizational objectives. This can be
matched with the above mentioned model of strategic balance (Boselie, 2010). The intention of
the Flemish government is to take into account several stakeholders and values.
In the following part, the approach to and different aspects of Talent Management, defined by
the Flemish government, will be presented. The quotations on talent already make clear that
the Flemish government is not willing to implement an exclusive Talent Management approach
since it moves away from a high potential policy and advocates the principle that ‘Everyone has
talent’. The project leader expresses the view on Talent management as follows:
“We are not looking for a purple squirrel but for the individual strengths that everyone
possesses” (Bonamie, 27.03.2012)
Furthermore, different emphases are put forward in the vision note. The first emphasis is the
importance of culture and context:
“If we want a fully integrated talent policy, we have to obtain a shift in culture in the Flemish
Government.” (Flemish government, 2012, p. 9).
“Context plays an important role in detecting and employing talent.” (Flemish government,
2012, p.9)
“Leaders can create a context in which employees have the possibility to show and use their
talents.” (Flemish government, 2012, p.14).
The project leader (Bonamie, 27.03.2012) states that talent cannot be managed because it
comes from within the employee. That is why the shift in culture is being emphasized. The
reasoning is that when a culture of thinking and talking in talents exist, people will be stimulated
to develop and use these talents instead of being told to.
The second focus is on the reciprocity between organization, employee and leader:
“By linking the personal development plan and an organization’s development plan, an ideal
harmony can be found between the goals of the organization and the expectations of the
employees.” (Flemish government, 2012, p. 12).
This reciprocity follows out of the goals and objectives of Talent management that the Flemish
government puts forward. As the following quotations will show, the Flemish government is
differentiating between the individual, organizational and societal level:
“The aim is to develop satisfied, motivated and committed employees (…) A pleased
organization and satisfied leaders who realize the goals of their organization through getting
the best out of people (…).” (Flemish government, 2012, p. 12).
“This point of view makes clear that using talents is not only nice‐to‐have but also has to
contribute to the achievement of the objectives of the team and the organization.” (Flemish
government, 2012, p. 12)
Though attention is paid to the individual level, the main emphasis is on the organization’s
objectives. It is clear that also the public sector must account for its results and the pressure on
efficiency and effectiveness is present16(Francois, 02.04.2012). Furthermore, the project leader
states, that when service is more qualitative, the contentment of the citizens increases. This
results in a more positive image of the government in general (Bonamie, 27.03.2012).
Nevertheless, the individual and societal level are not out of sight in the intentions of the Talent
Management policy of the Flemish Government. This corresponds with the ‘balancing values
principle’ in the balanced approach to HRM (Boselie, 2012).
7. Conclusion
Talent management in this paper is seen as a specific way of designing HR measures that,
dependent on the strategy of an organization, can be inclusive or exclusive. The inclusive
approach of Talent Management is aimed at all employees of the organization while the
exclusive approach is limited to an elite group of ‘best performing’ employees or employees on
‘key’ positions. In the theoretical background, this paper highlighted theories that explain the
basic assumptions of Talent Management. Different schools in HRM can influence the approach
to Talent Management. The balanced approach to HRM for example leans closer on the
inclusive Talent Management approach in which the talents of every employee are developed to
benefit the individual, the organization and the society. For the public sector, this seems a more
16 Bach (2000) found that there is a tendency in the public sector (in the UK and the Netherlands) to become lean, provide high‐quality services and meet the customer/client demands. Boselie (2010) states that public sector organizations are challenged to rebalance the organization towards economic goals. It is still important, tough, to pay attention to the presence of societal performance .
natural reflex. Meanwhile, there is a lot of pressure on government institutions to prioritize the
economical‐financial values such as maximized efficiency and effectiveness.
This paper positions the Talent Management approach of the Flemish government on the
presented distinction between inclusive and exclusive Talent Management. We conducted a
document analysis, together with two expert interviews. The more general policy documents
showed that the Flemish government was open‐minded to use Talent Management in the
planned modern HR policy. It was, however, not clear which approach the Flemish government
wanted to introduce. In the more specific vision note on ‘Up to a policy of talents’ and the two
expert interviews, on the other hand, the inclusive approach of Talent Management, together
with the object approach of talent were prominent.
In the next phases of the research project, the impact of implemented Talent Management
measures on the individual, organizational and societal level in the Flemish government will be
studied. In order to fit the broader context of the public sector, further refinement of the
presented theoretical background is required.
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