Ministers' Deputies / Rapporteur Groups

GR-AB
Rapporteur Group on Administrative and Budgetary Questions

GR-AB(2003)17 (restricted) 15 September 2003

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The reform of Human Resources Policy at the Council of Europe

- Progress Report

Secretariat memorandum prepared by the Directorate General of Administration and Logistics

Item to be considered by the GR-AB at its meeting on 23 September 2003

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Introduction

1.         This progress report describes the work carried out by the Secretariat in the context of the reform of human resources policy during the period 2001-2003 (Section I), outlines the framework for future work (Section II), and provides an overview of the priority objectives and main activities which are to be implemented over the period from now until the end of 2004 (Section III).

2.         A second progress report evaluating the stage reached in work on the different fields of activity will be submitted to the Committee of Ministers in April 2004, and it is foreseen that subsequent progress reports will be produced every six months.

Context of the reform and progress to date

Context of the reform of human resources policy

3.         The urgent need to reform human resources policy within the Council of Europe in order to meet the new challenges facing the Organisation was first raised on a political level by the report of the Committee of Wise Persons in November 1998. The Committee of Ministers then gave the Secretary General a mandate to proceed with the reform.

4.         Following the “Optimum” study, a consultation document on the new human resources policy was prepared by the Secretary General, defining the priorities and strategic orientation of the planned reform. This document formed the basis of extensive consultations in joint working groups composed of staff representatives and representatives of the Secretary General. Following the adoption by the Committee of Ministers of the main orientations of the reform in July 2001, the Secretariat started work on the implementation of various aspects of the new policy[1].

Progress to date

5.         Work on the reform of the human resources policy has advanced more quickly in some areas than in others, for a number of reasons. Factors which have influenced the speed of reforms include the political and social urgency of particular measures, the need for consultation with staff representatives on a number of issues, and the implications of reform projects in terms of the introduction of major new processes or statutory amendments.

6.         The integration of temporary staff members into the permanent body of staff was given first priority. The preparation and implementation of the exceptional recruitment procedure absorbed a substantial part of the Directorate of Human Resource’s capacity throughout 2002 and in the first half of 2003. To date, 82% of the staff members who succeeded in the recruitment competition have been offered permanent posts, resulting in 225 recruitments between May 2002 and June 2003. Of these posts, 213 are newly-created permanent posts, recognised as structural posts by the Committee of Ministers, while the others were vacant posts. The remaining 18% of temporary staff members who succeeded in the recruitment competition have been placed on reserve lists. Most of them are currently employed on long-term temporary contracts either on programme posts or as replacements for permanent staff members.

7.         As regards recruitment policy and the management of posts, a number of modifications have been made. New rules have been adopted by the Committee of Ministers as regards the appointment and evaluation of senior managers (A6 and A7), and to give the Secretary General competence for all transfers and re-gradings of posts up to and including A5 level.  Work has started to simplify the functioning of the Transfer and Promotion Panels.  The length of time for which external vacancies are advertised has been reduced, leaving open the possibility to extend the advertising period where necessary.  The age limit of 35 years for recruitment to start-of-career posts is no longer applied.  Since the beginning of 2002, 45 A grade competitions have been organised. More than 30 of those were limited to nationals of under-represented member States, including 11 general competitions and recruitment procedures organised with a view to filling lawyer posts in the Registry of the European Court of Human Rights.

8.         The appraisal system, introduced in an experimental phase in 1998, has been simplified and, since 2002, is in place throughout the Organisation. Following the completion of the first regular cycle in March 2003, the results are now being analysed in terms of the regularity, comparability and validity of appraisals in the different sectors of the Organisation. At this stage, the system is not yet linked to direct and demonstrable outcomes as concerns the rewarding of merit and, conversely, measures to address shortfalls in performance, including through training. Additional measures therefore need to be introduced to improve the system in these respects.

9.         Training initiatives have been introduced to take into account new working methods and needs of the Organisation. In particular, in 2002 and 2003 a strong emphasis has been placed on general management and project management skills, and on gender-related equality issues. Further measures remain necessary to develop a coherent and comprehensive training strategy.

10.        In the area of staff mobility and promotions, some progress has been made in the last year. The number of internal vacancy notices increased from 58 in 2001 to 75 in 2002, offering more opportunities for staff members to seek transfers or promotions. In 2002, 213 staff members (17% of all permanent staff) had the opportunity to put the mobility principle into practice, either vertically through promotions or horizontally through transfers.

11.        Two series of post re-gradings were carried out, involving over 70 staff members in 2002 and 2003. Moreover, for the first time since the mid-90s, an internal procedure to give upper B-grade staff the opportunity to enter the A-grade category was organised, and over 50 staff members participated in this competition; 14 of whom were successful and 4 of whom have already been offered A-grade posts. Pilot mobility projects, intended to encourage transfers, were organised for B3 and A4 grades in 2003. The take-up of these opportunities was however extremely limited, in particular at A grade level, which clearly indicates the need for an appropriate framework and accompanying measures.

12.        Efforts have been made to take into account equal opportunities issues in various key areas of human resources management (recruitment and promotion, panels, appraisal). Important initiatives have been taken in the field of preventing administrative and sexual harassment in the workplace, notably the introduction in March 2002 of the Secretary General’s Instruction on the protection of human dignity in the workplace, training on this issue, the creation of a network of confidential counsellors and awareness-raising activities. New training programmes, such as training on intercultural relations, have been introduced.

13.        Measures have been taken to improve the employment conditions of staff. Elements have been introduced to ensure a better balance between work and private life for staff members, including the introduction of paternity leave, and the granting of days of leave for the conclusion of a PACS (Civil Pact of Solidarity). The probationary period has been harmonised and is now two years for staff members of all grades, and the possibility has been introduced for permanent staff members to work part-time during their probationary period. Compensatory allowances for staff members on mission to risk zones, or on long-term mission in “hardship areas” have been introduced as well as extra indemnities for staff members on long-term missions who have dependent children. Temporary staff members now continue to receive their salaries while on maternity leave, or during sick leave for a period of up to six months, and are also now entitled to allowances for disabled children. Locally-recruited staff members in field offices now also receive family allowances.

14.        Supporting measures have been put into place to ensure that the process of reform is carried out in a smooth and efficient manner. The Directorate of Human Resources has recently been restructured in order to provide it with the necessary organisational framework to proceed with the reforms more effectively. Thus, all administrative, social and financial tasks have been placed under the responsibility of one division. The Posts and Career Management Division has refocused its work around its core activities, and has strengthened its liaison with the operational sectors of the Organisation. A third division has been created with the specific task of implementing human resources policy and development. Finally, a unit has been created to manage the information systems of the Directorate, and to put in place the necessary organisational and information technology systems to support the reforms.

15.        With a view to ensuring that staff members remain fully aware of and committed to the changes underway, channels of consultation and participation of staff representatives in the reform process have been strengthened. The Staff Committee is now consulted on all proposals concerning the general orientation of human resources policy. The democratic basis of the Staff Committee has also been strengthened by extending the possibility of eligibility to staff after six months employment.

16.        The brief overview of work already achieved or set in motion as outlined above demonstrates that significant progress has been made in a number of areas, particularly as regards the exceptional recruitment procedure for the integration of temporary staff members into the permanent body of staff.

17.        Nevertheless, tangible progress on some other areas of the human resources policy reform has been less rapid. This is understandable given the over-riding priority given to the integration exercise, and the complex, inter-dependent and structural nature of many of the reforms foreseen. It is now both necessary and urgent to speed up the pace of reform within a coherent approach to human resources policy modernisation.

Main fields of work

18.        The reform of the staff policy will be carried out through measures in six priority fields. Work in these priority fields will be underpinned by several initiatives of a supporting nature.

 

STRATEGIC  PRIORITY  FIELDS

19.        The core fields of human resource management in which the planned reforms can be situated are :

- recruitment

- management of posts and job classification

- career development

- appraisal.

20.        Additionally, the following two transversal fields, which reflect key social values of the Council of Europe, are priority areas which will be given due weight in the human resources policy reform:

- equal opportunities.

- balance between work and private life.

Recruitment

21.        The recruitment system should enable the Organisation to fill external posts more quickly and simply, while at the same time ensuring that posts are offered to those persons with the requisite and best competencies to carry out the types of tasks involved.  It should also be based on a coherent contractual policy which respects the core social values of the Organisation while allowing for adequate flexibility in human resources management. Forward-planning in recruitment should thereby be facilitated.

Management of posts and job classification

22.        The management of posts should facilitate forward-planning of staff movements within the Organisation, ensuring that human resources are deployed optimally at all times. It should also ensure that staff members are given a genuine opportunity to develop their own careers. The introduction of a clear and harmonised system of job classification, highlighting the work content of each type of post and the requisite competencies[2] to perform that work, is a key element of post management. The introduction of a grade-banding or equivalent system will allow staff members to develop their career within a given category of posts and according to their performance.

Career development

23. Career development should allow the Organisation to ensure that the competencies and performance of its staff members are recognised, rewarded and put to optimal use. From the individual’s point of view, opportunities to have an impact on one’s own career development increases motivation and is likely to foster improved performance and a personal commitment to increasing competencies and skills.

24.        Career development involves a system of competencies management which takes into account on the one hand the competencies required by the Organisation, and on the other those displayed by staff members.

25.        Training is also a key element of career development. A coherent and dynamic training strategy should be closely matched to the needs and priorities of the Organisation to ensure that the key competencies required are present within its staff. Targeted training represents a key element in the career development and motivation of the individual and should enable staff members to play a more active role in the determination of their own career path, as well as serving to remedy shortfalls in performance.

26.        Increased opportunities for career development also imply increased mobility of personnel. Enhanced mobility will enable the Organisation to respond rapidly and flexibly to changing priorities and needs, to profit maximally from the diverse competencies and skills within its staff, and to increase adaptability, understanding and mutual knowledge within the Secretariat. Increased mobility will permit individual staff members to broaden and develop their own competencies and experience, thus increasing motivation and versatility.

Appraisal

27.        A properly-functioning, objective and reliable appraisal system will allow the Organisation to better apprehend the competencies and performance of its staff members. It should improve internal communication at the level of operational units, and must be closely and demonstrably linked to career development and to training requirements. In this light, appraisal should be linked to a merit-based reward system and, conversely, should allow situations of under-performance to be addressed and remedied in an objective and structured fashion.

Equal opportunities

28.        The aim of an equal opportunities policy is to ensure equality, diversity and fairness for all within the workplace, without discrimination. Practices promoting equal opportunities must be mainstreamed within all aspects of human resources management, particularly as regards the implementation of the new human resources policy, in order to ensure that the systems and processes put in place are equitable and fair for all.

Balance between work and private life

29.        A better balance between work and private life will increase efficiency and motivation of staff members and may also facilitate equal opportunities in the workplace. A focus on this issue is particularly relevant in a context in which a high proportion of staff members are living and working as expatriates, with few prospects of international mobility or professional return to their country of origin, distance from other family members and family support, which adds to the pressures on private life.

Supporting measures

30.        The successful completion of work in each of the core fields is also dependent on the way in which the change is managed. Work in the core fields must therefore be underpinned by supporting measures.

31.        The Directorate General of Administration and Logistics, and more particularly the Directorate of Human Resources, will play a leading role in the implementation of the reform process. On the basis of the main strategic orientations of the human resources policy reform, the Directorate of Human Resources will have responsibility for proposing and implementing the main priorities and specific activities in the different fields.

32.        The responsibility for the implementation of the reforms at the level of operational sectors of the Organisation lies with every manager, and will be ensured by means of the Executive Board. Administrative reform necessitates an increased level of responsibility among managers in the operational sectors. The human resources policy reform cannot succeed unless all managers acknowledge and accept the changes, and feel actively involved in their implementation. “Ownership” and implementation of reform by managers is therefore a key element of the change management process, and such managers must accordingly be involved from the outset as active and informed partners in the reform.

33.        Active involvement in the reform process is equally crucial for staff members and their representatives, and the process of consultation and constructive dialogue with staff must be maintained. Over and above the statutory obligation of the Secretary General to consult staff representatives on changes in staff policy, the success of the reform will depend on the extent to which such consultations lead to a genuine acceptance of and support for the change by all staff members.

34.        Communication with all parties concerned is a prerequisite of the change management process.  Such communication, based on the principle of the maximum transparency possible, will take place at several levels.  The Committee of Ministers will be kept regularly informed of the state of progress of the reform project and the results obtained. Communication towards staff members will promote ownership of the reform process and a change in organisational culture to accommodate new human resource management practices.

35.        Finally, a thorough reform of the organisational and technological framework of human resource management will be necessary. The operational workload of the Directorate of Human Resources will need to be gradually re-organised in order to free up capacity to take on new or revised human resource management systems and processes. Current systems must therefore be reviewed, rationalised and simplified wherever possible, with a view to increasing efficiency and effectiveness.

36.        Information technology systems are vital to the human resource policy reform. The aim will be to exploit existing software more efficiently, to computerise as far as possible labour-intensive and routine tasks, to control work flows and to facilitate the decision-making process.

Work Plan 2003-2004

37.        This section sets out the specific objectives to be reached in the different areas of work in the short-term (2003-end 2004) and highlights some of the key actions foreseen. Given the inter-dependent nature of many of the changes involved, it is clear that priorities have to be identified for immediate action. The aim has thus been to identify priorities which can be achieved in the short-term and which at the same time contribute to the long-term strategic objectives sought.

38.        A number of criteria have been taken into account when identifying the priorities for short-term action.  First, the logical sequence of the overall work to be achieved has been respected.  Major new frameworks and processes (eg job classification) which lie at the heart of the overall strategy should be tackled. At the same time, it is important that work advances in all the different fields of reform. In particular, some initiatives foreseen for the short term will play an important role in the overall change management process, by freeing up organisational and administrative resources, and by contributing to changes in organisational culture and practices.  They should however also clearly go in the direction of the overall reform strategy.

39.        Finally, an effort has been made to take into account in a realistic fashion the resources available, with a view to achieving concrete and solid results in specific areas rather than attempting to tackle all projects simultaneously.

FIELD		OBJECTIVES 2003-2004	WORKPLAN
C O R E F I E L D S	Recruitment and contractual policy	·         To redefine the criteria used for selection in recruitment and implement new selection methods ·         To develop a forward-planning recruitment policy ·         To put in place a new contractual policy	·         Revise and adopt new contractual regulations ·         Review the organisation, composition and functioning of Recruitment Panels and recruitment procedures ·         Develop and adopt new or additional selection criteria focusing more on key competencies ·         Develop means of ensuring a better geographical balance in recruitment (linked to quota system)
	Management of posts and job classification	·         To define and establish  a job classification system ·         To simplify and improve the management of internal staff movements (transfers and promotions)	·         Review the organisation, composition and functioning of Transfer and Promotion Panels ·         Analyse and draw upon previous studies carried out in the Organisation and the Coordinated Organisations on job classification ·         Carry out a harmonisation exercise on job classifications and job descriptions ·         Draw up a system of grade banding or similar system
	Career development	Competencies management ·         To develop a framework for a competencies management system Training ·         To put in place a training strategy based on the Organisation's priorities ·         To transform training, to allow it to be used as a tool to address individual situations and requirements as identified in appraisal Mobility ·         To increase mobility within the Organisation with a view to increasing competence, knowledge and mutual understanding ·         To promote mobility within the grade at start of career	·         Draw up an inventory of competencies required for different job families and make an assessment of those available among staff performing them ·         Examine feasibility of different career paths (generalists/specialists, managers/experts) ·         Commission and run an audit of the general training and language training courses ·          Prepare a new training strategy and define training courses to help staff develop new competencies which have been identified as required in their current jobs ·         Prepare a binding framework for increased mobility ·         Plan and organise awareness-raising activities, including further mobility campaigns ·         Examine possibilities for building- in mobility at start of career
	Appraisal	·         To ensure that appraisal cycles are carried out regularly ·         To harmonise appraisal ratings ·         To strengthen the link between the appraisal system and career development ·         To strengthen the link between the appraisal system and training	·         Devise and implement monitoring and enforcement procedures to ensure the compliance of the appraisal cycle with principles and rules (Coordination Board) ·         Develop and implement a harmonisation mechanism for appraisal ratings ·         Prepare proposals for a merit-based reward system/system to address shortfalls in performance ·         Use appraisal forms as sole evaluation documents for promotions and transfers ·         Evaluate and act upon the results of the 2002-2003 appraisal cycle and introduce training to meet the needs identified
	Equal opportunities	·         To redefine and implement an equal opportunities policy, taking into account the wider range of equality-related issues (equal opportunities and non-discrimination as regards inter alia gender, disability, age, ethnic origin, sexual orientation, non-EU staff members) ·         To identify and remedy shortfalls in the statutory framework as regards non-discrimination and equality	·         Define parameters and content of new policy and consult with key partners on policy and projects foreseen ·         Devise and run awareness-raising activities, particularly concerning newly-introduced areas of activity ·         Introduce necessary statutory changes ·         Establish a network of equality correspondents in the operational sectors ·         Establish a Commission to conduct a procedure in case of formal complaints of harassment
	Balance between work and private life	·         To put in place concrete measures to improve the balance between work and private life	·         Proceed with and conclude the pilot negotiation procedure with staff representatives

Conclusion

40.        The reform of its human resources policy remains one of the key challenges for the Organisation in the coming years. A review of work to date shows that important results have already been achieved in some areas, while in others the groundwork for further and more substantive progress has been established. It is now crucial to move ahead with the reform process in a structured and coherent fashion. The organisation of activities into core fields of work underpinned by supporting fields will provide a clear conceptual framework for the implementation of the reforms.

41.        Concrete and tangible results need to be achieved in the short term, while at the same time respecting the longer term, in-depth vision of the reforms.

42.        The Secretary General will ensure that the requisite budgetary and human resources are deployed in order to meet the demands of the reform strategy successfully, and that the necessary organisational and administrative changes which will underpin this reform are facilitated.

43.        The Secretariat will keep all concerned parties closely informed of the state of work and results obtained, and the Secretary General will report to the Committee of Ministers at regular intervals by means of progress reports.

Appendix 1

State of progress of the Staff Policy

November 1998:              Recommendations by the Committee of Wise Persons.

8 December 1998:           Decision by the Deputies, instructing the Secretariat to submit detailed proposals to the GR-AB.

12 May 1999:                  Presentation to the GR-AB of the outlines drawn up by the Secretariat.

June 2000:                      Preparation of a consultation paper describing the major outlines of the New Staff Policy.

January 2001:                 Completion of the internal consultation.

April/June 2000:              Finalising of the final guidelines for the New Staff Policy by the GR-AB.

4 July 2001:                    Adoption of the guidelines by the Deputies ; the Secretariat is instructed to implement them.

November 2001:              Entry into force of Rule No. 1085 improving social cover for temporary staff members (sick leave).

November 2001:              Creation of the mixed working group on the exceptional recruitment procedure.

December 2001:              Presentation to the GR-AB, then to the Deputies (decision of 12 December), of the application measures concerning :

                                      -    effective implementation of the appraisal system,

                                      -    appointment to A6 and A7 grades,

                                      -    the possibility for the Secretary General to change the grade of posts up to A5 grade,

                                      -    the length of the probationary period.

30 January 2002:             Adoption, by the Deputies, of a reply to Recommendation 1488 (2000) of the Parliamentary Assembly on the nature and scope of the contractually acquired rights of Council of Europe staff.

6 March 2002:                 Adoption by the Deputies of a series of decisions intended to regularise the position with regard to posts :

                                      -    incorporation of 213 temporary structural posts into the Table of Posts,

                                      -    launch of an exceptional recruitment procedure for temporary members of staff meeting certain conditions regarding length of service.

May 2000:                       Introduction of Rule No. 1100, introducing paternity leave and taking into account the "Civil Solidarity Pact" (PACS).

May 2002:                       Secretary General informs the GR-AB that the Human Resources Directorate is looking for a national officer to help the Directorate to put in place a system of classification of posts and of grade-bands (as yet, no delegation has proposed a National Civil Servant for secondment).

Sept/October 2002:         Presentation to the GR-AB, then the Deputies (Decision of 27/12/2002), of a series of technical adjustments and measures to simplify procedures, concerning in particular :

-    statutory consultation of the Staff Committee on subjects concerning the general

                                           staff policy,

                                      -    the option, for all categories of post, of limiting recruitment competitions to nationals of certain member States,

                                      -    adaptation of the procedures for announcing competitions to new Internet and Intranet technologies, shortening of time-periods for displaying vacancies and  various simplifications to the competition procedure,

                                -    extension of the possibility of working part-time to members of staff in their probation period,

                                      -    modification of the composition of the Panels : possibility, for the Director General of Administration and Logistics, to be replaced as President of the Panel by a staff member of at least grade A4 who has completed at least five years' service in the Secretariat, appointed by the Director General,

                                      -    creation of a Reserve Fund for the Council of Europe  Pension Scheme,

                                      -    adoption of a New Pension Scheme for staff members recruited on or after 1 January 2003 (except for those recruited under the exceptional recruitment procedure for whom the former Pension Scheme still applies),

                                      -    modification of the Pension Scheme and the Instructions for the implementation of the Pension Scheme for staff members in post on 1 December 2002 (more appropriate definition of invalidity; abolition, on reaching the statutory retirement age, of invalidity pensions that are not occupation-related; a more precise definition of an orphan; the capping of benefits for other dependants; abolition of the pension of an orphan dependent on a widowed staff member; the introduction of a general principle of capping benefits at the amount received by the pensioner before death).

Sept 2002/March 2003:    Launch of an experimental operation to encourage mobility, for members of staff in A4 and B3 grades.

Oct 2002/January 2003:   Implementation of results of 5 special competitions to enable temporary members of staff to become permanent (275 members of staff on reserve lists out of 307 applications) 225 Members of staff already given permanent status.

March 2003:                    Adoption by the Secretary General of an administrative modernisation plan for the Secretariat, a large part of which concerns human resources management.

1^st Semester 2003:           Setting up of a “Task Force” to deal with administrative and logistical matters with respect to field offices. Led to the promulgation of a new Instruction (Instruction 45) to improve the situation of staff on long missions as well as measures being taken to improve and stabilise the economic situation of locally recruited staff.

April 2003:                      Presentation to the GR-AB of a new series of measures (still being examined) :

                                      -    widening the application of Resolution (92)26 on the secondment by the Council of Europe of national civil servant, so as to incorporate officials from other international organisations and from local and regional governments,

                                      -    introducing the possibility for Council of Europe members of staff to be seconded to another Organisation.

June 2003:                      The Secretary General launched a pilot project inviting the Staff Committee to a negotiate on the balance between work and private life on a basis of an equal representation of the Staff Committee and representatives of the Secretary General.

Appendix 2

List of reference documents

SG/Inf(2002)4 / 11 February 2002
Financial impact of the modification of the contractual situation of certain temporary staff members

GR-AB(2001)17 / 25 May 2001
New Staff Policy (NSP), Opinion of the Staff Committee

GR-AB(2001)13 / 25 April 2001
Changes in the grading of posts - Elements of a policy

GR-AB(2001)12 (restricted) / 25 April 2001
New Staff Policy (NSP) - Memorandum by the Secretary General

Memorandum - 10 April 2001
The Secretary General / Re: Report of the Joint Working Group on the New Staff Policy

Report to the Secretary General - 18 January 2001
Joint working group on the new staff policy (Joint Group)

EB (2000)9 Rev. 1 / 9 June 2000
A new staff policy for the Council of Europe: Secretary General's Consultation document.

CM(2000)57 / 18 April 2000
Report on follow-up action on the final report of the Committee of Wise Persons

GR-AB(2000)3 / 02 February 2000
OPTIMUM Project - Progress report

GR-AB(2000)2 / 02 February 2000
Optimum- Outline progress report

GR-AB(99)5 / 17 June 1999
Human Resources Organisational Study (OPTIMUM Project)

GR-AB(99)3 / 12 May 1999
Proposals on follow-up to the report of the Committee of Wise Persons

CM(99)64 / 26 April 1999
Report on follow-up action on the final report of the Committee of Wise Persons

GT-SAGES(98)4 / 01 December 1998
Committee of Wise Persons - Main recommendations

CM(98)178 / 20 October 1998
Committee of Wise Persons: final report to the Committee of Ministers