CARIFORUM/EDF Project 8ACP/RCA 005 STRATEGIC PLANNING IN PUBLIC SERVICES CASE REPORT

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1 CARIBBEAN CENTRE FOR DEVELOPMENT ADMINISTRATION (CARICAD) CARIFORUM/EDF Project 8ACP/RCA 005 STRATEGIC PLANNING IN PUBLIC SERVICES CASE REPORT The application of Strategic Planning in the Office of the Chief Personnel Officer, Trinidad and Tobago A PROJECT OF CARFIORUM FUNDED UNDER THE 8 TH EUROPEAN DEVELOPMENT FUND

2 ACKNOWLEDGEMENT The CARIFORUM/EDF Project on Strategic Planning in Public Services is a three year project developed on behalf of the fifteen (15) independent countries in the Caribbean region 1, known as the Forum of the Caribbean ACP States (CARIFORUM.) to support the enhancement and strengthening of institutional capacity within public service organisations for the application of strategic planning and management in order to enhance and improve the formulation, coordination and implementation of development policies and programmes The Project is funded by the 8 th European Development Fund (FUND) for Regional Co-operation in the Caribbean and is managed by the European Commission Delegation in Barbados and the CARIFORUM Secretariat in Guyana. The Project is implemented by the Caribbean Centre for Development Administration (CARICAD). This Report was prepared by Mrs. Margaret Richardson of Trinidad and Tobago. The opinions expressed in the Report are those of the Consultant, and do not necessarily reflect the views of CARICAD, the European Commission Delegation, CARIFORUM, or any particular Government. 1 CARIFORUM Member States: Antigua and Barbuda, The Bahamas, Barbados, Belize, Dominica, Grenada, Guyana, Haiti, Jamaica, Saint Kitts and Nevis, Saint Lucia, Saint Vincent and the Grenadines, Suriname and Trinidad and Tobago. ii

3 TABLE OF CONTENTS Acknowledgement Executive Summary Introduction Terms of Reference Format of study Governmental policy Background to policy Strategic Planning in the Personnel Department Funding Stakeholders Level of participation Implementation Approach to the strategic planning activity Time frame for the activity Strategic Plan of the Personnel Department Achieving results and evaluating progress Measurement of outcomes Benefits Unexpected outcomes Use and impact of strategic planning in the Personnel Department Communicating the Plan Future of the project and its benefits Costs of strategic planning Lessons learnt Next steps Recommended criteria for a common approach to Strategic Planning in the Public Service of Trinidad and Tobago Page i Conclusion 18 Appendices 19 iii

4 CASE REPORT The application of Strategic Planning in the Personnel Department (Office of the Chief Personnel Officer), Trinidad and Tobago Executive Summary The Personnel Department (Office of the Chief Personnel Officer) Trinidad and Tobago commenced a strategic planning exercise in The objective of the exercise, which began in January 2001, was to produce a three-year Strategic Plan that would identify and describe the set of programmes and projects in which the Department would be engaged during the life of the Plan. The exercise was set within an environment of public sector and national transformation. In addition to its traditional role of managing industrial relations issues in the Public Service, the Personnel Department had been entrusted with responsibility for directing change in the Public Service in the area of human resource management and had set itself the task of transforming its own structure and operations in order to provide the leadership and support that line agencies required to bring about their own transformation. This led to a re-examination of the Department s primary role and functions and the technologies it utilised to achieve its objectives. In other words, the Personnel Department needed to take whatever action was necessary to stay relevant. The Personnel Department is a conservative organisation, committed to efficiency in the performance of its functions. The completion of a Strategic Plan was viewed as a first step in ensuring that, as a central Human Resource Agency, the Department was poised to provide the services that line agencies required. In embarking on the process of strategic planning, the Personnel Department utilised in-house resources: personnel who had the advantage of

5 knowing, first hand, the people and the culture of the organisation and could easily garner the trust of internal stakeholders. The small team of officers designed and implemented an initial strategic planning workshop with participants drawn from the Department s leadership structure. In an iterative process, inter-divisional meetings were planned to obtain contributions from every member of staff and the information thus generated formed the basis for the documentation that drove the process. The CARIFORUM-sponsored Regional Workshop on Strategic Planning took place during the period when the first draft of the Plan was being prepared, and key information gleaned from the activity was imported into the Personnel Department s model to enhance the Department s capacity to produce an output that would achieve the long-term objective. It was not the first time that the Personnel Department had attempted to produce a Strategic Plan, nor was the idea of total staff participation new. What was novel was the iterative approach which, though a time-consuming and often frustrating experience, produced a result that was ultimately satisfying and which sought to adhere faithfully to the suggestions and recommendations made by staff members at all levels of the organisation. The process began with workshops in which top management and senior supervisors of the Department provided the preliminary inputs to the Plan. Subsequent meetings at the division level added and refined information which became part of the final document. The Personnel Department s Strategic Plan was presented in a project format that displayed, at a glance, a listing of: primary and functional sub-objectives; performance goals; time frames for implementation; action plans; responsibility centres; ii

6 required resources; and intended impact/outcomes. The format (see Appendix III) made it easy to identify delays in the achievement of stated objectives as it provided a road map to implementation. Following the launch of the Strategic Plan, every Division identified as a responsibility centre was required to prepare an implementation plan for the coming year, identifying the steps and strategies planned for achieving the outcomes listed. Ownership of the preparatory process, subsequent implementation and follow-up activities are critical for success. Ownership was provided by the Chief Personnel Officer. Also important is the provision of resources dedicated to monitoring and reporting on the performance of programmes and projects. The resources came in the form of two in-house teams: the Strategic Plan Monitoring Team (SPMT) and the Process Improvement Team (PIT), both comprising representatives from all Divisions of the Personnel Department. Both teams meet monthly under the leadership of the Deputy Chief Personnel Officer and formulate plans to bring effectiveness to the Strategic Plan implementation process. The benefits of strategic planning to the Personnel Department cannot be overstated. At the operational level, programme planning has become more focussed and consistent. At the financial level, justification for requesting funding for programmes and projects is more credible so that the Ministry of Finance provides funds more readily. At the personal and professional levels, new skills have been learnt that can be applied to a range of other functions; attitudes and approaches to strategic and long-term planning have changed to create employees who are better equipped to manage their own activities and support the growth and development of the organisation. iii

7 At the same time, however, there were flaws in the process that slowed implementation. Assumptions were made that adequate staffing would be available; this did not materialise, as plans to acquire additional accommodation fell through. Another assumption was that all leaders in the organisation were in agreement with the planned direction. This erroneous assumption led to the Department s devoting inadequate time and resources building commitment to the implementation of critical activities. The Department must now begin to review its direction in light of the fact that the change in political administration has brought with it a new philosophy and different time horizons. Preparations for the new Strategic Plan must begin now. The Personnel Department has learnt several lessons from this experience; primary among them is the need to develop strategies and instruments to measure each phase of the process, and to plan for resistance from core groups. The Department has also learnt the value of dedicating resources exclusively to the exercise from planning through documentation to follow-up and evaluation. iv

8 CASE REPORT The application of Strategic Planning in the Personnel Department (Office of the Chief Personnel Officer), Trinidad and Tobago Introduction The traditional role of the Personnel Department is enshrined in legislation. 2 The Department s responsibilities as stated in the Civil Service Act are: 1. to maintain the classification of the Civil Service and to keep under review the remuneration payable to civil servants; 2. to administer the general regulations respecting the Civil Service; 3. to provide for and establish procedures for consultation and negotiation between the Personnel Department and an appropriate association or associations in respect of: i. the classification of offices; ii. any grievances; iii. remuneration; and iv. the terms and conditions of employment. For most of its existence, the Department maintained a structure that supported the discharge of those responsibilities and a cadre of employees skilled in the functions. The Department s mandate was for the management and administration of Industrial Relations, primarily engaging in negotiations with recognised Associations/Unions representing Public Officers. In 1997, Cabinet approved a new organisational structure for the Department, designed to allow it to function as a Central Human Resource Management Agency. The new role involved a transition from the responsibilities listed above to those related to the formulation of human resource policy and the provision of advisory, consultative and monitoring functions in respect of the Human Resource Management Units being established in line agencies throughout the Public Service. The responsibilities associated with this new role are as follows: 2 For further information, see the Civil Service Act, Chapter 23:01 of the Laws of the Republic of Trinidad and Tobago.

9 To formulate policy in all areas of human resource management, including those which had not been addressed previously, such as Human Resource Planning, Succession Planning and Career Planning. To establish/review the legal and regulatory framework for human resource management in the Public Service. To provide advisory and consultative services in the sphere of human resource management to line agencies. To monitor and audit the practice of human resource management by the human resource management units established in line agencies. Carrying out the range of new functions required a shift in thinking at the strategic level and the development of new technologies and competencies to effect operational effectiveness. Terms of Reference In 2001, one of a series of regional training activities, sponsored by CARICAD under its Strategic Planning in Public Services Project, was conducted in Trinidad and Tobago to provide participants, drawn from the public service agencies of seven territories, with the knowledge and basic tools needed for the development of strategic plans in their Ministries/Departments. The specific objectives of the training workshop were: 1. to review and examine major principles in the area of strategic planning; 2. to provide hands-on experience with the various components of strategic planning; 3. to explore the benefits and consequences of strategic planning methods and systems applied to public sector institutions; 2

10 4. to identify critical success factors which ought to be considered when promoting the adoption of strategic planning methods in public sector institutions/agencies; 5. to present relevant experiences on the impact of strategic planning methods on organisation and individual performance of public sector and/or private sector organisations. At the time of the workshop, the Personnel Department had already embarked on the exercise of developing a strategic plan for the agency. New information and different areas of focus gleaned from the training were incorporated into the activity and complemented the end product. This case study outlines the Personnel Department s strategic planning process, taking into account the impact of the training provided by CARICAD, and examining the successes and challenges of the exercise. Format of the study This case study will discuss the factors that led the Personnel Department to embark on a course of strategic planning and the activities that culminated in the production of a Strategic Plan encompassing a set of programmes for whose accomplishment Divisions of the Department had responsibility. Government s policy In 1996, Cabinet directed all public service agencies to conduct a strategic review to give consideration to rationalisation, restructuring and decentralisation. The review, which was to be self-administered, though guided and supported by the consultancy arms of the Ministry of Public Administration and Information, would remain under the management of the individual Ministry and Department, which would take responsibility for its own 3

11 outputs and outcomes. 3 A successor Cabinet Minute in 1999 mandated the use of the results of the strategic review to aid the practice of Strategic Human Resource Management throughout the Public Service. 4 Ministries and Departments had also been mandated, in 1998, to develop strategic plans as a prerequisite to submitting requests to the Ministry of Finance for the allocations of operating budgets for subsequent fiscal years. The Ministry of Finance Call Circular of 1998 advised the Heads of Ministries, Departments and other Government agencies that their budget proposals must be linked to their 1999 plans, programmes and projects. The plans, whether described as Strategic Plans, Operational Plans or Action Plans had to reflect serious and studied attention to the Medium Term Macro Economic Planning Framework and to the Public Sector Investment Programme as Government s priorities and strategic direction for socio-economic development of the country. 5 Background to the policy Prior to 1996, submissions for funding from the Ministry of Finance under the annual recurrent budget were, for the most part, arbitrary, with most Ministries and Departments repeating the previous year s requests and adding a small percentage increase to cater for inflation and the practice of the Budget Division to reduce allocations. The continued use of line item budgeting allowed for the submission of annual shopping lists that often bore little resemblance to the reality of an agency s strategic and/or operational objectives for the fiscal year. 3 For more information, see Cabinet Minute No dated August 22, 1996: Strategic Review of the Public Service involving Considerations of Rationalization, Restructuring and Decentralization. Cabinet Secretariat, Office of the Prime Minister, Trinidad and Tobago, Cabinet Minute No dated June 10, 1999: Cost Effective Human Resource Management in Line Ministries/Departments in the Context of the Strategic Review of the Public Service. Cabinet Secretariat, Office of the Prime Minister, Trinidad and Tobago, Minister of Finance: Circular No. 5. Draft Estimates of Revenue and Expenditure including the Income and Expenditure of Statutory Boards and similar Bodies and of the Tobago House of Assembly for the year Ministry of Finance. Port of Spain, Trinidad and Tobago, May 20,

12 The intention of the directive was to: develop a strategic planning culture in the Public Service; provide support for proposed changes to the financial management system away from line item budgeting; initiate the practice, in Ministries and Departments, of costing all activities to be undertaken over a defined period. The operations of the Public Service of Trinidad and Tobago were still, at that time, set against the backdrop of structural adjustment and the Government s need to comply with the conditionalities of the international financial institutions which included reductions in the cost of managing the public sector. The reality of debt servicing, a lower foreign exchange reserves and other financial and social stringencies associated with structural adjustment imposed upon the government and the management of the Public Service responsibility for the establishment of mechanisms for efficiency and costeffectiveness in the sector. Public Sector Reform activities were in train; discussions were being held with key stakeholders to bring about changes in financial management, administrative management and human resource management. It is to be noted, however, that Human Resource Management, rather than Financial Management, was the platform upon which the Public Sector Reform movement was located. Strategic Planning in the Personnel Department Early approaches Prior to the 1990s, strategic/corporate planning was not an activity in which public service agencies routinely engaged, although it was understood to be part of normal planning behaviour in the private sector. At that time, however, the leadership of the Personnel Department began focussing on new strategies for the management of the Department and the Public Service. 5

13 In 1991, the Department took the bold step of formulating its first strategic plan to guide the organisation s direction for a period of three years. The planning began with an off-site Retreat in which all staff members met in groups and engaged in structured interactive activity to analyse the organisation and develop a focus for its future operations. At the end of the Retreat, a team was formed to generate a document describing the planned modernisation of the structure and operations of the Personnel Department and to identify strategies (internally and externally focussed) for bringing about the changes that would be necessary. In 1990/91, the Personnel Department embarked on its first strategic planning exercise. The activity began with a structured staff retreat aimed at generating the views of members of staff and culminated in the development of a Mission Statement 6 and a set of activities to be carried out during the life of the Plan. The strategies depended heavily on the inputs of other public service agencies that held responsibility for functions upon which the Personnel Department s activities were contingent. It also sought to formally address issues of succession planning and career development, and paid particular attention to the review of legislation to give effect to new structural arrangements. The Public Service Reform activities of the 1990s led to considerations of the core staff agencies of the Public Service, namely the Service Commissions Department and the Personnel Department, being designated Central Human Resource Management Agencies, responsible primarily for policy formulation. The Personnel Department decided to embark on a restructuring of the organisation and its functions. 6 Mission statement: The mission of the Personnel Department is to develop and administer policies designed to provide adequate and equitable reward and compensation systems for Public Service employees, to satisfy their well-being, and to enable them to achieve desired performance levels. Strategic Plan of the Personnel Department Port of Spain, Trinidad and Tobago. 6

14 In 1997, a series of workshops were conducted to pave the way for the changes that were to be effected in the Personnel Department. These workshops, internally co-ordinated, but facilitated by an external consultant, were intended to assist, first the senior executives and, later, representatives of staff groups in the organisation, in focussing their attention, not only on the new set of functions to be performed in the restructured organisation, but also on new approaches to performing traditional functions. 7 The objective was to explore issues of transformation and to develop a vision and strategic objectives for the Personnel Department. Although there was, immediately, little apparent outcome, the workshop, entitled Charting the Way Forward, was instrumental in softening the attitudes of a large number of staff members towards the changes that were imminent. 8 Cabinet approved the plan for restructuring the Personnel Department in 1997 and the new structure became operational in A number of traditional Personnel Department functions were devolved to line agencies, at about the same time that the Public Service Commission began its approach to delegating some of its own functions. In 1998, as well, Cabinet accepted the report of a Committee appointed by the Minister of Public Administration and Information to facilitate the operationalising of Human Resource s in Ministries and Departments 9. The Personnel Department and the Service Commissions Department were formally designated Central Human Resource Management Agencies with responsibility for creating the policies 10 that would be implemented on the line, and for monitoring and reviewing their implementation. 7 Charting the Way Forward: a Workshop for Senior Executives and Staff of the restructured Personnel Department. Personnel Department: Employee Development Division. Port of Spain, Trinidad and Tobago, Ibid. At the end of the workshop, a small team of officers was mandated to compile all the information generated in the workshops and develop Vision and Mission statements and a set of Strategic Objectives for the Personnel Department. 9 See Cabinet Minute No. 600 of March 12, The five Service Commissions (Public, Police, Teaching, Judicial and Legal and Statutory Authorities) have responsibility for staffing, discipline and termination of employment in respect of monthly-paid officers of the Public Service. The Personnel Department is responsible for the other human resource management functions. 7

15 Funding The activities leading to the development of a Strategic Plan in the Personnel Department were internally funded, that is, monies expended on sensitisation seminars and other training activities were taken from the recurrent budget of the Department. The individuals who led the effort were public officers who either had ties to, or were staff members of, the Personnel Department. Stakeholders The immediate stakeholders of the exercise were staff members of the Department. However, the stakeholders of the Personnel Department are several. Like all public service agencies, Parliament and the Cabinet are major stakeholders, as are Permanent Secretaries and staff members of all Ministries, Departments and Statutory Authorities. The Personnel Department has little direct association with members of the general public but, because of the responsibilities legally assigned to it, the several Associations and Unions representing public officers, the Ministry of Labour and the Industrial Court, and the constitutional and other Commissions/Committees for which the Department provides secretariat services are also critical stakeholders. Level of participation in the process The most recent strategic planning process of the Personnel Department was a collaborative effort that allowed for the input of every member of staff of the Personnel Department. The exercise commenced with the holding of a Strategic Planning Workshop which targeted the top leadership levels and staff representatives selected by their peers. All members of staff were informed of the purpose of the workshop prior to its commencement and requested to give consideration to issues pertaining to the strategic direction for the Department. At the workshop, environmental and organisational analyses of the Personnel Department were conducted, utilising the tools of a stakeholder analysis and a SWOT analysis. Draft statements of Vision, Mission and Core Values (the Strategic Model) were generated, as well as preliminary conceptions of strategic objectives. Subsequently, within each Division, the findings of the 8

16 workshop were disseminated and discussed, and suggested amendments put forward. There followed an iterative process involving cycles of examination and refinement of the Strategic Model by the target group of the workshop (which then constituted the Strategic Planning Team), informed by discussions held within Divisions. Out of that process was born the Strategic Implementation Plan, designed to bring into reality the strategic model for the Personnel Department. Implementation The Strategic Plan of the Personnel Department was launched in November 2001 in the presence of all members of staff and key stakeholders, including representatives of the Ministry of Finance. The document was presented in a project format with action plans detailing key objectives, performance goals, time frames for completion, action steps, and areas of primary responsibility, a listing of required resources and intended impacts and outcomes. Thereafter, the Heads of Divisions of the Department began the process of implementation as highlighted in the document, and teams developed to monitor implementation began their work. At the start of each year of the Plan, Divisions are required to prepare an Action Plan detailing their activities in support of the programmes and projects outlined and identifying potential challenges to implementation. Two in-house teams monitor and report on the successes and failures/challenges associated with the Action Plans. This will be discussed later in the case study. Approach to the strategic planning activity Taking into account the purpose and anticipated direction of the organisation, the Strategic Success Model 11 of strategic planning was selected. This approach highlighted environmental, organisational and opportunity scanning, 11 See Albrecht, Karl: The Northbound Train: Finding the Purpose, Setting the Direction, Shaping the Destiny of your Organization. The American Management Association (amacom). USA,

17 the development of a Vision, a Mission and a set of Core Values, and an approach to action planning that would support implementation. The approach used by the Personnel Department was similar to the one recommended in the training workshop. A deviation in the process was the omission, in the Personnel Department s model, of stakeholder assessments by the stakeholders themselves. This oversight must be corrected in any future Plan, since assumptions by insiders of the beliefs of stakeholders external to the organisation may be fundamentally flawed and are likely to result in planned strategic outcomes that are inaccurate. Also absent from the Personnel Department s planning process was the identification of Critical Success Domains (CSDs). This omission may well be a reason for some of the Plan s failures. Time frame The strategic planning process, which resulted in the Strategic Plan document, was completed within ten calendar months. Strategic Plan of the Personnel Department Achieving results and evaluating progress A detailed programme of activities contained a breakout of the key activities that were to be undertaken to achieve the strategic objectives of the organisation, over the three years of its life, with corresponding time frames, responsibility centres, required resources and intended outcomes and impact. The implementation of the plan was to be built upon a strong foundation of intra-departmental communication, co-operation and cross-divisional teamwork. It was understood that the driving force for implementation had to be top management (the Chief Personnel Officer, the Deputy Chief Personnel Officer and Heads of Divisions) of the Personnel Department. They would own the process and display the commitment needed to keep the process alive and provide the impetus for change. However, in order to ensure close and 10

18 continuous monitoring of the Department s progress towards the performance goals set out in the Implementation Plan, a Strategic Plan Monitoring Team (SPMT) was established. The Team, headed by the Deputy Chief Personnel Officer, included a representative from each Division. Its role was to set up mechanisms for liaisons with the responsibility centres to ensure adherence to agreed timeframes and for resolving any difficulties encountered during implementation. The team meets monthly and reports on the progress of implementation. A second team is the Process Improvement Team (PIT) whose role is to examine work processes employed throughout the Department and to make recommendations for their improvement and/or redesign. The Process Improvement team also reports to the Deputy Chief Personnel Officer. The strategic objectives outlined in the Plan can only be realised through the utilisation of a variety of resources, primary among them being human and financial resources. As a result, the maintenance of optimal staffing levels is essential, as is the development of improved competencies through in-house training and education programmes. To this end, the Department s Training (HRD) Plan was created as a supporting document. To ensure availability of financial resources, especially for costly initiatives, programmes were undertaken on a project basis and funds secured under the Public Sector Investment Programme (PSIP). Measurement of outcomes No criteria were developed to measure the outcome and impact of the Personnel Department s Strategic Plan during its lifespan. The Department has achieved a number of successes but, at the same time, a several planned initiatives have not materialised. The development and use of measurement criteria would have given early warning of weaknesses in the Plan. 11

19 Benefits An obvious benefit of the strategic planning activities of the Personnel Department has been improvements in funding both at the recurrent and the project levels. A less overt benefit has been changes in the attitude of staff members at all levels to the development of departmental initiatives. A greater capacity for strategic thinking and action has been generated in staff members at all levels, as has the recognition of how much can be achieved in the Department. Interest has also grown in the conceptualisation and documenting of projects, 12 and greater attention is being paid to the achievement of objectives and the realisation of outcomes. Unexpected outcomes An unexpected, though not negative outcome of the process has been an increase in the generation of ideas for improvements in the Department and implicit in that, the belief that those ideas will come to fruition. There has been a greater demand for improved communication and, through the Strategic Plan Monitoring Team (SPMT) and the Process Improvement Team (PIT), a drive for the timely implementation of all initiatives. Use and impact of Strategic Planning in the Personnel Department Another outcome of strategic planning in the Department has been the recognition of a need for further restructuring. Application of the Plan has highlighted weaknesses in the Department s structure and its ability to achieve the objectives it has set itself. Weaknesses are also apparent in staff size, levels of knowledge and skill, training and general competence. The Department is currently engaged in the development of a restructuring plan as part of the initial work of reviewing its strategic direction. 12 From 1999 to 2002 there has been focussed training on Project Documentation and Management, first at the level of the parent Ministry of Public Administration and Information and, later, the Personnel Department. The result has been the development of a cadre of officers at various levels of the Department who possess the capacity to design, document and manage social projects. 12

20 Communicating the Plan Maintaining communication of strategic initiatives in a Department is seldom easy, given the cultural and other dynamics that impact. In bringing the plan to fruition, there were occasions when insufficient information was shared, either because the rapid pace of activity left room for little else, or because persons in the know deliberately sought to restrict the flow. In some instances, there was obvious distortion of information that created unnecessary fear and resistance in some sectors of the organisation. Future of the project and its benefits Strategic Planning in the Personnel Department is here to stay. The recent change in the political administration has led to a corresponding change in the strategic direction of the Public Service and the country. The new structure of the Department, when implemented, will be complemented by the successor Strategic Plan that will come into being in the latter part of 2004 and will, of necessity, hinge on Government s Vision 2020, the achievement of developed country status by the year The Department will continue to grow and to identify new avenues for its own development and that of the wider Public Service. The role of the Personnel Department as a driver of Public Service change demands flexibility and strength of purpose. Costs of Strategic Planning Strategic planning is a costly exercise. Many organisations hire an external consultant to create the Plan; as professional as the resulting document appears, however, this strategy often sacrifices staff goodwill, buy-in, commitment. At the same time, there is seldom a sufficiency of organisational resources to dedicate exclusively to the process. In the latter case, the result is usually a less-than-perfect document put together by a group of employees who have struggled to commit time and energy to the product while focussing attention on their day-to-day work activities. In the long run, commitment to implementation suffers and the Plan remains just a well-written document. 13

21 Lessons learnt The process was not an easy one. Challenges of one kind or another assailed its completion: 1. It was difficult to find internal resources to dedicate to the project, given the varied set of competencies required. 2. The Department had to ensure that the individuals selected enjoyed the trust of employees at all levels. 3. The level and constancy of communication required was difficult to achieve and, where information sharing was slow, rumours surfaced that could have easily derailed the activity. 4. In the early stages, resistance to the exercise was strong. Some employees had no desire to accept the changes that would be generated; others lack of trust in the entire process (based on earlier experiences) led to attempts to interrupt the flow of activity. 5. The work involved in making the plan a reality was added to regular work routines and resulted in team members having to devote a lot of personal time to meeting deadlines for completion. 6. Iteration of elements of the process opened the team to a measure of verbal abuse when individuals ideas were not accepted or when attempts to achieve consensus led to unpopular changes in language or proposed activities. To ensure that completing the successor plan is less enervating, it may be necessary to select a team that can be dedicated to the exercise for the duration of its preparation. This team would have to be given the resources to proceed and must possess the authority to require a response from all members of staff. 14

22 It is necessary to build specific mechanisms for information into the process from its inception and these mechanisms must be communicated to all staff. Periodic information sessions must accompany the exercise and additional funds applied to seminar-type activities. Electronic means of data gathering would enhance information sharing. Also necessary, throughout the process (but especially at the stakeholder assessment phase) is the inclusion of the views of external stakeholders, so that their input can be an integral part of plans and directions. Next Steps It is very easy and undeniably tempting to shut down once the document has been completed and to take no further action on strategic planning until the life of the current plan has all but expired and the time is nigh to focus on the successor document. The pressures of daily work make it difficult to maintain momentum and frequent ad hoc demands on everyone involved slow down the implementation of projects and adherence to targets. Although the strategic plan document includes methodologies and action plans for implementation, the post-strategic planning phase requires a new and different set of dedicated activities and resources, such as: a commitment to the achievement of stated objectives and the energy to keep the process going; a focus on the future and an ability to recognise and analyse changes in the environment that may point to a new direction; the ability and willingness to be sufficiently flexible to effect changes and a level of objectivity that minimises adherence to personal opinions and directions that may have lost their relevance. Recommended criteria for common approach to strategic planning in the Public Service of Trinidad and Tobago It is difficult, and not always prudent, to apply common approaches to the practice of strategic planning across agencies and embedded cultures, although some existing rules of thumb ensure success. 15

23 1. One of the traditional weaknesses of the permanent Public Service of Trinidad and Tobago has been a need by administrators to have action legislated. As a result, initiative (and possible effectiveness) is often sacrificed on the altar of efficiency, with senior managers refusing to move unless and until written directives are given, either from the Cabinet or one of the central agencies. A first step must be the development of a culture that accepts the necessity to take calculated risks. 2. The conceptualisation and development of a Strategic Plan as a set of programmes or projects moves the exercise away from pie-in-the-sky visioning and creates a framework for implementation and measurement. The statement of goals and purposes and the definition of specific objectives, timeframes and targets provide visual clarity and aid in the designation of responsibility centres and the early identification of problems. The process of arriving at details of costing and assessing assumptions and risks is an exercise that focuses the mind of the planner on future activities and outcomes and mechanisms for controlling both. 3. A critical need in strategic planning is competence in planning and forecasting. Competence cannot be developed during the exercise, nor should an organisation attempt to engage in training immediately prior to the commencement of the exercise. The organisation must, therefore, develop a cadre of officers skilled in project development, documentation and implementation who would form part of a team dedicated to the exercise. 4. Mechanisms for continuous communication have to be developed early and maintained throughout the process, as ignorance and/or uncertainty by stakeholders will lead to resistance that can compromise the effectiveness of the process and stall implementation. 5. Adequate time must be allocated to the process. If strategic planning is to achieve a successful outcome, the organisation must be willing to devote all the time necessary to ensure it. The iterative process requires 16

24 constant sharing of information, a willingness to allow stakeholders to ruminate over all the elements that affect them, and openness to frequent changes in information. 6. Strategic planning requires dedicated human, financial and material resources from conceptualisation to implementation and evaluation. The organisation must, therefore, be prepared to commit a team (or teams) to the exercise and to provide all the resources they need for the task. 7. Mechanisms for implementation, review, evaluation and measurement of the Plan, its processes and its outcomes must be written into the planning process and the subsequent document. 8. No strategic planning exercise will be successful without the human attributes that complement it, namely: a. an open and flexible approach to change by strategic planners; b. a willingness to halt the project and change direction if the environment changes; c. the possession of strong analytical skills; d. the possession of strong communication skills, including writing skills since lack of coherence, logic and analysis in a document discourages reading. Conclusion The focus of the Government of Trinidad and Tobago has changed; therefore, the direction (and perhaps the activities) of the Personnel Department must be amended. The successor Strategic Plan must take into account the imperatives of Vision 2020, the Administration s plan to achieve developed country status by the year Other documents that fall out of a Strategic Plan, viz. a Human Resource Plan and a Human Resource Development Plan, must also take into account the changes in the environment. 17

25 APPENDIX I Vision Statement of the Personnel Department; To be the model provider of contemporary human resource management and industrial relations solutions in the Public Sector Mission Statement of the Personnel Department To excel in the development of quality Human Resource Management policies and in the application of Industrial Relations best practices and people management solutions for the well-being of the Public Service and the Nation Statement of Core Values The practice of Equity We are firmly committed to the practice of equity in our dealings with all Stakeholders The provision of quality service We believe in working together to provide consistently high quality service to all our clients Caring for staff members We care about the well-being and development of every member of the Personnel Department A pro-active and innovative approach We strive to be pro-active and innovative in meeting the needs of our clients and in finding creative ways of satisfying those needs 18

26 APPENDIX II List of Strategic Objectives 1. The development of a cohesive philosophy for Human Resource Management in the Public Service 2. The revision of the legislative framework for Human Resource Management in the Public Service to align with the approved philosophy 3. The development of policies, systems and mechanisms for improving and/or modernising the practice of Human Resource management in the Public Service 4. The implementation and monitoring of measures to enhance staff development and the quality of work life in the Personnel Department 5. The development of systems to measure and manage organisational performance in the Personnel Department 6. The development of a system for the improvement of organisational communication within the Personnel department and between the Personnel Department and its stakeholders 7. The development of systems for improving the efficiency of work processes within the Personnel Department. 19

27 IMPLEMENTATION PLAN: PROGRAMME OF KEY ACTIVITIES FOR THE PERIOD SEPTEMBER 1, 2001 AUGUST 31, 2004 OBJECTIVE 1: Develop a cohesive philosophy for Human Resource Management in the Public Service Sub Objective Performance Goals Time Frame Action Plan Primary Responsibility Resources Required - Approved philosophy for Human Resource Management in the Public Service developed 31/12/01 Develop draft philosophy for Human Resource Management Conduct stakeholder consultations Submit philosophy for Cabinet s approval Director, Human Resource Policy, Planning and Research Financial: $75, to host stakeholder consultations Human: In-house staff, Human Resource Policy, Planning and Research Division 20

28 OBJECTIVE 2: Review the legislative framework for Human Resource Management in the Public Service to ensure alignment with the approved philosophy New/revised legislation drafted and submitted for approval 30/09/02 Review existing legislation Consult with Associations/Unions Head, Legal Services Division, in collaboration with Director, Benefits Human: In-house staff, Legal Services Division, in - Consult with Chief Parliamentary Counsel collaboration with Benefits Submit for Cabinet s approval Management Division 21

29 OBJECTIVE 3: Modernise the Human Resource Management systems in the Public Service Sub Objective Performance Goals Time Frame Action Plan Primary Responsibility Resources Required (1) Establish a modern philosophy and strategy for Human Resource Planning in the Public Service Approved policy, strategy and guidelines for Human Resource Planning developed 31/12/01 Draft policy Consult with stakeholders Seek Cabinet s approval Disseminate to stakeholders Director, Human Resource Policy Planning and Research Division Financial: $75, to host stakeholder consultations Human: In-house staff, Human Resource Policy Planning and Research Division, in consultation with staff of other relevant Divisions (2) Establish a modern system for the management of compensation Revised Classification Plan for the Judicial and Legal Service 30/06/02 Monitor Consultant to ensure performance standards are met Review Consultant s report Submit Report for Cabinet s approval Director, Compensation Financial: $600,000 to pay consultants Human: In-house staff, Compensation Revised Classification and Compensation Plan for the Protective Services 31/03/02 Review completed job descriptions Complete market surveys Director, Compensation Human: In-house staff, Compensation Consult with stakeholders 22

30 Sub Objective Performance Goals Time Frame Action Plan Primary Responsibility Resources Required (2) Establish a modern system for the management of compensation Revised Classification and Wage structure for daily-rated occupations 31/07/02 Review existing classification wage structure Finalise report and submit for Cabinet s approval Director, Compensation, in collaboration with Director, Benefits Human: In house staff resources Revised Classification structure and Compensation Plan for the Civil Service and Statutory Authorities subject to the Statutory Authorities Act Chapter 24: 01 31/08/04 Conduct orientation and start up activities Conduct Pilot Study Conduct review of jobs in wider Civil Service and Statutory Director, Compensation Financial: $6.8 million for consultancy services; $2.9 million to pay officers on contract Authorities Consult with stakeholders Human: Consultants and Job Evaluation Project staff Revised pay system for the Defence Force Finalise Plan and submit report for Cabinet s approval 31/03/02 Establish Committee Conduct review Prepare report Submit recommendations to Cabinet Director, Compensation Director, Human Resource Policy Planning and Research Division Human: In house staff, Compensation Management and Human Resource Policy Planning and Research Divisions 23

31 Research Divisions Sub Objective Performance Goals Time Frame Action Plan Primary Responsibility Resources Required (2) Establish a modern system for the management of compensation Mechanisms established for ongoing measurement of the cost of the total rewards package 30/06/02 Establish Compensation and Benefits Analysis Team Develop Terms of Reference Conduct Analysis Prepare report on analysis of findings Director, Human Resource Policy Planning and Research Division, in collaboration with Directors, Compensation Management and Benefits Management Divisions Human: In house staff, Human Resource Policy, Planning and Research Division, in collaboration with Compensation and Benefits Management Divisions, as necessary Electronic database of compensation packages for benchmark jobs in the Public Service and for comparable external jobs created 30/06/02 Identify benchmark jobs Develop database Establish links with external organisations Director, Compensation Management, in collaboration with Directors, Human Resource Policy Planning and Research Human: In house staff, Compensation and staff of Human Resource Policy Planning and Research, and Benefits Management 24

32 and Benefits s Divisions IT Specialist Sub Objective Performance Goals Time Frame Action Plan Primary Responsibility Resources Required (3) Establish a modern system for the management of employee benefits in the Public Service Service regulations revised and updated in conformity with changes in negotiated terms and conditions of service 31/12/03 Assess the scope of changes needed Compile amendments Consult with Chief Parliamentary Counsel Head, Legal Services Division, in collaboration with Director, Benefits Human: Staff of the Legal Services Division, in collaboration with Benefits Holistic review of benefits package, policies and guidelines completed 30/06/02 (Teaching Service) 30/09/02 (Protective Services) 31/12/04 (Civil Service/Statutory Authorities) Re-assess existing benefits packages, by services, in light of completed job evaluation and new compensation arrangements Review existing policies and guidelines and develop new ones, as necessary Director, Benefits Human: In-house staff, Benefits Benefits policies on-line 30/06/03 Compile an information package on current benefits 25 Establish mechanisms for updating information base for inclusion on Director, Benefits Human: In-house staff, Benefits and IT Specialist

33 Department s website Sub Objective Performance Goals Time Frame Action Plan Primary Responsibility Resources Required (3) Establish a modern system for the management of employee benefits in the Public Service Review policy for the management of devolved functions 30/06/02 Prepare report on devolved functions Make recommendations Director, Benefits Human: In-house staff, Benefits Approved policy and guidelines for Employee Assistance Programmes developed 28/02/02 Draft policy Consult with stakeholders Seek Cabinet s approval Director, Benefits in collaboration with Director, Human Resource Management Services Division Human: In-house staff, Benefits Staff of Legal Services Division Employee Assistance Programme Pilot Project implemented 30/06/02 Consult with identified agencies Communicate policy and guidelines Develop and circulate list of service providers Director, Human Resource Management Services Division Human: In-house staff, Human Resource Management Services Division Consultants Monitor implementation 26