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30/09/2016

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Public sector HR challenges in France

MINISTÈRE DE LA FONCTION PUBLIQUE

26 September 2016

International Exchange Seminar on

“Role, positioning and interventions of National Public Service Organizations

on HR matters”

Pretoria, South Africa

Recent achievements and upcoming projects of the Directorate General for Public Administration and Civil Service

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SUMMARY

1. OverviewoftheFrenchadministrativesystem

2. CivilserviceinFrance

3. TheDirectorateGeneralforPublicAdministrationandCivilService

4. Currentchallenges

5. Recentachievements

6. Mainupcomingprojects

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SUMMARY

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1.Overview oftheFrenchadministrativesystem

§ Franceisaunitary State

§ Territorialauthoritiesbenefitfromtheprincipleoffreeadministrationwithinthelimitssetbylaw

§ Processesofdecentralization anddevolution wereinitiatedinthe1980’s

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1.1. Basic principles

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President oftheRepublic

PrimeMinister

GovernmentSecretariat

EUAffairsSecretariat

MinistryX

Directorates

MinistryY

Directorates

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SUMMARY

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2.TheFrenchcivilservice

– Francehas66millioninhabitants

– Activepopulation:around29million

– 5.4mcivilservants:alittlelessthan20%oftheactivepopulation

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2.1. Key figures (1/2)

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Civilservicehasthreebranches:

• State civilservice: 2.4million,ofwhich:– Ministries 1,9million

Ø LocalStateadministrations 60%Ø Middleandhighschools 30%

– Nationalpublicentities 500000

• Local civilservice: 1.9million,ofwhich:– Municipalities 1million– “Départements” 300000– Regions 80000– Localpublicentities 500000

• Hospital civilservice: 1.1million9

2.1. Key figures (2/2)

– Permanent civilservants:3,8million (excludingmilitaryandprivateschoolsstaff)• 3categories: “A”category:policy-making,management&supervision

“B”category:application,middle-rankedstaff“C”category:execution,unskilledandsemi-skilledstaff

– Contractual staff:around900000• Foraspecifictaskortofillavacancyforafixedperiodoftime,

rightsanddutiesfixedbycontract


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2.2. Permanent and contractual staff in the civil service

% “A”category “B”category “C”category

State 55 25 20

Local 8 13 79

Hospital 14 37 49

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2.3. Rights and obligations of civil servants (1/2)

• Choice of a career-based civil service to ensure: ü a permanent qualified staff ü committed to the public interest ü and independent from political variations

• Common set of rights and obligations : Law of 13 July 1983

• Each of the 3 branches has its particular statutory framework:§ State civil service: 11 January 1984§ Local civil service: 26 January 1984§ Hospital civil service: 9 January 1986


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2.3. Rights and obligations of civil servants (2/2)

• Among common obligations:ü Dignity, impartiality, integrity, prohibition of conflicts of interestsü Professional activity entirely dedicated to the tasks assignedü Hierarchical obedienceü Professional secrecy, duty of reserve, neutrality and secularismü Information of the Public

• Among common rights:ü Freedom of opinion on philosophical, political, belief or

trade union mattersü Non-discrimination, prohibition of sexual or moral harassmentü Functional juridical protection ü Participation rights – Right to strike

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– InStatecivilservice,permanentcivilservantsareclusteredintocorps

• Acorps isagroupacivilservantssubmittedtothesameparticularrulesasto:

– Thetypeofcompetitiveexaminationfortheirrecruitment– Thenatureofthepositionstheyaredeemedtoholdandtheschemeof

administrationstheyshallworkfor– Thestructureoftheiradvancementprocess

• Eachcorps belongstoacategory (A,BorC)andisstructuredinseveralgradesdividedintolevels (“echelons” ornotches)determiningalevelofremuneration

– Advancementfromonelevelorgradetoanotherisbasedonseniority– Advancementtoahighergradecanalsobeaccomplishedonthebasis

ofbeingsuccessfultoaprofessionalexamination

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2.4. The statutory career of State civil servants (1/2)


– Corpsaresince2009openclusters• Mobility isastatutoryright:civilservantscanchangecorpstotakeupa

differentjoband/ormovetoadifferentministerialdepartment

• Tofostermobility,anongoingpolicyaimsat:– reducingthenumberofcorps– broadening: - theirmissions

- theirpotentialministerialdepartment• Almostallcorpsarestillministryspecificbutsomearenowinter-ministerial

– Promotion toahighercorpsisaccessiblethrougheither:• examination (internalcompetitiveexams)

• orexperience andexpertise (capacitylists)14

2.4. The statutory career of State civil servants (2/2)

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2.5. Recruitment of State civil servants (1/2)

• Recruitment is governed by the principle of equal access to public positions and jobs

• Article 6 of the 1789 French Declaration of the Rights of Man and of the Citizen

• Competitive examination (“concours”): the common mode of recruitment of civil servants (except for contractual staff, “discretionary positions” or non-competitive hiring)

• 90% out of 45 000 recruitments every year are based on competitive examination

• Since 2009, the number of State civil servants is decreasing:retirement increase (“oldies boom”) and non-replacement policies


• Differenttypesofcompetitiveexaminations,e.g.:ü Externalcompetition:nationalityanddegreecriteriaü Internalcompetition:forpublic-sectoremployeesseekingpromotion

ü Specialcompetition:forpeoplewithprivateprofessionalexperience

• Civilservantsstarttheircareerastrainees for1or2years

• Traininggenerallytakesplaceinaspecializedserviceschoolortraininginstituteforcivilservants (closelinkbetweenrecruitmentandtrainingsystem)

• Afterthisprobationandon-the-jobtrainingperiod,theyaregrantedconfirmation (“titularisation”)providedtheyproperlyfulfilledtheirduties

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2.5. Recruitment of State civil servants (2/2)

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• Civilservantshavetherighttolifelonglearning

• Adevelopednetworkoftrainingstructures:– About70publicserviceschools,overallabout400 trainingsitesthat

specializeincivilservantstraining,e.g.:ü ENA (Nationalschoolofgovernment)ü 5IRA (Regionalschoolsofgovernment)ü Customsschoolsü Publicfinancesschoolü PublicHealthschoolü Nationalcentreforlocalcivilservice

– Dedicatedministerialtrainingservices

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2.6. Training (1/2)


• Theseinstitutionsandserviceshaveatwofoldmission:Ø Ensuringinductiontrainingforthesuccessfulcandidates:practical

andprofessionalskillsandworkingmethodsneededforvariouspositions

Ø Organizingongoingtrainingandlifelonglearningforcivilservants

• Trainingexpenditure:2.7billioneuros(2013)Ø 2/3 ofwhichspentforongoing trainingandlifelonglearning(6,7%of

payroll)

• Around45000peopleworkinthepublicservicetrainingsystem

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2.6. Training (2/2)

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• Civilserviceremunerationencompasses2parts:abasicsalaryandanallowances/bonusespart

• Basic/index-related salary:– Definedbythelevelofentryandseniority,accordingtothegrids ofeach

corps– Eachgridindicatesanumberofindexpointsforeachlevelwithinagrade

• Allowances/bonusespart:– Bonusespartreflectsthespecificconstraintsofthejoborovertime work– Alsodependsonthemerit,theengagement andtheexpertise ofeachagent

• Theaveragepaystructureis67%basesalary– 33%bonus

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2.7. Remuneration

SUMMARY

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DGAFPwascreatedin1945 aspartofavast reformofStateadministrationv Ordinanceof9October1945establishes:

ü “Ecole nationale d’administration (ENA)”(Nationalschoolofgovernment)ü andaDirectionforcivilservice,whichbecameDGAFPin1959

• Staffing:

Headcount:around150

Averageageofstaff:43 Percentageofwomen:59%

PercentageofstaffbelongingtoAcategory:74%

3.TheDirectorate GeneralforPublicAdministrationandCivilService

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3.1. Key features (1/2)

• Modeofoperations

– DGAFPisa“headquarters”unit,asmallorganizationwithhighlyqualifiedstaff§ Itdoesnothaveitsownlocalservices§ Butreliessince2009on“inter-ministerialregionalplatformsforHR

managementbacking”tocarryoutandimplementitspoliciesandactions

– Doesnodirectmanagement:formulatespolicies andmonitors theirimplementationbyministerialdepartments

– Positioningitselfas“HRDirectorate”fortheStateasawhole


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3.1. Key features (2/2)

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• ResponsibleforimplementingandupdatingthelegalframeworkoftheStatecivilservice,includingintegritypolicyenforcementØ EnsurespolicycoordinationasregardsLocalandHospitalcivilservice

branches

• Leading“socialdialogue”withthetradeunionsatthenationallevel,whichincludesinteractionson:Ø Basesalary(indexpoint)andallowance(bonus),workingtimeØ Socialactionprograms,socialprotection,health,safetyand

prevention

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3.2. Missions (1/2)


• OverseeinggeneralrecruitmentandtrainingpoliciesofthecivilserviceØ SupervisoryauthorityoverENAandthe5IRA

• FormulatingandpropagatingHRmanagementpolicy &professionalizingHRactors:Ø HRforwardplanning,jobsandskillsdirectories,HRinformation

systems, careerpaths

• Promotingemployers’responsibilitythroughexemplarity,e.g.:Ø genderequalityØ diversityØ qualityofworklife

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3.2. Missions (2/2)

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3.3. Organizational chart

SUMMARY

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4.Current challenges

• Demographicevolution– Retirementincreasingandnon-replacementpolicies– Difficultiesforrecruitingforcertainkindofjobs– Longerworklife:issuesofongoingemployability

• Legalandinstitutionalchanges– 2015law:NewterritorialorganizationoftheRepublic– Localstateservicereorganization,decentralizationofStatedecision

process,inter-ministerialpooling particularlyforsupportfunctions

• Financialconstraints– Impactofthe2008financialcrisisoneconomicgrowthandpublic

finances– Publicfinanceslegalframework:accountability forHRpoliciesand

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4.1. Structural issues in the public sector… (1/2)


• Professionalandmanagerialevolution/Statemissionsevolution– Transformationofexistingjobs– Newjobsandnewskills

• Digitaltransformation– Changingworkmethods:demandforbeingmorereactive– Dematerialization– Breakingtraditionalworkorganization:projectmodevs.hierarchical

mode

• Europeancontext– Constraininglegalframeworkonnationalpolicydesign:e.g.EU

directivesonworkconditions,professionalqualifications– NeedforcoordinationbetweenEUcountries

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4.1. Structural issues in the public sector… (2/2)

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• Economicconstraints+HRmodernization =keychallenges totackle,e.g.:– AdaptHRresourcestoneedsandexpectations:strengthen

HRforwardplanning– Haveabetterviewofresults andeffectiveness– SimplificationofHRandadministrativeprocesses,ICToptimization– Encouragemobility ofcivilservants– Addressissueofhighrecruitment&trainingcosts

• Theprocessofmonitoringreformsshouldinvolveclosercollaborationwithcivilservantsandwiththefinalemployingstructures

TheStatemuststandasaresponsibleemployer and…needs toshowexemplarity

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4.2. … imply solutions to find for the civil service

SUMMARY

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5.Recent achievements

• Axis#1:Strengthencivilserviceforanimprovedpublicaction

– Adaptthelegalframeworktotheevolutionsofsociety§ Diverse andtransparent recruitment§ Consolidatecivilserviceunity§ Simplifythestatutoryarchitecturewithineachbranch

– Betteraddresspublicserviceneeds§ Fostervoluntarymobilitytoproposevariedprofessionalpaths§ Qualityofpublicserviceonthewholeterritory§ Recognizeskillsandqualifications

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5.1. Enhancing professional paths, careers and remunerations (1/2)


• Axis#2:Improveremunerationpolicyinthecivilservice

– Harmonize careersandremunerationsinthethreebranches§ Designamoreappropriatebalancebetweenbasic/index-related

salaryandallowances/bonusespart§ Harmonizecareerprogression

– Improve civilservantsremuneration§ Revaluategrids

– Remunerationnegotiations§ Revaluatetheindexpointvalue

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5.1. Enhancing professional paths, careers and remunerations (2/2)

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5.2. Ethics and integrity in public administration (1/3)

• Astructuralframeworkdesignedtopromote ethicsandintegritywithinpublicadministration

Merit-basedrecruitmentprocess

Careersystem Balancebetweenrightsandduties

Distinctionbetween“politicalpositions”and“administrativejobs”

Restrictiononprivateactivities Protectionofwhistleblowers

Disciplinarysanctions Controlbycourts

• Preventivemeasures:– strengthenethicalperformance– reduce potentialcasesofcorruption

Charterofethics Declarationofinterest/assetsforspecificjobs

Ethicsadviser Initialandongoingtraining Managers’play

Specificbodies:HighAuthorityfortransparencyinpubliclife

EthicsCommission


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• On20April2016,anewlawwasadoptedinordertostrengthenethics,rightsandobligationsofcivilservants– Toadapttheethicalframeworktotheevolutionofoursociety– Whilereaffirmingthevalidityoftheprincipleof“laïcité”(secularism)

• e-learningmoduleonethicsandintegrity:

follow“Déonto”onhttp://www.fonction-publique.gouv.fr


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SUMMARY

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6.Mainupcoming projects

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6.1. Being a responsible employer (1/3)

CivilserviceisthefirstemployerinvolumeinFrance:thisentailstostimulatesocialcohesionandtorepresentsocietyasawhole

Article6ofthe1789Declaration:“Allcitizens(…)areequallyadmissibletoallpublicdignities,placesandemployments,accordingtotheircapacity andwithoutdistinctionotherthanthatof

theirvirtues andoftheirtalents.”

• Genderequality– Whatistoadress:

§ 62%ofcivilservantsarewomenandtheirpay is12%inferiortomen’s(19%intheprivatesector)§ Jobspecializationisstillpregnantandwomenareunder-representedwithinsuperior

management positions(only33%insuperiorandtopmanagementpositions)– Whatisdone:

§ 2013Agreementongenderequalityinthecivilservice§ Quantifiedtarget ofbalancedgenderrepresentationwithine.g.superiormanagement

positionsandcompetitiveexaminationjuries(40%in2017)§ Supervisionoftheimplementationbyministerialdepartments:EqualityLabel


• Diversity– Whatistoaddress:

§ 70%ofcivilservantsarechildrenofcivilservants:socialreproduction– Whatisdone:

§ 2013Chartonpromotingequalityandcombatingdiscriminationsinthecivilservice§ Supervisionofministerialdepartmentspolicies:DiversityLabel§ Specialpolicytowardsyoungpeoplefromdisadvantagedsocialcondition:

• Dedicatedpreparatoryclasses tocompetitiveexaminations• Pre-contractualrecruitment (priortoconfirmation):Ccategory• Apprenticeship toaccompanyfuturecandidatestoAandBcategoriescompetitions

§ Generalrevisionofcompetitiveexaminations:moreprofessionalandskills-orientedtesting

§ Discriminationscombatingandsecularismpoliciesarepartoftrainingforsuccessfulcandidatestocompetitiveexaminations

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• Worklifequality– Agreementproject:addressingindividualizationoftaskstopromoteacollective project– Issues: § Professionalandpersonallifeconciliation

§ ImpactofICTonpersonallife:towardsarightto“disconnection”§ Coordinationofinter-relatedissues:e.g.workorganization,individual

participation,changemanagement,professionalrecognition,careerpathsdesign

– Teleworking experimentationandimplementation

• Healthandsafetyatwork– Psycho-social risks

§ Strengtheningtraining system,meansofmembersofdedicatedcommitteesandworkmedicalpreventionstaff

– Musculoskeletal disorders§ Preventionguideofthoserisks,includingmethodologicadvicetowards

employers39



• Longerworklife entailstoofferavarietyoffunctionsandpositionsallalongcareers:– Attractyoungtalentsandrareskills– Keepfuellingstaffmotivationandskillsdevelopmentallalongtheirprofessionalcareer– Optimizeskillsandcompetencesallocationinsidethepublicservice

• Policiesandtoolstofosterprofessionalpathsdevelopment:– Betterknowledgeofexistingjobsandskillsandneeds:

§ HRforwardplanning§ Inter-ministerialandministerialjobsdirectories§ Skillsdirectory§ Nationalandregionalinter-ministerialonlinejobexchangeplatforms

– Facilitatemobilitywithineachandall3civilservicebranches:§ Statutoryflexibility§ Commitmentofrecruiterstoamobilitycharter§ Networkofcareerandmobilityadvisors,career/skillsassessment

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6.2. Promoting professional paths development

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• Betterknowourmanagerstoplacethemmorestrategicallyandefficiently– Building“managerialplans”– Implementareviewofmanagers

• Makeourmanagersmoreagile:– Moretrainingtomanagerialtechniques

§ Draftingaguideforsupervisingstaff§ “HRmanagementschool”§ Trainingtoassessmentinterviews,tothebestdistributionofbonusesenvelopes§ Newassessmentproceduresdedicatedtomanagers:180° /360° assessment

– Managerialdevolution§ Placemanagerialdecisionprocessesattheappropriatehierarchicallevel§ Makemanagersactualactorsoftheprofessionaldevelopmentoftheirteams§ Developingthepracticeofengagementlettersassignedtomanagers

• Goal:todisseminateancommoninter-ministerialmanagementculture

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6.3. Empowering managers


• DGAFPismovingtowardsstrengtheningitscivilservicegovernancerole– Why?

§ HRmanagementisnotsufficientlyintegratedintostrategicandoperationalchallenges§ HRdataareoftenscattered,insufficientlydetailedandnotstructuredenough§ EmpoweringmanagersonHRissuesrequiresanewpositioning

– How?§ ReinforcetheHRfunction:

• Moreefficiencyandbetterarticulationwithstrategicandoperationalfunctions• Morestrategy-orientedtoaccompanychangeprocesses

§ DiversifyDGAFPmissions:• Keepingitstraditionallegalmissions:statutesandregulations,socialdialogue• Enhancingitsnewstrategicalsteeringmissions:

ü Ensurecoherence ofHRpoliciesü Accompany themodernizationofHRmanagement(tools,methods)ü Spreadinformationandknowledgeonpublicemployment

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6.4. Becoming “State HR Directorate” (1/2)

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• Embodyingthenewgovernanceofcivilservicewithbroaderandmoreeffectivedevices– AnnualHRforwardplanningconferences:knowministerialHRpolicies,ensure

theircoherencewithStateHRstrategy,sharebestpractices– HRdashboardsandannualsocialreport:monitorsignificantministerialindicators– Seminars forHRheaddirectorsanddeputydirectors:monthlymeetingtoshare

news,trendsandbestpractices– Thematicsteeringcommittees:recruitment,training– Thematicnetworks:recruitment,forwardplanning,training,diversity,social

action,mobility– Statistics onpublicemploymentandHRpolicies– Socialagenda:talksandnegotiationswithtradeunionsonallHRissues

(e.g.professionalpaths,worktime,worklifequality,equality,training)

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6.4. Becoming “State HR Directorate” (2/2)

Thank you foryour attention!

MINISTÈRE DE LA FONCTION PUBLIQUE

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