EPPGG career

1. EPPGG career Proposals for improvement January 2009

2. 1. Introduction

3. Contents EPPGG career V2.0

4. Purpose of the study 1.1 • To clarify the role, functions and profile of the EPPGG career, and • develop proposals for improving its effectiveness and management; • taking account of the context within which such improvements would have to be implemented EPPGG career V2.0

5. Contributors 1.2 Ministry of Planning, Budgeting & Management (MP) Working Group • Roger Cardosa Pires da Rosa • Luciano Rodrigues Maia Pinto • Patricia Vieira da Costa • Samuel Antunes Antero • Alexandre Kalil • Adriano Moraes Ferreira • Wanda Cunha • Aleksandra Santos • Diana Goldsworthy, facilitator Other contributors • Marcelo Viana, Secretary SEGES • Luiz Alberto dos Santos, Deputy Minister for Analysis & Following Up Government Policies, Civil Cabinet • Amarildo Baesso, Deputy Secretary, SPI • ANESP representatives EPPGG career V2.0

6. Context: general 1.3 • Legalistic culture – tendency to inflexibility - but legal framework is patchy, e.g. deployment/mobility policy is ill-defined • Short-termism: reluctance at political levels to address strategic/long-term issues • Appointments are personalised, politicised, although the FCPE proposal to reserve a proportion of DAS positions for civil servants should help to provide better professional career paths • Careers are virtually watertight: career approach was designed to professionalise the public service; unlikely to be abandoned any time soon • Weak manpower planning processes • Lack of professional management function & skills throughout government • Radical change is difficult at this point in the political cycle (final years of a 2-term Presidency) EPPGG career V2.0

7. Context: EPPGG-specific 1.3 • Constant pressure from Ministries & institutions for ‘free, flexible and well-qualified’ EPPGG personnel, but they are often used inappropriately • Pressure from Ministries for sector policy specialists – if not EPPGG then by establishing new careers. Absorbing specialists working on temporary contracts would help, but changes to recruitment & selection must pass the objectivity principle • MP legally responsible for EPPGG management but there are political constraints on its ability to act • There is a quasi market for DAS positions which works to some extent • EPPGG designed (and mainly perceived) as an elite career, but has suffered ups and downs in its relatively short existence • EPPGG uniquely: • Occupies positions throughout government and has more opportunity than other careers for moving between government institutions • Provides the link between political and administrative levels of government • Is mandated to take a strategic, global view of government, and to link policy, resource management and institutional aspects of government business • EPPGG: • has the most broadly defined and (some argue) least well-defined role • Is one of the most well-qualified and most diverse group • Altho’ EPPGG has a wide remit, previous experience & specialisms tend to determine the jobs individuals do (and therefore their career paths) EPPGG career V2.0

8. 2. EPPGG Career definition

9. Proposed Role 2.1 EPPGG should remain a generalist career, focused on: Public policy formulation • To facilitate and support policy decision-making by ensuring that decision-makers receive well-formulated policy proposals and advice in all sectors of government Public Policy implementation • To support decision-makers by ensuring policies are implemented efficiently, and are subsequently monitored and evaluated Government efficiency • To improve the organisation and functioning of the government machine at macro and individual institution level EPPGG career V2.0

10. Overview of public policy functions 2.2 EPPGG is the ‘custodian’ within government of the public policy process. It performs this role by undertaking, facilitating or advising on activities throughout the policy cycle across all sectors of government Policy recommendations and analysis Problem Analysis Policy Selection Policy cycle Issue identification Political goals Implementation Planning Evaluation Implementation Monitoring EPPGG career V2.0

11. Functions: ‘custodian’ of the public policy cycle process 2.2 • Develop and communicate guidelines on how to operate the public policy cycle process • Ensure that the public policy cycle process is implemented effectively throughout government • Review and continuously improve the public policy cycle guidelines EPPGG career V2.0

12. Policy recommendations and analysis Problem Analysis Policy Selection Policy cycle Issues & priorities Political goals Functions: public policy formulation 2.2 • Issues • Identify issues • Promote & coordinate effective identification of issues by other role players • Advise & guide other role players on how to identify issues • Problem analysis • Analyse problems • Facilitate & support effective problem analysis by other role players • Advise and guide other role players on how to analyse problems • Public policy recommendations & analysis • Develop and assess public policy recommendations • Facilitate & support development & assessment of public policy recommendations by other role players • Advise and guide other role players on how to develop & assess public policy recommendations • Public policy formulation & selection • Prepare and present written and oral proposals for decision-makers’ approval • Facilitate and support presentation of written and oral proposals by other role players • Advise and guide other role players on preparing written and oral policy proposals EPPGG career V2.0

13. Functions: policy implementation 2.2 Policy cycle • Planning & budgeting • Prepare strategic plans (linking outcomes with resources) to implement selected public policies • Facilitate & coordinate preparation of public policy implementation plans and budgets by other role players • Advise other role players on preparation of public policy implementation plans and budgets • Implementation • Manage the implementation of selected public policies • Facilitate and coordinate the management of public policy implementation by other role players • Advise other role players on management of public policy implementation Implementation Planning Implementation EPPGG career V2.0

14. Functions: policy implementation ctd. 2.2 Policy cycle • Monitoring • Manage and ensure monitoring and reporting on implementation of selected public policies • Facilitate and coordinate the monitoring & reporting on public policy implementation by other role players • Advise and guide other role players on managing, monitoring & reporting on public policy implementation • Evaluation • Evaluate, or manage evaluation of any or all aspects of the public policy and its implementation • Facilitate and support evaluation of a public policy by other role players • Advise and guide other role players on public policy evaluation Evaluation Monitoring EPPGG career V2.0

15. Functions: Improving the Government machine 2.2 Government improvement initiatives • Initiate proposals for improving efficiency and effectiveness of government at macro and individual institutional levels • Manage implementation of government improvement initiatives at macro and individual institutional level Institutional development • Develop institutional architecture for government, and provide guidelines and expert advice on its application at macro and individual institution level • Manage implementation of institutional architecture at macro and individual institution level Management efficiency • Develop and provide guidance on tools and techniques for improving management efficiency and effectiveness • Develop and manage implementation of programs to improve management efficiency at macro and individual institution level EPPGG career V2.0

16. Functions: Improving the Government machine ctd. 2.2 Service excellence • Develop and provide guidance on implementing service excellence models and techniques • Develop and manage implementation of programs to improve service excellence at macro and individual institution level Administrative systems • Review and advise on improving cross-cutting and institution-specific administrative processes • Develop and manage implementation of programs to improve administrative processes Knowledge management • Develop proposals for, and support implementation of improved systems and techniques for collecting, organising, sharing, disseminating and updating knowledge within government EPPGG career V2.0

17. Profile: Knowledge, skills & experience 2.3 The profile depicts the EPPGG career as a whole, not necessarily each individual member Knowledge • Government: international and Brazil • Management, including resource mgt., HR mgt., project management • Public policy cycle • Strategic planning • Economics • Public Law • Political science • Sector specific public policy Skills & experience • Leadership & team management • Resource mgt., HR mgt., project management • Critical thinking & analytical skills • Communication: oral & written • Negotiating, problem solving • Effective interaction with political levels • Languages: English, Spanish • Sector specific experience EPPGG career V2.0

18. Profile: aptitudes 2.3 • Strategic vision; ‘big thinking’; global viewpoint; innovative thinking • Proactive: can make things happen • Capacity to learn rapidly, absorb & synthesise information • Team-worker; net-worker • Outgoing, communicative • Trouble-shooter; problem solver • Ethical behaviour EPPGG career V2.0

19. Role, functions and profile: recommendations 2.4 • Prepare guidelines on the EPPGG role, functions and guidelines • Actively communicate the guidelines to • EPPGG members • Decision-makers in Ministries & institutions (e.g. using tools such as the Law 9625 Consultative Committee) • Use the guidelines to: • Define EPPGG jobs more precisely, and support development of manpower planning processes • Improve and modernise recruitment examination, initial education and professional development courses EPPGG career V2.0

20. 3. EPPGG Human Resources Management

21. Recruitment & selection 3.1 Issues • Current arrangements are fair & open, but in need of improvement because: • Recruitment is not based on an objective needs assessment (nos. & skills) • The entrance examination only tests knowledge • There are no tests for skills and aptitudes • The value of previous experience is inadequately assessed • Periodic contests can mean the process (including initial education) can take up to 18 months • The arrangements are unsuitable to recruit sector policy experts working on temporary contracts, whose skills government wishes to attract & retain Recommendations Short-term • Current recruitment test • Improve the content & relevance to better reflect the current EPPGG profile • Add oral and practical tests for skills and aptitudes • Develop more meaningful ways to assess experience • Introduce new professional entry test specifically designed for sector policy experts Medium-term • Consider establishing a common core exam for management cycle careers at federal and state level, with add-on modules for specific careers and/or sector-specific requirements EPPGG career V2.0

22. Initial education 3.2 Issues • Education Is wholly classroom-based: does not use modern adult education methodologies • Does not cover skills and aptitudes, and seems to duplicate the entrance exam in some areas • Is integral to the recruitment & selection process: “one size fits all” takes no account of differences between new graduates and those with previous experience • Ongoing differences of view among key role players about its purpose, content, length and methodology Recommendations Short-term Improve the current course: • Identify the competencies required at the end of the induction period, and align the course outcomes & content to these • Develop wider range of methodologies (e.g. on-the-job training, work placements, mentoring/coaching, distance learning, networking events and seminars) • Introduce additional sector-specific induction modules or external courses (funded by Ministries) for recruits who require specialist sector knowledge before deployment • Monitor probation period more closely Medium-term • Separate induction training from recruitment, and develop a modular approach, tailored to the needs of individual recruits, and Ministries EPPGG career V2.0

23. Professional development & promotion 3.3 Issues • The only incentive for professional development is (has been) salary enhancement through professional levels: there is no link with managerial (DAS) promotion • 4 professional levels, but competencies at each level are not defined • A broad scope of professional courses but not linked to professional levels: quantity rather than content of study determines movement from one kevel to another • Individuals select their courses and therefore their career paths, but receive no formal counselling or direction • No further professional development once ‘S’ level is reached Recommendations Short-term • Define competencies at each professional level (based on EPPGG profile), and redesign professional development courses to align with these • Develop a new Senior Professional Development Program for ‘S’ level • Ensure that all future courses make maximum use of modern training & development methodologies (including on-the-job training; placements & secondments; comparative studies (in Brazil and overseas); field studies; distance learning etc) Medium-term Contribute an EPPGG perspective to the development of FCPE (including consideration of desirability & feasibility of linking professional and managerial promotion) EPPGG career V2.0

24. Deployment & mobility 3.4 3.4 Issues • Initial deployment of EPPGG personnel is by MP, but thereafter a quasi-market operates (relatively successfully for DAS positions; less so for others) • MP is legally responsible for approving moves from one Ministry to another, but does not always exercise its influence over mobility • There is a legal minimum of 2 years tenure in a job, but no maximum: in practice people can move in less than 2 years, and remain indefinitely Recommendations • Short-term • Periodically (+/- 4 years) review EPPGG personnel assignments, and encourage/support re-deployment as appropriate • Identify priority areas for deployment and skill requirements, and encourage career moves accordingly • Medium-term Incorporate mobility into improved manpower planning & career management arrangements EPPGG career V2.0

25. Manpower planning 3.5 Issues • Manpower planning is almost non-existent: • No process for systematically, regularly and accurately assessing demand (nos. and skills) • No process for matching people to jobs (including no job descriptions) • No manpower planning tools, e.g. EPPGG personnel database, succession planning process Recommendations • Short-term: first steps to manpower planning • Assess broadly-defined demand for EPPGG personnel in Ministries and allocate ceiling nos. accordingly • Communicate EPPGG’s role, functions & profile to Ministries, to encourage informed bidding for EPPGG personnel • Identify and communicate priority areas for EPPGG appointments (in accordance with Govt policy imperatives and Ministries’ requirements), and assign EPPGG personnel accordingly • Design and pilot job descriptions for EPPGG personnel • Create an EPPGG database • Medium-term: full-fledged manpower planning • Design & implement a full-fledged manpower planning process in conjunction with other management cycle careers EPPGG career V2.0

26. Performance management 3.6 Issues • Promotion and career progression are not related to performance • The previous performance management system has lapsed but has not yet been replaced by anything else Recommendations • Identify the requirements for an EPPGG performance management system • Consider whether EPPGG requirements can be incorporated into a government-wide system, or whether there is a need for a stand-alone EPPGG system EPPGG career V2.0

27. Career management 3.7 Issues • Incomplete data about EPPGG personnel and the positions they occupy • MP’s role is focused more on administration than career management • No oversight of probation or subsequent performance • Not enough care for individuals (counselling, career pathing) Recommendations • Explore and develop ways to develop a dialogue going with EPPGG members and Ministries (including resuscitating the Law 9625 Consultative Committee) • Strengthen capacity within Ministry of Planning for career management (people, structure and tools), e.g. • designated contact points/career managers • regular career development interviews • Creation of an EPPGG jobs database (to promote & facilitate a better regulated jobs market) • Develop and strengthen the EPPGG network (see slide 4.2) EPPGG career V2.0

28. 4. Other issues

29. EPPGG/APO merger 4.1 • Benefits • Increased career opportunities for APO • Lower career management overheads • Disadvantages • Only a minor part of APO’s role overlaps with EPPGG’s • Most APO personnel would be unable to fill EPPGG positions • EPPGG personnel would not wish to undertake APO functions Recommendation • The careers should remain separate at this stage. (Further consideration could be given if there were to be a wider review of the career system) EPPGG career V2.0

30. EPPGG Network 4.2 • In order to support and promote effective formulation and implementation of government policies, and improved government management, SEGES should establish networking arrangements to: • Inform EPPGG members of career management matters • Share information and best practice in Brazil and internationally relating to: • Public policy formulation & implementation • Public management • Promote corporate values and ethos among EPPGG members • Networking arrangements could include: • Electronic & printed publications on professional topics • A Career newsletter • Seminars, workshops and guest speakers • Consultation exercises and surveys • A website EPPGG career V2.0

31. EPPGG units in Ministries 4.3 Proposal is to establish units within Ministries to undertake EPPGG functions, which would be filled only by EPPGG personnel • Benefits • Clear ring-fencing of EPPGG work • Provides assured positions for EPPGG personnel • Provides outposts through which centrally-initiated programs for management and administrative improvement can be implemented • Disadvantages • Neither the functions nor the staffing of such units could be controlled by Ministry of Planning, so there could be no guarantee that they would only be used for EPPGG work, or filled by EPPGG personnel • Ministries would not welcome the proposal Recommendation • Do not try to impose the idea, but support it where Ministries wish to try it • Promote improved institutional arrangements for policy management and government improvement in dialogue with Ministries about manpower planning EPPGG career V2.0

32. Regulatory framework for EPPGG career 4.4 • The EPPGG career is governed by various regulations. These should be systematically reviewed to assess whether they constitute an adequate regulatory framework for future development of the EPPGG career, identifying • Gaps • Anomalies • Inconsistencies • …and any obstacles to progress • Specifically, Law 9625 empowers Ministry of Planning to manage the EPPGG (and other) careers, and allows for a consultative committee of representatives from EPPGG user-institutions. The committee should be established forthwith and actively used to engage with Ministries and seek their cooperation to implement EPPGG career improvements EPPGG career V2.0

33. 5. Next Steps

34. Next steps 5 • The recommendations are interlinked. If approved, they should be tackled as a package, rather than piecemeal. • A program plan should be developed by SEGES: • Setting out the practical steps to be taken, their sequence and priority • Assigning the various tasks to designated individuals • Setting target dates for completion • A program manager should be appointed to lead the work and report on progress to the Secretary EPPGG career V2.0