Guidance Note for Identifying Job Profiles and Competencies in Italian Public Administration Output 1 Activity 1: Develop a methodology and guidance note concerning job profiles, including staff skills, roles, positions, and competencies. ITALY Innovative Recruitment and Assessment Process in the Public Administration June 2022 1 DISCLAIMER This report is a product of the International Bank for Reconstruction and Development / the World Bank. The findings, interpretations and conclusions expressed in this paper do not necessarily reflect the views of the Executive Directors of the World Bank or the governments they represent. The World Bank does not guarantee the accuracy of the data included in this work. This report does not necessarily represent the position of (TO BE COMPLETED). COPYRIGHT STATEMENT The material in this publication is copyrighted. Copying and / or transmitting portions of this work without permission may be a violation of applicable laws. For permission to photocopy or reprint any part of this work, please send a request with the complete information to either: (i) the (TO BE COMPLETED).; or (ii) the World Bank Group (TBC). This report was delivered in June 2022 under the Technical Advisory and Analytics Services Agreement on the (TO BE COMPLETED)., concluded between the (TO BE COMPLETED). and the International Bank for Reconstruction and Development on (TO BE COMPLETED). It corresponds to Output (TO BE COMPLETED). under the above- mentioned agreement. 2 Contents Acronyms ............................................................................................................................................... 5 Glossary of Terms ................................................................................................................................... 7 Acknowledgements................................................................................................................................. 9 Executive Summary............................................................................................................................... 10 1. Introduction ................................................................................................................................. 15 1.1. The Italian Public Administration ................................................................................................... 15 1.2. Moving Towards a Competency-based Management ................................................................... 26 1.3. Scope of Work ................................................................................................................................ 27 1.4. Research Methodology .................................................................................................................. 30 1.5. Structure of the Report................................................................................................................... 30 2. Strategic Human Resources Tools in the Italian Public Sector ........................................................... 32 2.1. Strategic Workforce Planning ........................................................................................................ 32 2.2. Practical Use of the Strategic Workforce Plan ............................................................................... 34 2.3. Classification of Professions ........................................................................................................... 36 2.3.1 Overview of the Italian Collective Bargaining Process............................................................... 36 2.3.2 Overview of the Current Legislative and Regulatory Framework .............................................. 38 2.3.3 Overview of the Newly Envisaged Legislative and Regulatory Framework ............................... 39 2.3.4 Overview of the Managerial Qualifications ............................................................................... 42 2.3.5 Taxonomy of Professional Profiles ............................................................................................. 43 2.4. Content of Professional Profiles ..................................................................................................... 46 2.5. Competency Management in Italy ................................................................................................. 48 2.5.1 Competency Framework ............................................................................................................ 51 2.5.2 Review of Competency Frameworks: International Examples................................................... 54 3. Methodological Options for Identifying Roles, Positions, Job Profiles, and Competencies ................... 64 4. Conclusions .................................................................................................................................. 71 Appendix 1: Age and Gender Distribution by Sector and Organization ...................................................... 74 Appendix 2: List of Beneficiary Administrations....................................................................................... 75 Appendix 3: List of Interviews Conducted................................................................................................ 77 Appendix 4: Protocol of Interviews ......................................................................................................... 79 Appendix 5: Example of IT Officer Professional Profile in IRA, MOC and MOJ ............................................ 81 References ........................................................................................................................................... 82 3 Boxes Box 1: An Overview of the Evolution of the Italian Public Employment Relationship .................................... 19 Box 2: The Inter-ministerial Registry of Job Professions (RIME) ..................................................................... 45 Box 3: The SNA’s Organizational Analysis, Evaluation and Development of Competencies........................... 48 Box 4: National Institute of Public Service ...................................................................................................... 50 Box 5: Steering Committee for HRM in France ............................................................................................... 65 Box 6: Performance Evaluation and Job Description Updating Process in France .......................................... 70 Figures Figure 1: Public Officials Employed in the Italian Public Sector, 2008-2020 15 Figure 2: Average Score of Quality of Public Administration Across 27 EU Countries (Points) 16 Figure 3: The 2021 European Quality of Government Index (in rank order and regional variation) 17 Figure 4: Public Officials: Employment Distribution by Sector 18 Figure 5: Distribution of Public Official by Position and Gender 21 Figure 6: Female-Male Pay Ratios Across EU Countries 21 Figure 7: Educational Qualifications of Public Sector Paid Employees 22 Figure 8: Proportion of Public Officials Aged 55 Years or Older 22 Figure 9: Digital Economy and Society Index, 2021 25 Figure 10. Human Resource Management and Government Effectiveness 28 Figure 11: Workforce Planning Process 32 Figure 12: National Collective Bargain Process in The Public Sector (Level 1) 37 Figure 13: National Collective Bargain Process in the Public Sector (Level 2) 37 Figure 14: Most Frequently Used Competencies in Competency Frameworks in OECD Countries 53 Figure 16: Irish Competency Framework 57 Tables Table 1: Distribution of Public Officials in the Beneficiary Public Administrations 29 Table 2: Workforce Planning Process in OECD Countries, 2016 33 Table 3: Overview of the Current Classification of Professional Profiles 39 Table 4: Overview of the Newly Envisaged Professional Classifications 41 Table 5: Type and Number of Professional Profiles 44 Table 6: SNA Competency Framework for Public Managers 52 Table 7: Belgian Federal Competency Framework 55 Table 8: Competency-related performance indicators in Ireland (Administrative Officer) 58 Table 9: Competency-related performance indicators in Ireland (Higher Executive Officer) 59 Table 10: French Competency Clusters 61 Table 11: Example of French Job Description 61 Table 12: Comprehensive and Basic/Minimum HR Data to Inform Workforce Planning 64 Table 13: Type of Users for Generic and Specific Job Descriptions 68 4 Acronyms ARAN Agency for Collective Bargaining for Public Administration BOSA Belgian Federal Public Service, Policy and Support CCN National Collective (Labor) Contract CCNI Integrative National Collective (Labor) Contract CNEL National Council for Economics and Labour DESI Digital Economy and Society Index DFP Department of Public Functions DGAFP Directorate General of Administration and Civil Service DICO Inter-ministerial Dictionary of Competencies for State Jobs DL Decree Law DPR Decree of the President of the Republic EC European Commission ENA National School of Administration (France) ENAC Italian Civil Aviation Authority EPSO European Personnel Selection Office EU European Union FPA ForumPA GOI Government of Italy HR Human Resources HRM Human Resource Management IDS Income Data Services INSP National Institute of Public Service (France) IQ Intelligence Quotient IRA Italian Revenue Agency 5 ISTAT National Institute of Statistics IT Information Technology LDgs Legislative Degrees MDAs Ministries, Agencies, and Departments MEF Ministry of Economy and Finance MoC Ministry of Culture MOJ Ministry of Justice MOInt Ministry of Interior M&E Monitoring and Evaluation OECD Organization for Economic Co-operation and Development PA Public Administration PAS Public Appointments Service (Ireland) PCM Presidency of the Council of Ministers PFRH Inter-ministerial Support Platform for Human Resource Management PIAO Integrated Activity and Organization Plan RIPAM Commission for the Implementation of the Public Administration Requalification Project RGS State General Accounting Department SG Secretary General SNA Italian National School of Administration UK United Kingdom WB World Bank 6 Glossary of Terms Behavioral competency: Individual attitudinal and relational traits used in the performance of a job. Competency: A set of demonstrable and measurable characteristics (knowledge, skills and attributes) that enable the performance of a job. Competency cluster: A group of closely related competencies that can be grouped under a common label to create a simple and comprehensive model. Competency Framework: A model where competencies are identified and defined in terms of expected behaviors, knowledge, and know-how to achieve excellent individual and organizational performance (vertical integration). It is also a management tool that potentially integrates all HR systems (recruitment and selection, performance management, training and development, career progression, pay, and so on) horizontally into one coordinated strategic approach. General Competencies: A harmonized set of competencies specific to an industry, sector, organization, or activity. In this material, the term is used with the following meaning: all the competencies needed by all public employees to perform at each level or specialization. Specific Competencies: It refers to the job-specific competencies that drive high performance and quality results for a given position. Most often, it is used as a synonym for technical competencies. A competency related to intellectual or technical knowledge pertaining to a specific job family or a functional domain. Functional domain: Classification for government or state functions, usually associated with the government’s formal organization in departments or ministries. The classification may vary from country to country, but it usually includes sectoral policy domains (such as defense, diplomacy, health, education, tax administration, regional development, and the environment), as well as crosscutting functions (such as public policy, strategic planning, coordination, and financial management). Generic competency: A competency related to public service values and ethics, professional behaviors, and personal attitudes. It is not associated with a specific job family or functional domain. Job family: A series of jobs or occupations with a common functional content or knowledge domain, as well as several professional grades with increasing levels of impact, complexity, responsibility, required knowledge and competencies. The definition of job family may vary greatly according to the context. Job profiles: It is the set of competencies and skills a person would need in order to perform the job. Knowledge competency: Theoretical cognizance or understanding of a given subject, acquired through education or experience. Know-how competency: Practical expertise and the ability to use theoretical understanding in the performance of a job. Occupational family: A set of several occupations characterized by similar requirements pertaining to ability, skills, and training (see the definition of job family). 7 Professional grade: Classification of a position or job in terms of complexity or responsibility, sometimes associated with an educational level and/or experience. Professional grade systems vary greatly from country to country. Public employee: Worker in the public administration, irrespective of their employment relationship. Specific competency: A competency related to intellectual or technical knowledge pertaining to a specific job family or functional domain. Top manager: Manager in the highest positions within public organizations (typically heads and subheads of organizations) and usually part of the senior civil service. 8 Acknowledgements The report was prepared by the World Bank team led by Shiho Nagaki (Senior Public Sector Specialist, Task Team Leader) and consisting of Margherita Fornasari (Governance Expert), Edoardo Ongaro (Professor at the Open University in the UK), Wouter Van Acker (Governance Expert), Paola Berg (Senior Human Resources Management Expert in the Prime Minister’s Office in France), Stefano Battini (Senior Legal Expert, Former President of National School of Administration in Italy), and Benedetto Cimino (Senior Legal Expert). The team received overall guidance and support from Arup Banerji (Former Country Director for EU countries), Ed Olowo-Okere (Global Director for Governance Global Practice), Lalita M. Moorty (Regional Director for Europe and Central Asia), and Roby Senderowitsch (Practice Manager, Governance Global Practice, Europe and Central Asia) throughout the project. The team also benefited from technical advice from the peer reviewers: Daniel Ortega Nieto and Anca Butnaru. The team would like to express its gratitude to the DGREFORM team of the European Commission: Daniele Dotto, Angeliki Votsoglou, and Ledri Hysenaj for their extensive support and guidance during project implementation. Finally, the team would like to sincerely thank all government officials of Italy for their cooperation, engagement, and facilitation of project implementation, notably, the Department of Public Function, and the National School of Administration. The team would particularly like to thank Cecilia Maceli, Michaela Travaglini, Enrica Della Gala, Maria Cristina Tedesco, and Sabrina Bandera. 9 Executive Summary 1. A well-performing public administration with motivated and productive public officials is crucial for a Government’s effectiveness. However, the 2008 – 2009 global financial and economic crises, the subsequent hiring freeze ("blocco del turnover"), and the COVID-19 crisis negatively impacted the Italian public administration's workforce in size and quality. In addition, the Italian public administration workforce is one of the fastest aging workforces in Europe. Strengthening the Italian Public Administration performance – its efficiency, effectiveness, quality, and resilience - has thus become essential for socio-economic development while ensuring better use of public resources. 2. Technical knowledge combined with ‘soft’ skills and competencies of public employees plays an integral part in improving public sector performance. However, the typical skill profile of the Italian public administration does not reconcile well with ongoing socio-economic dynamics, notably (but not limited to) the digital transformation. This has led to a misalignment between available and needed skills by public sector organizations. The COVID-19 pandemic and the ensuing crisis further underlined the poor level of digital competencies in the Italian public sector, and the need for increasing individual and organizational capacities based on objectives and outcomes that move away from the traditional logic of executing tasks. 3. The current changes in the socio-economic environment in which public administrations operate have identified emerging technical skills and competencies. There is a growing consensus about the importance of soft skills as core competencies for central public administrations, though this awareness is still at an inchoate stage in many public administrations. One of the primary purposes of introducing competency- based management is horizontal integration, or integrating a fragmented HRM cycle, from recruitment and career development to performance management and training. However, most Italian public administrations currently lack competency-based management approaches to HRM. 4. Competency management for public officials has been generally limited to on-the-job training at entrance. Because the Italian recruitment system has a legacy of testing legislative knowledge rather than focusing on technical and transversal competencies, public administrations have strongly relied on in-service training at entrance to assess and strengthen public officials’ competencies. In addition, the current performance management system is widely applied to managerial positions with performance-based pay system, but not linked with competencies management. 5. The Government of Italy (GoI) has introduced and initiated a number of reforms in the realm of recruitment and wider HRM policies over the past years. In line with the National Recovery and Resilience Plan (NRRP) strategic framework, the latest "Brunetta" reform introduces the Integrated Activity and Organization Plan (PIAO), aiming at setting the basis for a more strategic and integrated HR management in the public administration. Furthermore, the GoI is moving toward a new professional profile classification for the Comparto of the central public functions to create a unique and homogenous classification across organizations and introduce a clearer professional development path for public officials. The NRRP also recognizes the importance of moving towards a competency-centered HRM to strengthen public sector human capital. 6. While the Italian public sector is moving towards competency-based HRM system, the lack of competency framework integrated into HRM practices is the main issue. According to the Chartered Institute of Personnel and Development in the UK, “a competency framework is a structure that sets out and defines each individual competency required by individuals working in an organization or part of that organization�. 10 Developing a competency framework shifts the focus of HRM from a focus based on headcounts and budget to personnel skills, competencies, and capabilities. Furthermore, a competency framework provides a common language to describe required skills and expected behaviors required for top performance in specific positions and across an organization. Developing a competency framework also serves as a coordinated strategic approach to linking and integrating different HRMs process, including workforce planning, recruitment and selection, training and development, performance management and appraisal, and remuneration (Belgium). 7. The development of the strategic workforce plan is a first import step but not supported by robust HR data and its analysis to identify strategic HR needs. Given its strategic, financial, and operational objectives, each administration must analyze its personnel needs to identify the required competencies to fulfil its goals. Therefore, enabling each individual administration to effectively identify such competencies to inform the recruitment process has become a crucial component of the efficiency and effectiveness of recruiting. The development of workforce planning is conducted by each public organization autonomously. The different organizations also have the discretion of designing and setting the related workforce frameworks. In general, this process hinges upon close collaboration between line departments and their HR departments, and between the HR department and the head of mission. However, the approaches used to develop the strategic workforce plan vary across the different central public administrations. In many public administrations tend to prevail an "emergency" and "replacement" logic due to decision-making dynamics intrinsic to the broader administrative system and the lack the robust HR data1 and capacities to analyze public administration employment trends, as well as the strategic needs to feed into the plan. The DFP guidelines suggest an approach for strategic HR analysis and planning centered around the vision of a well-performing HRM system without strengthening the capacity of public institutions to implement such an approach. However, most public administrations do not have enough internal capabilities to support proper HR planning. Therefore, it becomes key to support public administrations in strengthening the use of the strategic workforce plan. 8. At present, the GoI uses a set of professional profiles with generic descriptions of tasks expected to be performed by the person occupying the position. The profiles, however, lack an explicit link to organization- specific requirements, and vary in level of detail between public administrations. Professional profiles can be defined based on specialized tasks or more general administrative tasks. The former corresponds to technical and organization-specific professional profiles, requiring the administration to adopt an autonomous recruitment procedure to select the most appropriate candidates. The latter tend to be more generalized across various public administrations. 9. Many central public administrations currently lack job description frameworks. The use of professional profiles should be integrated with the definition and the development of job descriptions, which are organizational tools that allow for an analytical description of the main characteristics of a role within an organization. It should also be underpinned by in-depth knowledge of the internal organizational model, based on accurate analysis of internal processes supported by available HRM data. 10. The Italian administration will need incremental and structural reforms in HRM to introduce and consolidate a competency-based management culture. This report illustrates methodological options about how individual central government public sector organizations can develop the competency frameworks and competency profiles to inform the strategic workforce plan and recruit the required set of competencies for sustainable organizational development and long-term performance. While the proposed recommendations about strategic HR planning and management do not likely require legislative change, introducing and 1 HR data is managed by each administration, and centrally compiled by the Ministry of Economy and Finance. 11 consolidating competency-based management is a major shift from the current HRM and introduces significant changes in its culture. 11. Proposed methodological option 1: Strengthening workforce planning – The HR planning needs to be substantially improved to address both long-term workforce needs and immediate operational needs in the rapidly aging public administration. Although a 3-year term allows to strategically program workforce needs, the current HRM planning in many public sector organizations has a weak linkage between the long-term vision and operational needs of the institution in a short-term period. In a dynamic environment, a poor connection between the long-term strategic planning of workforce and the short-term operational needs of the institution limits the ability to adapt the workforce to changing strategic priorities as well as to cope with its day-to-day operational needs. Workforce planning needs to be substantially improved to reconcile it and address the massive workforce needs while keeping fiscal control tight to avoid the inflating wage bill. 12. Public administrations should be supported by a robust analytical foundation when developing workforce planning with improved HR data management. The development of the strategic workforce plan should be led by an continuous assessment of changing organizational needs and internal resources, including human resources, for achieving institutional strategic objectives, followed by a comprehensive analysis of HR dynamics and needs. 13. There should be a stronger integration between the top-down (DFP) and bottom-up (individual administrations) HR planning, strengthened by inter-institutional coordination and support. Given the limited HR planning capacities of most public administrations, as recognized by several HR directors, there is a significant gap between the national vision for strategic workforce plan and HR needs and the capacities of individual public administrations to properly deal with its planning. There is a need to strengthen the planning capacities of individual administrations and create a central mechanism within the DFP that coordinates, advises, and coaches public institutions on strategic HR planning while taking a broader view of HR planning across the public administration. 14. Capacity development of HR departments for strategic HR planning and competency-based management is key. The decentralized HRM system has led to a significant variation in the relative internal status, role in HRM processes and functions that Human Resources units across central administrations perform. HRM departments need to strengthen their capacities for identifying and profiling competency-based professional profiles to overcome the above-mentioned “replacement� logic, i.e., replacing professional profiles with the same quantitative and qualitative profiles. 15. Proposed methodological option 2: Developing and adopting a competency framework – In developing competency frameworks, a bottom-up approach and strong buy-in of staff approaches are usually preferred over top-down approaches. The review of international practices (Ireland, Belgium, France, UK and EPSO) suggests that competency frameworks are generally developed in-house and have been designed through a series of consultations activities with all ministries across the central government, most often using bottom- up approaches. 16. Building on international experiences, the following steps are proposed to develop a competency framework in Italy: i. Identify and select the competency model. ii. Identify the desired competencies for each professional profile. iii. Validation of the identified desirable competencies for each professional profile with the directors of the line department. 12 iv. Codification of identified competencies in macro competency categories. v. Pilot the competency framework. vi. Dissemination of the competency framework and its usage in the HRM process, including the recruitment process. vii. Periodical revision of the competency framework. 17. Proposed methodological option 3: Adopting a more integrated job description framework – An integrated job description framework is a critical instrument to support the various aspects of HRM. In addition to competency frameworks, it is vital to have clear job descriptions, which support workforce planning, hiring process, task and performance management and career development of staff. Research shows that developing a more integrated job description framework leads to the production of two types of job descriptions: generic and specific job descriptions and serves multiple users. Job descriptions should not be perceived as a static tool and but should be constantly reviewed to better reflect changing needs and demands for public administration and services and support the identification of emerging skills and competencies. 18. The process of integrating the job description framework should unfolds in four main steps: i. Identification of the number and type of jobs that allow public administrations to implement and realize their missions. ii. Classification of the identified jobs into categories based on clear criteria, such as similar missions and tasks, common roles to be covered, in line with the newly envisaged Contratto Collettivo Nazionale (CCN). iii. Identification of the mission, main tasks, and competencies for each professional profile and development of generic job descriptions. iv. Integration of specific details of each job to develop specific job descriptions. 19. Incremental and structural HRM reform is necessary to introduce and consolidate a competency-based management culture in Italy. The proposed recommendations to implement require several measures. First, there should be legislative and regulatory changes supported by political decisions and high-level commitment in the GoI to be fully adopted and implemented by central public administrations. Implementing and adopting the proposed recommendations also requires setting up clear institutional governance and inter-institutional coordination mechanisms. Creating a collaborative environment for changes and change management supported by strong leadership and communication strategy is key for success. An incremental approach for implementing the reform while generating changes would be critical. 13 PART 1 Introduction 14 1. Introduction 1.1. The Italian Public Administration P1. The 2008-2009 global financial and economic crises, the subsequent hiring freeze ("blocco del turnover"), and the COVID-19 pandemic negatively impacted the Italian public administration's workforce in terms of size and quality. The 2008 economic crisis and the ensuing fiscal austerity measures pushed the Italian public sector into adopting a recruitment freeze. The number of public officials decreased by 6.13 percent from 2008 and 2018. Later, the end of the hiring freeze in 2019 led to a slight increase in public officials by 0.5 percent. However, the COVID-19 pandemic again limited the public sector recruitment opportunities for most of 2020, reflecting a further public administration downsizing, as shown in Figure 1. Figure 1: Public Officials Employed in the Italian Public Sector, 2008-2020 Source: Authors’ elaboration based on the Ministry of Economy and Finance - State General Accounting Department (MEF – RGS), Conto Annuale, and Forum PA (FPA) for estimates concerning public officials employed in 2020. P2. Strengthening the Italian public administration’s performance — including its efficiency, effectiveness, quality, and resilience — has become essential for socioeconomic development, while also ensuring the better use of public resources. The overall quality of public administration and management in Italy is less than in many European countries. The Eupack Governance Index shows that the Government of Italy (GoI) displays low public administrative capacity and a weak overall 15 performance (Eupack 2018)2. Poor public institutional performance affects the overall trust in government actions (Eupack2018), leading Italy to rank 25th in public trust in government among the 27 European Union (EU) member states. Furthermore, according to the 2020 World Governance Indicators, the Italian Government's effectiveness is low compared to other European countries (24th rank). Additionally, the World Bank composite governance index, as measured by a variety of expert opinion surveys3, ranks Italy 20th of the 27 EU member states in the average quality of public administration, scoring it among those countries presenting the highest need for administrative improvements, as shown in Figure 2. The picture is further corroborated by the 2021 European Quality of Government Index (EQI) that ranks Italy low in quality of government among the 27 EU countries (that is, the 22nd rank, 2021 EQI data), reporting a significant variation across Italian regions (Figure 3). The GoI and various Italian stakeholders have recognized that the weak administrative capacity for service deliveries, especially at the local level, is one of the main challenges the Italian public administration currently faces4. Figure 2: Average Score of Quality of Public Administration Across 27 EU Countries (Points) 30 25 20 15 10 5 0 d r a in n E ium w s k yp c ol y L ia el rg S ia Ir ce et m d a m d u e b ia or lic M in us a k re ry u hu ta un tia s Fr tria rl ny ve l lo a ch P al C ni om ri S nd ep n F de C bli ar ep c ru A ni N er an en n n v m n S tug L Lit al pa va G g a B ou R e P ub an H oa R a he a R ga D la at a It xe a o g e G l a e st ul B ze lo C S Source: Bureaucracy Lab, World Bank (2020). 2 The overall indicator of public administration capacity and performance is a composite indicator that combines: (i) Transparency and accountability, (ii) Civil service system and HRM, (iii) Service delivery and digitalization, (iv) Organization and management of government, (v) Policy-making coordination and regulation, and (vi) Overall governance performance. See “A comparative overview of public administration characteristics and performance in EU28�, Eupack, Thijs N., Hammerschmid G.,and Palaric. E, 2017, pag. 58. 3 The figure shows the composite indicator of institutional quality for each EU27 country, based on various sources. The composite indicator combines: (i) the Quality of Government Expert Survey (2015) indices of the impartiality of public administration and professionalism of public administration; (ii) the Sustainable Governance Indicators (2018) for executive accountability and executive capacity; (iii) measures of perceptions of the public administration from the Eurobarometer (2018) survey; (iv) the European Commission Digital Economy and Society Index (2018); and (v) the Worldwide Governance Indicators (2017) for government effectiveness and control of corruption. For each of the indices, rank scores were created to be increasing in public administration from best (27) to worst (1) across each of the EU27 countries. The composite indicator is the average across each of these scores. 4 European Semester Country Report, (European Commission, 2022). 16 Figure 3: The 2021 European Quality of Government Index (in rank order and regional variation) Source: The Quality of Government Institute (2021). Note: AT= Austria; BE= Belgium; BG= Bulgaria; CY= Cyprus; CZ= Czech Republic; DE= Germany; DK= Denmark; EE= Estonia; EL= Greece; ES= Estonia; FI= Finland; FR= France; HR= Croatia; HU= Hungary; IE=Ireland; IT= Italy; LT=Lithuania; LU= Luxembourg; LV= Latvia; MT= Malta; NL= Netherlands; PL=Poland; PT=Portugal; RO= Romania; SE= Sweden; SI= Slovenia; SK= Slovakia. P3. The Italian public sector is one of the major sources of employment in the country, although it still employs fewer people than in other large European countries. Globally, the public sector accounts for roughly 15 percent of total employment. In Italy, by comparison, the public sector employs more than three million public officials, corresponding to almost 13.4 percent of the total labor force (ForumPA Data Insight 2021). However, when comparing public officials as a share of the total employment, the Italian public sector employs fewer individuals than other European countries. For example, France employs 5.6 million public officials (19.6 percent of total employment), the United Kingdom (UK) 5.2 million employees (16 percent of total employment), and Spain, 3.2 million public officials (15.9 percent). Italy also has a smaller share of public officials per resident population (5.6 percent) than France, the UK and Spain, accounting for 8.4, 7.8 and 6.8 percent, respectively (ForumPA Data Insight 2021). Looking at the distribution of public officials by sector, 65 percent of public officials work in central level administrations. Although most central public officials are employed in the 17 education, health5, and defense-related sectors, only a small proportion of public employees work in the central public function6, as shown in Figure 4. Figure 4: Public Officials: Employment Distribution by Sector 45.00% 1,400,000.00 40.00% 1,200,000.00 35.00% 1,000,000.00 30.00% 25.00% 800,000.00 20.00% 600,000.00 15.00% 400,000.00 10.00% 5.00% 200,000.00 0.00% 0.00 Central Function Defense Education and Health Local Function Administrations Research Administrations Total number of employees Percentage Source: Authors’ elaboration based on MEF data (2019). P4. According to the legislation, there are two categories of public employment governed by private labor laws and public laws, as well as two management categories, namely the top and mid- levels. As part of the 1993 civil service reform, the GoI implemented a privatization of public employment, establishing a contract�based relationship between public officials and the State. It governs public employees by private labor laws and collective agreements. However, the Italian legal framework recognizes some exceptions. It acknowledges that some public employees — such as magistrates, university professors, armed and police force staffers, diplomats, prefects, and firefighters — are exempt from privatization (Article 3, Dlgs 165/2001). These specific public employees are governed by special statutes and remain under public law, as explained in detail in Box 1. Public managers also deserve a separate discussion. Since 1998, they have been formally regulated by private law or, more accurately, by a mix of public and private laws. They benefit from a dual regime based on an open-ended and stable employment relationship, which enters into effect once recruited, as well as a fixed-term and temporary employment relationship, which enters into effect if appointed to oversee a particular managerial office. The fixed-term appointment is regulated by private law, with provisions different from those that apply to private managers. As such, it poses problems concerning the balance between political and administrative actions. For example, in Italy, the political appointee refers to the fix-term assignments, which are always timed. Thus, they can sometimes cease prematurely when the government changes. Therefore, the Constitutional Court has developed a 5 It should also be noted that the Italian healthcare employment is regulated at the regional level, representing about 60 percent of the total employment at the local level. 6 Public administration sectors are intended here as different from the Italian public administration, that is, the “Comparto� as defined by the National Collective Agreements. Therefore, public officials such as magistrates and diplomats have been assigned to central function administrations. 18 copious jurisprudence to distinguish the top management from other mid-managerial positions. The former is in direct and close contact with elected officials and their appointments are generally subject to discretionary political choice. However, this is not permitted for mid-management positions, as that would undermine the impartiality of administrative decisions — and contradict the principle of separation between politics and management. Overall, the Italian legal framework does not clearly distinguish between civil servants and public employees. Box 1: An Overview of the Evolution of the Italian Public Employment Relationship Historically, the traditional model of Italian public employment was characterized by a hierarchical relationship between politics and administration, regulated by special public laws. The former dimension found its legal basis in the principle of ministerial responsibility enshrined in the Constitution (Article 95): "Ministers are collectively responsible for the acts of the Ministers Council and individually for the acts of their departments." Based on this principle, the Minister, as a rule, must sign all the Ministerial Acts. The latter dimension refers to specific public laws regulating the employment relationship of public employees based on a former interpretation of the Constitution of reserving the discipline of the administrative organization to the law (Article 97.2). The public laws were then applied to the individual public employee by administrative measures (for example, recruitment, transfer, promotion to higher levels, dismissal) against which the employee was granted the opportunity of judicial review to a special court, the administrative tribunal. Public employment was part of the administrative organization and, therefore, had to be regulated by law and not by collective agreements, as is the case of the private sector. It was the so-called "sovereign employer" model, where the State is an employer that regulates the relationship with its employees and follows its laws. In the "sovereign employer" model, the political dimension (identification with the State) prevailed over the economic dimension (the relationship between employer and worker). In this context, civil servants had carried a special status regulated by law, but without being part of an employment contract. Starting from the 1970s, the Italian administration moved away from its traditional model, almost overturning it in the 1990s. This occurred when the need for greater efficiency and flexibility prevailed due to the European integration pressures and the spread of the new public management theories. The 1972 public administration reform separated public managers from other public employment categories. It also attributed specific powers to them, rectifying the principle of ministerial responsibility. In 1993, legislative decree (Dlgs) 29/1993 (now merged into Dlgs 165/2001) introduced the general principle of separation between policy, which belongs to politics, and management, which must be entrusted to neutral public managers. The principle of ministerial responsibility (Article 95 of the Constitution) must, in fact, be balanced with the principle of impartiality of the administration (Article 97 of the Constitution): thus, the day-to-day administration and management of human and financial resources must be carried out by managers placed "at the service of the Nation" (Article 98 of the Constitution) — and not at the service of the political majority that temporarily represents the government. However, sector laws introduced the collective bargaining method in the public sector in the 1970s, then generalized them in 1983. However, the agreements concerned only some aspects. Thus, it had to be transposed in state regulations to formally comply with the "sovereign employer" model. In 1993, and then more decisively in 1998, the public administration reform waves completely reversed the sovereign employer model. For most public employees, the employment relationship 19 was privatized, regulated by a contract, and governed by authentic collective agreements, stipulated by trade unions and a special public agency (ARAN), potentially covering all aspects of the employment relationship without being incorporated into regulatory acts. The collective agreements are disciplined by the same laws and managed with legal acts under the same legal regime as private sector employees. The competent judge is the labor judge, as in the private sector. The interpretation of Article 97 of the Constitution has accordingly changed. The Constitution provides statutory provisions only to the administrative organization, which does not include the employment relationship of public employees. Therefore, the sovereign employer model is no longer imposed by the Constitution. Italian public employees are not solely governed by private law; rather, they are governed by a mix of private and contractual regulations, as well as a substantial number of special provisions. Indeed, there are two important exceptions to privatization. The first one, which is objective, refers to Article2, c.2 of the Dlgs 16/2001. It has special provisions for public employees and derogates from private law, recognizing that the employment relationships of public administration employees are governed by private law "without prejudice to the various provisions contained in the present decree." The second exception is subjective and refers to Article 3 of the Dlgs 16/2001, acknowledging that some public employees are exempt from privatization. These public employees are judges, state lawyers, military and police personnel, diplomatic and prefectural career personnel, and university professors. Following the sovereign employer model, these specific public employees are governed by special statutes and remain under public law. These exceptions have grown over time. Today the legislative decree is a text of 73 Articles, 63,731 words, 422,344 characters. In addition, many other laws often introduce additional provisions dedicated exclusively to public employees. P5. About 60 percent of public officials are female. However, gender parity varies depending on professions and positions, and the gender pay gap persists in the wage system. The public sector is generally a large employer of women compared to the private sector across all countries in the EU. As such, it contributes to gender parity. It is also partially explained by non-monetary drivers of employment, such as flexibility of working hours and distance from home (Rizzica 2016). Italy employs a larger number of women than men in the public sector, but there are significant differences across types of professionals, positions and sectors. Women are more represented in professions such as magistrates, prefects, and schoolteachers rather than diplomats, doctors, and policy positions and the armed forces. Simultaneously, most public managers and university professors are men, representing 60 and 62 percent of the total employment, respectively, as shown in Figure 5 (see also Appendix 1 “Age and gender distribution by sector and organization� for detailed gender distribution across sectors). The underrepresentation of women in some public professions and managerial positions may partially explain the gender pay gap. In fact, female public officials are paid, on average, 71 percent of the wages earned by male public officials, as shown in Figure 6. 20 Figure 5: Distribution of Public Official by Position and Gender Teachers Researchers Professors and researchers Prefects Other personnel Managers (I and II fascia) Magistrates Doctors Diplomats 0.00% 10.00% 20.00% 30.00% 40.00% 50.00% 60.00% 70.00% 80.00% Female Male Source: Authors’ elaboration based on MEF data (2019). Figure 6: Female-Male Pay Ratios Across EU Countries 100.00% 90.00% 80.00% 70.00% 60.00% 50.00% 40.00% 30.00% 20.00% 10.00% 0.00% LUX DNK AUT CYP MLT CZE FRA LVA BGR GRC EST ESP LTU BEL HRV ROU ITA FIN PRT Source: World Bank’s Worldwide Bureaucracy Indicators (WWBI) (2018). Note: AUT= Austria; CZE= Czech Republic; CYP= Cyprus; ITA= Italy; EST= Estonia; FRA= France; BEL= Belgium; ESP= Spain; LVA= Latvia; LUX= Luxembourg; FIN= Finland; PRT= Portugal; HRV= Croatia; BGR= Bulgaria; LTU= Lithuania; GRC= Greece; MLT= Malta; DNK= Denmark; HUN= Hungary; and ROU= Romania. P6. Almost half of the Italian public officials hold tertiary education qualifications, yet this figure is lower than the average of European countries at 60 percent. In this context, 47 percent of Italian public officials hold a university degree, followed by individuals with a secondary education at 39 percent, and people with primary education at 14 percent, as shown in Figure 7. Looking at public managers, they are generally highly educated as a requirement to obtain the position (98 percent)7. 7 “Una nuova leadership Italiana�, G. Fattore, Economia&Management, 2021 21 Figure 7: Educational Qualifications of Public Sector Paid Employees 100.00% 80.00% 60.00% 40.00% 20.00% 0.00% LUX CZE FRA ITA PRT HUN HRV AUT MLT BGR BEL DNK FIN ROU CYP LVA ESP GRC EST LTU No Education Primary Education Secondary Education Tertiary Education Source: Worldwide Bureaucracy Indicators (WWBI) (2018), World Bank. Note: LUX= Luxembourg; CZE= Czech Republic; FRA= France; ITA= Italy; PRT= Portugal; HUN= Hungary; HRV=Croatia; AUT= Austria; MLT= Malta; BGR= Bulgaria; BEL= Belgium; DNK= Denmark; FIN= Finland; ROU= Romania; CYP= Cyprus; LVA= Latvia; ESP= Spain; GRC= Greece; EST= Estonia; LTU= Lithuania. P7. The limited recruitment opportunities caused initially by the hiring freeze — and then the COVID- 19 emergency restrictions — have led to an aging public administration with many close to retirement. The hiring freeze locked the generational turnover of human resources, raising the average age of employees to 50 years old. This meant that the Italian public administration had the highest proportion of public officials aged 55 years old or older in Europe, as shown in Figure 8. At the same time, the pension system reform "quota 100", which was introduced in 2019, facilitated the retirements based on working tenure (and therefore pension contributions), further decreasing the number of public administration employees since 2019 (ForumPA 2021). The limited recruitment opportunities permitted during the hiring freeze and then under the COVID-19 emergency restrictions could not offset the diminution of public officials, further contributing to the aging trend of public sector employees in Italy. Figure 8: Proportion of Public Officials Aged 55 Years or Older 22 Source: Preliminary data (OECD, 2020). Note: OECD= Organisation for Economic Co-operation and Development. P8. The pension system reform "quota 100" increased the number of retirees and created immediate hiring needs. The Italian public sector requires the recruitment of up to 300,000 public officials over the next three years, although this estimate seems ambitious (Forum PA 2021). The pension reform “quota 100� allows staff who reach 62 years of age before December 31, 2021, and who have at least 38 years of contributions, to retire. According to the latest estimates, 500,000 public officials are over 62 years old, and there are 183,000 public officials with more than 38 years of service tenure in 2021 (Forum PA 2021). In total, more than 20 percent of total public employees had the option to retire. In the wake of an aging public sector workforce and generational turnover, an effective and efficient recruitment system is becoming a critical component for re-designing the public service. P9. The limited turnover and overall reduction of public employment may have sapped the public sector’s innovation capacities. The combined effect of a reduction in total staff due to retirements and — notably, the near impossibility to acquire new skills on the labor market due to the hiring freeze — is likely to have stemmed public sector innovation and/or limited the longer-term sustainability of promising innovations (Van Acker and Bouckaert 2017). The acquisition of adequate skills is relevant both for the daily operations of public administration, as well as its longer-term development. Adaptation to the changing operating environment and the proactive anticipation of future needs depends upon the organizational intelligence, which in turn is also predicated on the acquisition of skills through recruitment. Innovation is also enabled by the breadth and variety of knowledge, know- how, and the existence of some “spare� resources, especially human resources. Innovation also requires exploring novel ways of working, detecting, and interpreting the trends in the organizational environment, as well as exploring new avenues through pilot projects. All these activities are made possible only by an adequate pool of skills and expertise in terms of both quality (fit, variety and complementarity) and quantity. P10. The Italian public administration hiring "impasse" has further skewed the public administration structured around the “typical profile� of public employees, which is widely characterized by its legal and administrative culture and knowledge. Among the public officials holding a university degree, 70 percent of them hold a degree in the social science and humanities disciplines. Notably, about 30 percent of them hold a law degree, followed by degrees in economics (17 percent) and social sciences (16 percent) (Giorgiantonio and others 2016). Public managers present similar educational characteristics, since most of them hold a law degree, followed by degrees in economics and political science, thus demonstrating that the Italian public administration is widely based on a legal- administrative knowledge base (Fattore 2020). Therefore, the structure of the public sector historically reflects what has been considered a "typical profile" of the public administrator (tenured official): a generalist profile with specific skills in managing administrative procedures (“procedimento amministrativo / procedura amministrativa�) within a highly legalistic, rigid, and hierarchical context (ForumPa 2021). P11. Looking at the matching between degrees required by specific positions and degrees held by public officials, the Italian public administration is characterized by an under-education and over- education phenomenon. The former phenomenon partially results from the abuse of career progressions granted during the 2000s, when internal candidates were frequently assigned to vacant positions requiring higher qualifications for external access. Interestingly, most public officials in 23 service experienced multiple career progressions between 2001 and 2009. Specifically, 74 percent and 39 percent of public officials in service experienced a horizontal and vertical progression, respectively, between 2001 and 2009. However, this trend led to a concentration of internal public officials holding more "senior" positions, regardless of their level of educational qualification, reducing the opportunity for younger candidates with tertiary degrees (and postgraduate degrees) to win public jobs requiring lower educational qualifications (Battini and Gasparini 2020). P12. The majority of public sector employees come from the central and southern regions of Italy, a socio-institutional feature known as the 'Southernization' of the civil service. This situation is explained by the historical lack of alternative sources of jobs in the southern regions that have not benefited from economic development and industrialization as compared to that of the northern regions (Lewansky and Toth 2011; Ongaro and others 2019). This trend is also reflected in the provenance of managers and is a relevant and enduring feature. According to the latest findings, 44.40 percent of senior executives come from the southern regions, 40.50 percent come from the center, and only 13.7 percent come from the northern regions (although, relatively speaking, this is the most populated area of the country, hosting more than a third of the total Italian resident population). It should also be noted that 2.50 percent come from foreign countries8 (Fattore 2020). P13. The 'Southernization' of the civil service has also contributed to an unequal territorial representation and consequent distribution of public officials throughout the country. Since most candidates apply for public posts in specific southern localities, it becomes challenging to cover public positions and provide the required competencies in northern localities. Little-sought localities, such as those in the north, evidence a lesser number of competing candidates. Therefore, they provide greater chances for the individual candidate to win the public competition. This has led to a trend toward southern candidates applying for jobs in these localities, only to demand immediate relocation after having won the post. Thus, this has become a critical issue for central public administrations, which are characterized by territorially deconcentrated offices such as the Ministry of Justice (MOJ). P14. The typical profile of the Italian public administration does not reconcile well with ongoing socioeconomic dynamics, notably (but not limited to) the digital transformation, which has led to a misalignment between extant and needed skills by public sector organizations. “In Italy, digital illiteracy, skills shortages, obsolete workforce competences, and poor digital civic literacy are more severe than in most other European countries�9, ranking 25th of 27 EU countries in the human capital index (DESI, 2021). Indeed, Italy falls below the EU average, as shown in Figure 9. Looking at the “digital public services for citizens� and the Digital Economy and Society Index (DESI) sub-index, the Italian public administration performs poorly in providing digital services to citizens as compared to other European countries, ranking 18th of the 27 EU countries — despite the improvements shown in recent years. According to the permanent census of public institutions conducted by the National Institute of Statistics (ISTAT), 65 percent of surveyed public officials indicated that the lack of qualified candidates and adequate training are notable challenges in using digital technology10(ISTAT 2017). The World 8 The Article 38 of Dlgs 165/2001 establishes that “citizens of the Member States of the European Union may have access to a position in public administrations that do not involve the direct or indirect exercise of public powers, or they do not concern the protection of the national interest.� 9 Paola Pisano, Minister for Technological Innovation and Digitalization, Declaration from the Minister for Technological Innovation and Digitalization 8 April 2020, https://digital-strategy.ec.europa.eu/en/news/italy-launches-its-national- coalition-digital-skills-and-jobs 10 However, most of them also believe that employment costs and financial constraints are the key impediments for effective digital transformations to occur in the public sector. 24 Bank survey findings further confirm a misalignment between extant and needed digital skills in the public sector. Indeed, 67 percent of surveyed public managers in the central public administrations report that their organizations use consultants or temporary staff to help fill the digital skills gaps. At the same time, they recognize that digital skills are a crucial priority for their organization and the building of a high-performing team. Figure 9: Digital Economy and Society Index, 2021 Source: Digital Economy and Society Index (DESI, 2021), and the European Commission. Note: DK= Denmark; FI= Finland; SE= Sweden; NL= Netherlands; IE=Ireland; MT= Malta; EE= Estonia; LU= Luxembourg; ES= Estonia; AT=Austria; DE=Germany; BE= Belgium; SI= Slovenia; LT= Lithuania; EU= European Union; FR= France; PT= Portugal; LV= Latvia; CZ= Czech Republic; HR= Hungary; IT= Italy; CY= Cyprus; SK=Slovakia; HU =Hungary; PL= Poland; EL= Greece; BG= Bulgaria; RO= Romania. P15. The COVID-19 pandemic and the ensuing crisis further highlighted the poor level of digital competencies in the Italian public sector. The adoption of remote/home working during the COVID- 19 crisis has been somewhat limited in the Italian public sector, where only 33 percent of public officials reported to have worked from home at least once during the second trimester of 2020 11 (ISTAT, 2020). Although the level of remote/home working adoption in the public sector has significantly increased from the pre-COVID era, there is still a strong need for updating, consolidating, and developing digital skills at the individual and managerial levels to support and enable the more effective adoption of remote work. According to public employees surveyed by Forum PA in 2020, the top three elements needed to support remote working in the future are: a re-thinking/reengineering of working processes; a better definition of individual objectives; and training in the use of technology and virtual communication tools12. P16. The COVID-19 crisis has also highlighted the need for individual and organizational learning about more nuanced managerial approaches based on objectives and outcomes that move away from the traditional logic of executing tasks. The interviews with human resource (HR) directors during this project revealed that public managers adopting managerial practices based on traditional approaches struggle to achieve their work and performance objectives. Also, it confirmed that public managers 11“Il mercato del lavoro 2020. Una lettura integrata�, ISTAT, page 39. 12 The survey asked the following question “Based on this experimentation period of 'forced' smart working, in your opinion, which of the following factors are most important to ensure that this working method can be used optimally and ordinarily?� The top three response options were: a re-thinking/reengineering of working processes (57 percent); a better definition of individual objectives (36.6 percent); and training in the use of technology and virtual communication tools (31.6 percent). 25 poorly implement results management indicators in evaluating and planning individual objectives because they are still more focused on task execution than on a results-based work approach13. P17. Although in-service training programs are critical instruments for strengthening public employees’ competencies, evidence shows a decrease in the training opportunities, as well as an enduring focus on traditional knowledge. Training provisions are crucial leverages in reinforcing public employees’ competencies and reducing the misalignment between extant and needed skills by public sector organizations, particularly under circumstances of limited recruitment opportunities and an aging public workforce. However, investments in in-service training have declined in the last ten years, and the training provided is still focused on traditional competencies. However, institutions such as the Italian National School of Administration (SNA) and some higher education institutions have recently been developing their education and training offerings to encompass a wider range of competencies. According to the most recent data, about €110 million were invested in training programs from 2009 and 2019 (ForumPA 2021). At the same time, the ISTAT permanent census of public institutions shows that current training programs primarily aim to strengthen technical and legal-administrative knowledge (ISTAT 2017). Data also indicates insufficient training in digital and managerial skills. 1.2. Moving Towards a Competency-based Management P18. Improving public sector performance is driven by better capacity in public sector organizations. This requires identifying and acquiring competencies (partly novel and different) needed for sustainable organizational development on the job market. Over the past three decades, competency management has increasingly become a common feature of Human Resources Management (HRM) in public administration. There is no specific origin to the competency management trend in the public sector, and it has gradually grown over time and consolidated in different places and times across the globe. However, the first experiences of competency-related management could be spotted mainly in the United States and the United Kingdom during the 1980s. According to the Organisation for Economic Co-operation and Development (OECD), since the end of the 1990s, competency management has become a strong trend in government. Indeed, most OECD countries introduced competency management as a part of a broader reform or change process14. According to Income Data Services (IDS), competency management involves the identification of those competencies that distinguish high performers from average performers in all areas of organizational activity (IDS 1997). Competency management is enabled by developing a framework to use as the foundation for recruitment, selection, training and development, rewards, as well as other aspects of strategic human resource management. P19. Since the “season of reforms� of the 1990s (Ongaro 2009; Rebora 1999), the Italian government has introduced crucial public administration reforms to strengthen administrative action and enhance its human capital. The regulatory framework adopted by the Italian authorities since the reforms of the 1990s has created the opportunity to reform and innovate the public recruitment system as part of the broader civil service reform. It introduced a HRM model based on a "professional" model to 13 Monica Parrella, Head of Human Resources Department of the Italian Ministry of Economy and Finance, “Mismatch di competenze: rafforzare capacità amministrativa, abilità digitali e leadership nella Pubblica Amministrazione�. See more here. 14 See: Organisation for Economic Co-operation and Development (OECD). “Managing Competencies in Government: State of the Art Practices and Issues at Stake for the Future.� (OECD, 2010). 26 ensure the optimal use of available public resources and the achievement of organizational performance. P20. Competency management has increasingly assumed strategic importance for each individual public sector organization in its public policy area as it seeks to fully oversee the development of public services. The ten-year hiring freeze has weakened the capacities of the organizational units in charge of recruitment in terms of identifying and recruiting suitable personnel. The recruitment task had simply atrophied during this period of substantial inactivity, and it became a marginal one in their portfolio. The recruitment offices have focused instead on other tasks, such as the management of internal mobility (although extremely limited in the Italian public administration), stabilization of procedures for temporary staff, the management of salaries, and emergency recruitment procedures. According to the interviews with HR directors during the project, public administrations are currently experiencing a 'renaissance' of their HRM functions. Indeed, the ongoing generational turnover represents an opportunity to recruit more appropriate competencies and, as part of that, to develop their capacities to identify, detect, and select such competencies and retain them later on. In this context, competency management can be a strategic tool to counter the risk that critical organizational processes will be “de facto� outsourced to other public organizations or private providers due to a lack of in-house competencies and organizational capacities to manage tasks internally. For example, many public administrations choose to “outsource� digital activities and processes to external consultants or temporary staff. This is not a strategic choice, but rather because of the lack of appropriate internal resources and competencies. P21. Public administrations have multiple channels to acquire the competencies they need. Recruitment through public competition to hire professionals with the right sets of skills and competencies is one channel, and it is the primary focus of this project. It is further analyzed and developed in output 2. Alternatively, public administrations can leverage internal mobility both within the organization and across public sector organizations. For example, mobility across public sector organizations has recently been facilitated by a reform of the procedure of authorization (“nulla osta�), that is, enabling a public employee to move from one public sector organization to another (explained in more detail in Output 2). Lastly, training and personnel development programs are an instrument for the internal development of public officials’ skills and competencies. 1.3. Scope of Work P22. Building on the Government’s plan, the GoI requested assistance from the European Commission (EC), as well as World Bank advisory and technical support to modernize its recruitment methods and processes for public officials working in the central Ministries, Agencies, and Departments (MDAs). The project called "Introduction of an innovative recruitment and assessment process in the Italian public administration," was funded by the EC. It was then tasked to the World Bank in 2019. The project aims to: (i) inform the Government's new recruitment system in developing clear job profiles for the new job classifications; (ii) reform the recruitment procedures for both public managers and employees; and (iii) design a draft guidance note to develop an assessment center. The scope was slightly adjusted during the project to adapt to the developing needs. More specifically, the project supports the Department of Public Functions (DFP) with the following activities. This report is the deliverable for Activity 1. 27 ✓ Activity 1: Develop a methodology and guidance note concerning the job profiles, including staff skills, roles, positions, and competencies; also, develop draft guidelines. ✓ Activity 2: Develop a clear and accessible menu of tools to assess candidates’ skills and aptitudes during selection procedures, including underlying explanations about options and their respective advantages/disadvantages. ✓ Activity 3: Develop a policy note concerning the implementation of the selected recruitment model(s), with a focus on digital skills. ✓ Activity 4: Develop a draft guidance note for the development and operations of an Assessment Center to assess on-duty personnel. P23. A well-performing public administration and, more specifically, motivated, and productive public officials are crucial for governmental effectiveness. Such an administration will reinforce the ability to transform public policies into concrete outcomes. Also, a high-performing public administration should attract, retain, deploy, and motivate the right people with the right skills and competencies to do the job properly, thereby delivering high-quality public goods and services. It can do so by setting the context through clear strategies, policies, and legislation for HRM, as well as by shaping agencies’ behavior in recruiting, deploying, and motivating personnel. From the perspective of public agencies, personnel represent a key input into the “production process.� By using good management practices, public institutions shape the behaviors and attitudes of their staff to achieve institutional goals. Together, high-performing public institutions are the bedrock of effective governments (see Figure 10). Therefore, developing a more innovative recruitment methodology to select staff with an appropriate combination of knowledge, skills, attitudes, motivations, and competencies is one avenue for strengthening the effectiveness of the Italian public administration. Figure 10. Human Resource Management and Government Effectiveness Source: World Bank Bureaucracy Lab. P24. The guideline to identify job profiles, roles, positions, essential skills, and competencies is the critical and strategic HRM tool used to support public administration recruitment, career management, and staffing. The Dlgs 75/2017 sets the rules regarding the programming of the personnel needs in the public administration, in accordance with the three-year program. Given its strategic, financial, and operational objectives, each administration must analyze its personnel needs to identify the required 28 competencies to fulfill its goals. Therefore, enabling each individual administration to effectively identify such competencies to inform the recruitment process has become a crucial component of the efficiency and effectiveness of recruitment. The objective of developing a guideline concerning the methodology to identify job profiles, roles, positions and essential skills and competencies must be to provide a strategic HR tool for recruitment, career management, and staffing. As such, it must be fully owned by the central administration. P25. In response to the request from the GoI, this report examines and analyzes strategic tools for public employees and public managers in the central public administration. The central public administrations perform an administrative and regulatory function at the central level. They can also avail the authorizing of the DFP to issue a public competition and hire public officials following the recruitment procedures called “Concorso Unico�. These administrations fall under the following macro-categories: (i) State Administrations (Ministries), including autonomous agencies, (ii) Agencies, and (iii) Non-Economic Public Entities (as shown in Appendix 2, “List of beneficiary public administrations�15). These administrations correspond to the primary beneficiaries of the project16. According to the latest statistics, the beneficiary public administrations count about 283,356 staff, corresponding to 7 percent of the total number of Italian public employees (Table 1). The analysis and the related proposals presented in this report concern recruitment on a permanent basis (“tempo indeterminato�). Table 1: Distribution of Public Officials in the Beneficiary Public Administrations Beneficiary PA Comparto - Contractual Sector Number of Percent Employees Beneficiaries Central Function Administrations 228,922 7.06% PA (Ministries, Fiscal Agencies, Non- Economic Public Entities, National Council for Economics and Labor [CNEL] and Italian Civil Aviation Authority [ENAC]) Autonomous Agencies 43,222 1.33% Non- Local Function Administrations 503,146 15.51% beneficiaries PA Education and Research 1,241,345 38.27% Health 649,517 20.02% 15 There is no univocal concept of public administration in the Italian context. It is always required that one refer to the classification model and specify the criteria applied. The Italian National Statistics Institution (ISTAT) publishes “�the list of public administrations included in the consolidated income statement (“Conto Economico Consolitato) in the Gazzette. These are identified according to the Law No. 196/2009, Article 1, paragraph 3, and subsequent amendments (accounting and public finance law). The list is based on the National and Community Statistical System classification rules (EU Regulation No. 549/2013), following statistical-economic criteria. However, the list includes various public organizations, including those institutions for which personnel is regulated by public law. Consequently, it does not enter in the concept of PA as defined by the Decree-Law 165/2001. Therefore, the list of beneficiary public administrations presented in the Appendix is based only on the Decree-Law 165/2001. It does not aim to provide an exhaustive and standardized list of administrations. 16 Those public administrations are also defined as Public Function Administrations. 29 Personnel regulated by public laws 577,771 17.81% Total 3,243,923 100% Source: Authors elaboration on MEF data (2019). Note: PA= public administration. 1.4. Research Methodology P26. This report applies a mix of qualitative and quantitative research tools in an integrated design to enrich the process and provide a more insightful analysis of the existing recruitment system. The World Bank team applied the following research tools in this order: ✓ Desk review of analytical, strategic, and legal documents about the Italian recruiting system. ✓ Semi-structured interviews with representatives from the Italian public administrations, academic practitioners, and other countries’ public administrations. Semi-structured interviews were conducted. Individual meetings by the World Bank team were based on a developed framework of public recruitment themes. This was done to allow the interviewees the possibility to more openly express their views about issues, as well as to bring up new ideas and approaches. ✓ Online survey to collect public officials' experiences and perceptions during the recruitment process and their respective levels of motivation. P27. The semi-structured interviews were conducted between April 2021 and February 2022 with three different respondent groups (see Appendix 3, “List of interviews�, for the complete list of interviews conducted): ✓ HRM Directors and funzionari in a restricted sample of six beneficiary public administrations to further investigate how individual administrations carry out their recruitment procedures. ✓ Institutions involved in the recruitment process, such as the ARAN. ✓ International public administration representatives from OECD countries (including Belgium, Ireland, the Tax Agency of Sweden, and France) and from the European Personnel Selection Office (EPSO) to develop international comparative cases and best practices. P28. Between October and December 2021, the World Bank team designed and implemented an online survey to collect detailed data about the recruitment experiences of public officials and their motivation to serve the public. The online survey received responses from 2,159 public officials holding managerial and non-managerial positions from 22 central public sector administrations. 1.5. Structure of the Report P29. The report is structured as follows. ✓ Chapter 2 presents an analysis of the strategic human resource tools in the Italian public administrations. ✓ Chapter 3 presents a detailed view of the main proposal, as well as smaller scale recommendations. 30 PART 2 Strategic Human Resource Tools 31 2. Strategic Human Resources Tools in the Italian Public Sector 2.1. Strategic Workforce Planning P30. The human resource departments of public administrations perform critical roles in implementing the following tasks: (i) scoping and identifying the skills and competencies needed to meet current and future priorities through the development of strategic workforce planning; (ii) ensuring the appropriate management of competencies within the administration, as well as through the use of performance management and appraisal tools; (iii) attracting and selecting candidates with the right sets of skills and competencies; and (iv) continuously developing skills and competencies through the provision of training and development programs. This report focuses on the analysis of the first task and, partially, on the second task. P31. Workforce planning is a continuous and systematic process of identifying and addressing gaps between the current workforce and human capital needs. It refers to the capacity of public organizations, particularly HRM Departments, to map their skills and competencies within their existing workforce to better understand the present capabilities and identify gaps (OECD 2017). According to the Chartered Institute of Personnel and Development in the UK, “workforce planning is the process of balancing labor supply (skills) against the demand (numbers needed). It includes analyzing the current workforce, determining future workforce needs, identifying the gap between the present and the future, and implementing solutions so that an organization can accomplish its mission, goals, and strategic plan�, as shown in Figure 11. Therefore, “it is about getting the right number of people with the right skills employed in the right place at the right time, at the right cost and on the right contract to deliver an organization’s short and long-term objectives�17. Figure 11: Workforce Planning Process Source: The UK Chartered Institute of Personnel and Development. 17 https://www.cipd.co.uk/knowledge/strategy/organisational-development/workforce-planning-factsheet#8035. 32 P32. The adoption of workforce planning as a strategic HRM process has become increasingly common across OECD countries. According to the survey on strategic human resource management in central or federal governments conducted by the OECD in 2016, many OECD countries have in place regular workforce planning processes to ensure that governments have sufficient workforces to deliver services, as shown in Table 218. Table 2: Workforce Planning Process in OECD Countries, 2016 Yes, and there is a formalized, Yes, but the design of the Yes, when and where No workforce systematic and whole-of- framework is left to the the need arises (ad planning process government process in place to discretion of the different hoc) standardize workforce planning organizations Austria, Czech Republic, Ireland, Belgium, Finland, France, Estonia, Greece, and Denmark, Hungary, Portugal, Slovenia, and Spain. Germany, Italy, Latvia, the Slovak Republic. Iceland, Lithuania, Poland, Sweden, and and Norway. Switzerland. Source: OECD (2016). P33. In line with international practices, the Italian public administrations have adopted a formal human resources strategic planning approach since 2001. The three-year personnel need plan (Piano di fabbisogno del personale) is a planning and strategic tool to identify public administration personnel needs in line with the institutional activities and organizational objectives. The tool, initially introduced with the legislative Decree (Dlgs) No. 165/2001 and then revised with the Ministerial Decree issued on July 27, 2018 (Madia Reform), is meant to be a departure from the previous model. As such, it is focused on identifying the total required number of staff per administration (Dotazioni Organiche). It adopts the concept of personnel need (Fabbisogno di personale). P34. The development of workforce planning is autonomously conducted by each public administration, which also has the discretion of designing and setting the related framework. In the Italian public sector, the Department of Public Functions (DPF) provides general guidelines in developing workforce planning. Public administrations can then use their discretion in developing their workforce framework and design, as shown in Table 2. This was also confirmed during the desk research and interviews. P35. The tool gives each administration the authority to determine their personnel needs in terms of size and types of skills and competencies required to fulfill their three-year strategic, financial, and operational programs. This is done within the allocated budgetary resources of the administration. According to the “Guidelines for the development of the three-year personnel needs plan� issued by the DFP in 2018, the personnel needs are based on two dimensions: quantitative, that is, the numerical amount of the staff, and qualitative, that is, the appropriate set of skills and competencies needed to fulfill the organizational mission and objectives. P36. Each administration must determine their personnel needs plan every three years. These are modifiable every year and/or in response to current staffing contingencies (according to a rolling plan logic), adjusting their staffing needs when required. The annual revision of personnel needs aims to overcome the mere logic 18 OECD, Public Governance Reviews, “Skills for a High Performing Civil Service�, (OECD, 2017), 64. 33 of replacement of the leaving/retiring public officials. It also introduces the possibility of identifying and integrating new professional profiles in their workforces. P37. The development of the plan for personnel needs implies that each administration performs an analysis of the organizational structure. Public administrations are challenged to concretely understand the priority and future personnel needs, specifically identifying the appropriate profiles, skills, and competencies to address them. For example, the “Guidelines for developing the three-year personnel needs plan� encourages public administrations to strengthen their institutional and core business rather than back-office functions19. The shift is from the focus on headcounts (dotazione organica) to setting a ceiling to the personnel budget to endow each public organization with ample autonomy in identifying their personnel needs. P38. The three-year personnel needs plan should be fully linked with the programmatic documents of each public administration. According to the DFP general guidelines, “The needs plan must be defined consistently downstream of the overall planning activity�. The programmatic public administration documents, such as the performance cycle document, reveal the organization’s strategic and specific objectives to be achieved. The budgeting documents indicate the amount of dedicated financial resources available. P39. In line with the National Recovery and Resilience Plan (NRRP) strategic framework, the latest Brunetta reform introduces the Integrated Activity and Organization Plan (Piano Integrato di Attività e Organizzazione - PIAO), aimed at setting the basis for a more strategic and integrated HR management in the public administration. The Decree-Law 80/2021 establishes that public administrations with more than 50 employees must integrate all the programmatic plans, including the three-year personnel plan, the objectives plan, the training plan and the anti-corruption plan into a single programmatic document (PIAO), starting from April 30, 2022. P40. The main actors involved in planning HR needs are the HRM Departments in the respective administration, the DFP, and the Ministry of Economy and Finance, as follows: ✓ HRM Departments of single public administrations are responsible for developing their internal personnel policies and instruments for managing and planning their human resources. ✓ The DFP, under the auspices of the Presidency of the Council of Ministers (PCM), oversees the workforce planning documents prepared by the institutions. It then endorses them. ✓ The State General Accounting Department (Ragioneria Generale dello Stato - RGS) of the Ministry of Economy and Finance (MEF) authorizes and signs off on the budget for the total staff to be employed by each public administration, and notably for the vacant positions to be filled. Furthermore, the RGS checks and endorses the compliance of the planning documents sent by the institutions with the state budget, as well as the specific endowment to the administration. 2.2. Practical Use of the Strategic Workforce Plan P41. The development of the strategic workforce plan is generally based on a bottom-up process. The process of identification of personnel gaps hinges on collaboration and a series of consultations between line departments and HR, as well as between the Human Resource Department and the Head of Mission (usually a Department or a Directorate General, at the higher hierarchical level) and/or regional departments. In turn, 19 “Linee di indirizzo per la predisposizione dei piani dei fabbisogni di personale da parte delle PA�, Ministero per la semplificazione e la pubblica amministrazione, DECRETO 27 luglio 2018. 34 departmental heads make use of their internal staff to analyze personnel gaps and inform the HR Department accordingly. P42. The approaches to developing the strategic workforce plans vary across central public organizations. Some administrations are bearers of best practices, and some other administrations require more guidance and support in developing their workforce plans. According to interviews with HRM Directors and academic experts, the central public administrations adopt one of the following conceptual approaches for the development of their three-year personnel plans20: ✓ The inertial approach. Despite the revision of the legal framework and DFP guidelines for the three-year personnel needs plan, most public administrations still treat the development of the plan as an administrative obligation rather than one that should be informed by robust analysis of the internal organizational and administrative processes. Public administrations do not perform gap analyses of the skills and competencies that might foster organizational development. Rather, they tend to stick to a logic of “replacement�, that is, “reproducing the existing [staff] with little discontinuity from the past�21. They define the current personnel needs with a similar quantitative and qualitative content of historically established professional profiles, suggesting that strategic planning is still driven by headcounts and budgets. In practice, the executives identify the professional profiles (not the skills / competencies) internally, which are then communicated to the Human Resources Department. In this scenario, strategic workforce planning does not fulfill its function as a planning instrument. ✓ The rational approach. This approach is driven by a reconnaissance of organizational processes and administrative activities in line with the organizational strategy. Such a rationalistic approach demands time and competencies to fully work out the detailed analysis that should inform the new strategic plan. During the interviews conducted by the World Bank team, it was emphasized that most of the Italian public administrations do not know and do not have the data available to carry out high-quality HR planning. Most public administrations appear to lack the robust HR data22 and capacities to analyze public administration employment trends, as well as the strategic needs to feed into the plan. Therefore, public administrations that use this approach still tend to follow the replacement logic until the functional review of organizational processes and administrative activities has been completed. In the absence of such functional review exercises, which should be conducted on a relatively regular basis to be effective, they tend to be very infrequent. Thus, public administrations — even those more aware and, in principle, orientated to adopt a rational approach — tend to fall back into the replacement logic. ✓ The competencies approach. The HRM Department carefully analyzes the organization's strategies and future planning to inform the strategic workforce plan. Based on this analysis, they also analyze the technical competencies needed either through a mapping process (usually covering managerial positions) or based on the internally conducted performance evaluations and appraisal processes. Public administrations, such as the Italian Revenue Agency (IRA), that follow this approach hold more robust HR data. They apply data-driven policy-making processes, which are also facilitated by the nature of their core businesses. In this case, the development of the strategic workforce plan is seen as a management tool, integrated with the organizational strategy and planning documents that certify the resources needed for recruitment. As such, they provide information to incorporate them with the business strategy. 20 The conceptual classification described is based on information collected through interviews with HRM Directors and researchers at Bocconi University. 21 The National Resilience and Recovery Plan. #NextgenerationItaly, 2021. 22 HR data is managed by each administration, and centrally compiled by the Ministry of Economy and Finance. 35 P43. The three-year personnel needs plan should be a tool for supporting human resource strategic management in public sector organizations. If appropriately utilized, they might be able to overcome the "emergency" and "replacement" logics that tend to prevail due to decision-making dynamics intrinsic to the broader administrative system. The DFP guidelines suggest an approach for strategic HR analysis and planning centered around the vision of a well-performing HRM system without strengthening the capacity of public institutions to implement such an approach. According to some HRM directors interviewed, most public administrations do not have enough internal capabilities to support proper HR planning. For example, the HR department of one of the ministries has a very limited staff and has outsourced most of its tasks to publicly owned external providers of services like Formez, an arm’s length provider of human resources management services to both central and local government. Therefore, it becomes key to support public administrations in strengthening their planning capacities and their usage of the strategic workforce plan, as discussed in section 3 (Proposed methodological option 1: Strengthening Strategic Workforce Planning). 2.3. Classification of Professions 2.3.1 Overview of the Italian Collective Bargaining Process P44. Public employees are classified according to professional areas or categories and profiles in line with labor contract negotiation processes of Italian public personnel employment and the Italian law (Article 52, Dlgs 165/200123). The collective bargaining process unfolds at two levels. P45. The first level concerns the bargaining process between the ARAN, which collectively represents the public administration as an employer in the national bargaining process, and the trade union confederations . Since 1993, the Agency for Collective Bargaining for Public Administration (ARAN) is the single body in charge of negotiating all public sector employment contracts. The first phase defines the National Collective (Labor) Contract (Contratto Collettivo Nazionale - CCN) that sets the economic treatment and regulatory framework applicable to all workers in a specific sector (Comparto). The sectors or the comparto are the following: (i) central government (or central level function)24; (ii) regional and local governments; (iii) education and research; (iv) health and health-related sectors; and (v) the Presidency of the Council of Ministers (Presidenza del Consiglio dei Ministri, PCM). In turn, the CCN defines the professional areas or categories, that is, the aggregates of professional profiles characterized by a series of similar characteristics and related remuneration levels, as shown in Figure 12. Public managers form a specific and separate area within each sector. The CCN guarantees that the set of tasks assigned to public employees is defined by the professional area or category in which the related professional profile falls, thus limiting the employer's discretion. 23 Article 52 of the Legislative Decree No. 165 of 2001 has been recently amended by the Legislative Decree No. 80 of 2021, which introduces an additional professional area, as discussed in section 2.2.3. 24 The Comparto of central government administrations covers ministries, fiscal agencies, non-economic public entities and all public administrations defined by Article 70 of Dlgs 165/2001. 36 Figure 12: National Collective Bargain Process in The Public Sector (Level 1) Source: Authors’ elaboration. Note: PCM= Presidency of the Council of Ministers. P46. The second level concerns the negotiation process between each individual public administration (within a given comparto) and the public sector organization’s trade unions, representing the staff of the organization. This stage defines the organizational-level regulatory framework embodied into the Integrative National Collective (Labor) Contract (Contratto Collettivo Nazionale Integrativo - CCNI) and a labor contract for the staff of the specific public sector organization. In turn, the CCNI identifies the public administrations' professional profiles in each professional area or category, specifically, the set of homogenous tasks and required knowledge and skills that determine the content of specific professional profiles employed by the organization, as summarized in Figure 13. Figure 13: National Collective Bargain Process in the Public Sector (Level 2) Source: Authors’ elaboration. Note: PCM= Presidency of the Council of Ministers. P47. In 2016 and 2018, the revision of the National Collective Agreements offered the possibility of moving the definition of professional profiles from the contractual to the negotiation stage between each public administration and the trade unions. This new regulation endows the public administration with more leeway in defining the professional profiles of staff, while indirectly curbing the influence of trade unions. 37 Historically, the trade unions had been more focused on the fairness of salary scales and the homogeneity of job profiles than the content of the professional profiles. The interviews conducted by the World Bank team reveal that organizations have been generally hesitant to revise their professional profiles. This has occurred for a number of reasons: on the one hand, any such revision implies changing the integrative collective agreement (CCNI), which is a major and complex process; on the other hand, it requires a rethinking of the internal organizational model, and significant efforts in changing the current organizational culture focused more on technical knowledge than toward the competencies model, as delineated in this report. 2.3.2 Overview of the Current Legislative and Regulatory Framework P48. The current CCN (first level of the national bargain process) provides three professional areas or categories, and it indicates only the remuneration level. Article 52 of the Legislative Decree 165/2001, recently amended by the Legislative Decree 80/2021, as further explained in the following section, stipulates that employees in central government administrations (ministries, fiscal agencies, non-economic public entities, and all public administrations defined by the Article 70 of Dlgs 165/2001) are placed in at least three distinct functional areas or categories. This excludes public managers who constitute a separate professional category. Although the CCN provides a slightly different classification model for each administration at the central public function, the comparto, it is possible to identify a common classification structure25. The first area or category of professional profiles (lowest range) consists of supporting functions or manual jobs (such as a doorkeeper). The second area or category is comprised of those generally performing activities that require specific knowledge of operational and management processes. The third and upper area or category is called Funzionari (Officers). It corresponds to the public officials in non-managerial positions who perform technical, managerial, and specialist activities of high importance with certain responsibilities, as shown in Table 3. The current CCN does not provide an additional layer of details in terms of classifications based on job families. Instead, it sets a generic classification framework for professional profiles, subsequently identified in the CCNI by each public administration. P49. In line with the CCN framework, the individual CCNI (second level of the national bargain process) currently classifies professional profiles in each professional area or category identified. Professional profiles provide a general description of the tasks expected to be performed, the level of knowledge and skills required, the educational requirements, and the type of internal and external recruitment procedures envisaged for that specific profile, as further discussed in section 2.4. In terms of recruitment, the law does not envisage public competition for all three professional areas. According to Law No. 56/198726, the first professional area waives public competition to enhance the rapidity and practicality of processes. Still, there is a requirement to ensure the parity of opportunity of access to taxpayer-funded public posts27. Positions in the second and third professional areas should be recruited via public competition as part of a compulsory process. 25 The table is based on the revision of professional classifications envisaged by the: (i) National Collective Agreement for Ministries, signed in September 2007 (here) and related Declaratorie; (ii) National Collective Agreement of Fiscal Agencies, signed in May 2004, (here) and related Declaratorie; and (iii) National Collective Agreements of Non- Economic Entities, signed in October 2007 (here). 26 See details of the law here. 27 Public administrations are usually supported by the employment centers providing the lists of qualified candidates related to the requested professional profiles. They then proceed with hiring through a simplified selection process. 38 Table 3: Overview of the Current Classification of Professional Profiles Professional Professional Qualifications Basic Requirements External Hiring Area or Modalities Category First area or Type of job: performing job activities that require specific and Compulsory Other than public category straightforward skills to support the organizational work. education/secondary competition school diploma Professional specifications: (a) basic general knowledge, (b) general manual skills for carrying out simple tasks, (c) limited complexity of the problems to be faced, and (d) autonomy and responsibility related to the correct performance of the assigned tasks. General professional content: workers who carry out all the tasks to support the various activities with the help of available means based on the professional specifications of the area and the profile to which they belong. Second area or Type of Job: performing job activities that require specific knowledge of Secondary school Public competition/ category operational and management processes. diploma plus other than public professional competition. Professional specifications: (a) basic technical and valuable knowledge for qualifications carrying out the assigned tasks (acquired with compulsory schooling), (b) required to manual and/or technical-operational skills related to one's qualification perform the and/or specialization; and (c) essential organizational relationships. assigned tasks. General professional content: workers who carry out all the work activities related to the sector of competence based on the professional specifications and the level of knowledge required by the profile to which he/she belongs. Third area or Type of job: performing job activities related to management, Master's Public Competition category coordination, and control functions of significant importance, or activities degree/Executive characterized by highly specialized content at the non-managerial level. Master/PhD Professional specifications: (a) high level of theoretical and practical knowledge and experience of management processes, (b) coordination, management, and control of organic units where required, (c) carrying out activities with a high technical, managerial, and specialist content with direct assumption of responsibility for results, (d) organization of activities, (e) external relations and complex organizational relations, and (f) autonomy and responsibility under general directives. General professional content: workers who carry out activities of highly specialized content based on the professional specifications and the level of knowledge required by each profile. Source: Authors’ elaboration based on an analysis of current CCNs across various public sector administrations in the central government Comparto. 2.3.3 Overview of the Newly Envisaged Legislative and Regulatory Framework P50. The ongoing public sector reform is moving toward a new professional profile classification for the Comparto of the central public functions. This would create a unique and homogenous classification across organizations. In addition, it would introduce a straightforward professional development path for public officials. In January 2022, the ARAN and the trade unions adopted a new CCN for the central functions sector, including a new professional classification system in line with the legislative provision introduced by the Legislative Decree 80/2021. The new classification model presents a dual objective. On the one hand, it seeks to create a unique and homogenous classification model for all administrations in the comparto, recognizing 39 human resource competencies and skills across the various public administration sectors. On the other hand, it aims to equip public administrations covered by the new national collective agreement with an innovative and effective personnel management tool, while also providing employees with a straightforward and stimulating professional development path28. The new regulatory provision covers the contractual framework for 2019-2021. It enters into force the day after the formal stipulations of the agreement between the parties involved, published in the ARAN webpage and in the Official Gazette (Gazzetta Ufficiale della Repubblica Italiana)29. P51. Relative to the first objective, the new CCN envisages a professional classification divided into four professional areas, describing the type of job, identifying the general set of skills and competencies, and setting the basic educational requirements. According to the CCN (Article 13), professional areas: (i) correspond to four different levels of knowledge, skills, and professional competencies (clause 1); (ii) identify the set of indispensable requirements in each area (clause 2); and (iii) correspond to levels of homogeneous skills, knowledge, and skills necessary for the performance of work activities (clause 2). The new professional classification is organized as follows: (i) operators (former first professional area or category); (ii) assistants (former second professional area or category); (iii) officials (former third professional area or category), and (iv) highly qualified profiles (Area delle elevate professionalità). Table 4 provides an overview of the definition of each professional area, describing the skills, competencies and educational qualifications required for each area. Furthermore, the new CCN identifies the transposing logic to translate the former classifications to the new classification system. P52. The new CCN introduces the concept of occupational job families that need to be defined within each professional area. Unlike the current CCN (as defined in the previous section), the new CCN defines job families as homogeneous professional occupations characterized by similar skills or common professional and knowledge bases. According to the new legislative and regulatory framework, the CCNI needs to be revised. In addition, professional profiles in “occupational� job families for each professional area identified by the CCN need to be further categorized. Therefore, the CCNI are required to define the professional skills and competencies for each family. If needed, specific qualifications such as educational qualifications, enrollments in professional registers, and previous working experiences can also be included. This type of activities would require a job mapping and job analysis to understand the content of jobs and requirements for fulfilling job-related tasks in each family, ensuring solid basis for the development and future use of job descriptions and competency framework, as further discussed in Chapter 3. P53. Relative to the second objective, the new CCN envisages a professional career path for public officials categorized in the upper and third areas of the former professional classification system. The establishment of the fourth area (highly qualified profiles) introduces a career path for Funzionari (public officials in the third area or category), which did not exist until this latest provision. Indeed, the Funzionari could be promoted to public managerial positions (Dirigenti II Fascia) via public competition. At the same time, this new career path performs as an incentive tool for public administration by outlining a career path for highly qualified and highly skilled professionals. 28 See Article 12 of the “Preintesa Relativa Al Contratto Collettivo Nazionale Di Lavoro Del Personale Del Comparto Funzioni Centrali Triennio 2019 – 2021� here. 29 See Article 2 of the “Preintesa Relativa Al Contratto Collettivo Nazionale Di Lavoro Del Personale Del Comparto Funzioni Centrali Triennio 2019 – 2021� here. 40 Table 4: Overview of the Newly Envisaged Professional Classifications Professional Area Type of Job Performed Type of Skills and Competencies Basic Educational Requirements Operators Professional profiles in this area These include: (a) basic general Compulsory education30. perform instrumental activities to knowledge; (b) general practical support the production processes skills for carrying out simple tasks; and service delivery systems, (c) the ability to take responsibility covering roles that are broadly for completing tasks, and solving flexible and do not require ordinary tasks and problems; and specific knowledge and/or (d) adjusting behaviors to work- professional qualifications. related circumstances Assistants Professional profiles in this area These include: (a) comprehensive Secondary school perform activities related to the theoretical knowledge; (b) practical diploma. production and service delivery skills required to solve problems of processes. These are based on medium complexity in a specialized the framework of general field of work; (c) the ability to take organizational directions and responsibility for results in limited predetermined procedures. They areas (process phases or also have the ability to evaluate processes); and (d) responsibility the concrete cases and interpret for supervising the work of the operating instructions. colleagues. Officers (Funzionari) Professional profiles in this area These include: (a) specialist Undergraduate or are structurally involved in the knowledge; (b) critical skills to postgraduate degree. production and service delivery tackle complex problems and processes. Based on the develop new knowledge and framework of general guidelines, procedures; (c) the ability to work they are required to ensure the independently; (d) management, supervision of essential and organizational and professional diverse processes, contribute to skills to allow for the effective the achievement of coordination of processes, organizational objectives, and achieving the assigned objectives; ensure the quality of services and (e) the ability to take results. They also provide administrative and results-related effective communications, responsibility with the possibility of support the integration / acting and taking decisions in facilitation of processes, and compliance with regulations of coordinate assigned resources, each administration; and (f) the while also overseeing ability to manage teams and organizational structures. organizational units. Highly qualified Professional profiles in this area These include: (a) highly specialized Postgraduate degree plus professionals are structurally involved in the knowledge; (b) the critical skills professional experiences production and service delivery necessary to deal with problems of in specialist or processes. They perform highly high complexity; (c) the ability to managerial functions. skilled and specialized activities, work independently; (d) a high coordinate and manage complex degree of managerial, operations of significant organizational and professional importance and responsibility. At skills to carry out functions of the same, they ensure the quality specialist content, also involving of services and results, as well as planning and research and the optimization of resources. development activities; (e) the They are required to take direct ability to take administrative and responsibility for organizational results-related responsibility; and structures. (f) the ability to manage organizational units. Source: Authors’ elaboration based on the provisions of the newly envisaged CCN in the central government Comparto. 30 In Italy, compulsory education starts at 6 years of age and lasts for 10 years up to 16 years of age. It covers the whole first cycle of education and two years of the second cycle. 41 2.3.4 Overview of the Managerial Qualifications P54. The Italian law (Dlgs 165/2001) defines two categories (or grades) of public managers: senior manager (Dirigente I fascia) and manager (Dirigente II fascia). ✓ Senior managers are entrusted with the following main tasks, among others (Article 16 Dlgs 165/2001): (i) formulating proposals and expressing opinions to the Minister concerning matters within their competence; (ii) ensuring the implementation of plans, programs, and general directives defined by the Minister; (iii) attributing to the public managers the duties and responsibilities of specific projects and management; (iv) directing, coordinating and controlling the activities of executives and those responsible for administrative procedures; and (v) carrying out the activities of personnel organization and management, as well as the management of trade union and labor relations. ✓ Public managers have the following tasks (Article 17 Dlgs 165/2001): (i) formulate proposals and express their opinions to senior managers; (ii) manage the implementation of the projects and the management tasks assigned by senior managers; (iii) carry out all other tasks delegated by senior managers; (iii) direct, coordinate, and control the activities of the offices they manage; (iv) contribute to the identification of the resources and professional profiles necessary for carrying out the office’s duties; (v) manage the personnel, financial and instrumental resources assigned to their offices; and (vi) assess the staff assigned to their offices. P55. Managers within each category may assume a range of posts at different hierarchical levels; these may also vary across the central public administrations depending on their internal organizational structures. There are two main organizational models. The first is the divisional or departmental model, centered on relatively autonomous macro-units called departments. The second is the functional model, centered on general directorates and a secretariat at the organizational apex for the coordination of the directorates. Regarding the departmental model, the Head of Department usually corresponds to the highest level of managerial position. However, in those Ministries organized in general directorates, the Secretary-General is the top managerial level, and both this post and organizational positions immediately below (that is, the head of a directorate general) are usually filled by senior managers31. Senior and middle managerial positions also depend on the detailed internal organization chart of the Ministry. As such, they may also vary. However, top and senior managerial positions fall under the qualification of Dirigenti I fascia, whereas middle managerial positions fall under the qualification of Dirigenti II fascia. P56. The access to managerial positions differs across the two managerial categories. In general, there are three main paths to access the senior manager qualification (Dirigenti I fascia): (i) public competition based on qualifications and exams to recruit senior managers in permanent positions (Article 28bis, clause 1); (ii) the tenure of public managers when a public manager (Dirigenti II fascia) has held a position that qualifies as senior management for a period of at least five years; and (iii) public competition following special recruitment procedures to recruit senior managers in temporary positions (Article 28bis, clause 2). There are also three paths to obtain access to the qualification of public manager (Dirigenti II fascia). They include: (i) public competition based on qualifications and exams, following either the Concorso Unico or the independent public competition procedures (Article 28, clause 1); (ii) Corso-concorso led by the National School of Administration (SNA) (Article 28, clause 1); and (iii) tenure for public officials (Article 28, clause 1ter)32. 31 See Article 3 of the Dlgs. 300/1999 here. 32 See World Bank develiverable 2 for more details concerning senior and public manager recruitment procedures. 42 2.3.5 Taxonomy of Professional Profiles P57. The lack of a standardized taxonomy of professional profiles at the national level has led to a substantial variation in the number and type of professional profiles identified in each professional area or category. According to the National Recovery and Resilience Plan (NRRP), “the common language stops at regulatory, legal, and monetary classifications defined in the collective agreements for each sector�33. The CCN and subsequent CCNIs provide a general and broad classification of professions in the public sector. They are based on which public administrations can define and modify their professional profiles following a bottom- up approach. This inevitably leads to a profusion of frequently overlapping profiles, with different vocabularies and frames-of-reference, as shown in Table 5. Some administrations present a few professional profiles, such as the Italian Revenue Agency (IRA)34. Others tend to identify a higher number of professional profiles, such as the Ministry of Culture (MoC)35. According to the interviews conducted by the World Bank team, the former is the most common approach, helping to avoid rigidity at the legal level. A detailed specification of the professional system at the legal level can be perceived as highly binding, thereby reducing the possibility of adapting the professional organizational model to the evolving administrative needs. P58. The standardized classification of professions establishes a common model across all public organizations and jobs; indeed, it serves as the basis for a more integrated strategic HRM, thereby securing a linkage with competency-based management. In general, the adoption of a standardized classification facilitates a logic of competencies beyond the regulatory framework; the recruitment of better-fitting professions, especially in a centralized recruitment setting; and the professionalization of training programs. Furthermore, it facilitates mobility by identifying the skills common to the various professions, while also creating a skills dictionary. The NRRP confirms that the current “lack of a common and standardized taxonomy of professional profiles makes it challenging to compare professional profiles across various administrations, including those belonging to the same types, nor easy access to external mobility36�. P59. The GoI has recognized the importance of introducing a common language across the public sector to support more strategic HR management and planning. In 2019, the GoI initially supported the creation of a standardized classification of professions in the public sector. This was seen as a tool for supporting more strategic HRM planning. Working in collaboration with the ISTAT, the Government conducted a job evaluation to create a new job classification model (CP-2011). It also sought to define the required skills, competencies, expertise, and knowledge for each category of job and profession37. However, since the CP- 2011 job classifications aimed to classify the professions in the private and public labor markets, the classifications became extremely detailed when applied to the public sector, thereby leading to overly complex job classifications. The current revision of the legislative and regulatory classification framework attempts to align with the objective of the public sector reform envisaged by the NRRP. Indeed, it recognizes the need “to set up new tool that provides public administrations the strategic planning capacity of human resources� and “create an additional aggregation of these profiles by families and professional areas in line with the contractual frameworks38.� 33 National Recovery and Resilience Plan, 2021, page 49. 34 Italian Revenue Agency, “Integrative Collective National Agreement�, 2002–2005. 35 Minister of Culture, “Agreement of Professional Profiles�, December 2010. 36 National Recovery and Resilience Plan, 2021, page 49. 37 ISTAT, “Classificazioni delle professioni�, 2013. Related website can be accessed here. 38 National Recovery and Resilience Plan, 2021, page 49. 43 Table 5: Type and Number of Professional Profiles Number of Area Classification Professional Professional Profiles Profiles Ministry of Culture I Service - 1 Auxiliary operator supplementary clerical services Salary level at Administrative operator; technical operator; custody, surveillance, and entrance 3 reception operator. II Salary level at Administrative assistant; information technology (IT) assistant; entrance 4 technical assistant; access, reception, and supervision assistant. Technical-scientific 18 Archeologist officer; architect officer; state archivist officer; library services officer; historical art officer; demographic and ethnographic anthropology officer; engineer officer; art conservator officer; diagnostic officer; technology officer; communications officer; biology III officer; chemical officer; physical officer; geologist officer; paleontologist officer; anthropologist officer; technical artistic production officer. Administrative and 3 Administrative officer; IT officer; and statistics officer/statistician. management services Inland Revenue Agency I Occupational 1 Auxiliary operator. II Occupational 4 Operator; assistant operator; IT operator; and technical operator. III Occupational 3 Officer; IT officer; and technical officer. Ministry of Justice I Occupational 1 Auxiliary operator. Driver operator; judicial operator; judicial assistant; chancellor; II Occupational 7 accountant; IT assistant; and language assistant. Court officer; accounting officer; IT officer, linguistic officer, Officer of the Notification, Executions, and Protests Office (UNEP), statistical III Occupational 9 officer, organizational officer, library officer, and administrative director. Source: Authors’ elaboration based on an analysis of current CCNIs. P60. Developing a standardized classification is a complex process, requiring resources, institutional coordination, implementation, and monitoring mechanisms, as well as political will and support. The OECD country cases, such as the case of France, adopted a standardized professional classification. This suggests that the development of such a tool requires time and resources. Since 2006, the French civil service has developed and implemented the “Interministerial Job Catalog - Répertoire Interministériel des Métiers� (RIME). It contains a cross-governmental job description register, including a detailed description of each reference job. The job catalogue establishes 23 functional domains and 236 reference jobs. Given the similarity in the administrative organization, the French case can be an inspiring practice and model for the GoI to create and apply a similar standardized taxonomy of job professions across the Italian public administrations and support the change management process towards a more competency-based approach 44 (Box 2). Therefore, further adaptation of the NRRP might provide the resources to develop this standardized classification patterned on the French example. Box 2: The Inter-ministerial Registry of Job Professions (RIME) Economic and Demographic Context The Inter-ministerial Registry of Job Professions (RIME) was developed in response to the economic context of distressing public debt and deficit in 2005 that pushed the Government of France (GoF) to drastically reduce government spending without reducing the service's supply or quality. At the same time, the France public administration was facing an unprecedented demographic turnover with the onset of the boomer wave or the retreat of postwar baby boomers. To maintain an equitable allocation of human resources to priority missions, it became essential to improve internal wealth and promote service mobility, to retain, professionalize, and limit the number of new hires, offering public officials in service better career opportunities. The need for savings and massive recruitment constituted an opportunity for the GoF to reform the recruitment procedures toward a competency-management approach to identify the resources and personnel competencies needed effectively. The Development of RIME The RIME is a cornerstone of the competency management strategy in France. As of 2005, there were various French initiatives concerning the issue of how to better define the evolution of the organizational missions and the related needs in terms of staff profiles and the competencies required. However, these initiatives were fragmented. Thus, they were not enabling of a truly national dynamic, including the adoption of a standard method and shared vocabulary to define needs and skills. Aware of the need for a coordinated and massive intervention, the Directorate General of Administration and Civil Service (DGAFP), the State Human Resources Department (DRH) group, launched a consultation initiative to reach an agreement with all the ministries HRM departments and the trade union representatives concerning a directory of the professions necessary for the accomplishment of all the missions of the State. This would be done without reference to the statute. This effort included a team of researchers for the scientific validation of the project. The project team started by bringing together all existing contributions from the ministries concerning extant job descriptions. They were thematically grouped. This was done in a bottom-up fashion. All governmental, permanent, non-permanent, civilian, and military jobs were taken into consideration, thus involving a total of almost 2.5 million staff. More than fifteen working groups were chaired by a recognized expert. They were comprised of human resource managers from the ministries and public entities, representatives of all the trade union organizations, and researchers from the Center d'études with research on qualifications (Cereq). Thus, a total of 320 people were mobilized to work on this project, conducting regular meetings throughout the year. The first project presentation was remarkably accurate and didactic. As such, it removed the apprehensions by the unions who feared a questioning of the public employment statute. There was a concern about how statutory safeguards might coexist with a logic of administrative development. For the entire year of 2005, the most difficult task was to cluster interdepartmental job descriptions (“fiches métier�), called “emplois reference�. The job descriptions were provided by the ministries which were keen to remark on the specificity of such job descriptions. This was a way to maintain their specific job title, or to 45 make it a term of reference in its own right. In short, it still amounted to a somewhat corporatist logic, a dynamic also supported by the trade unions. To see the light of day, in the first edition of RIME, it was necessary to make many concessions to reach an agreement concerning the definition of the professions, their attachment to a functional area, the description of the tasks they would cover, the skills necessary to their exercise (including managerial competencies), as well as current trends and medium-term developments. During this work, the professions identified as emerging were included in the inter-ministerial directory, even if they were not yet practiced in the ministries. At the crossroads between the ministries knowledge about the expected evolution of the missions (objectives) of their ministerial departments and the policy field, as well as the feedback from the trade unions, the required, but still missing, skills could be taken into consideration. They now emerge from the reports of the annual assessment interviews, during which a dialogue between the appraiser and the appraised makes it possible to identify the possible adjustment of the position and the need for training to fill the gap in the competencies required. This information is centralized and processed in the offices responsible for managing career paths. Periodic revisions of RIME In 2006, the Inter-ministerial Yearbook of State Professions (RIME) was published with its 236-reference professional profiles. The titles have all been femininized to promote diversity, and they are grouped into 23 functional areas (professional sectors). The work of declension into the ministerial lists (this time carried out in a top-down fashion) could therefore commence, thus allowing the integration of professions in the professional sectors, from the most generic (reference profile) to the most detailed (the job description). A first update took place in 2010 and then again in 2017. These updates were carried out with comparable methods, but with a substantial novelty. Specifically, the leadership of the working groups was entrusted to the various ministries, depending on the functional area concerned. However, it was done without the trade unions and under the aegis of the DGAFP. The rationale is that professional profiles are dynamic. As such, they should regularly evolve and take into consideration the evolution of the missions of the State and its needs. Since 2017, RIME updates have been easily carried out from an online version on the civil service portal. 2.4. Content of Professional Profiles P61. The existing professional profiles include generic descriptions of tasks expected to be performed, but without an explicit link to organization-specific requirements. Professional profiles can be defined based on specialized tasks, such as museum keeper or biologist, or more general administrative tasks, such as administrative officer or IT officer. The former corresponds to technical and organization-specific professional profiles, requiring the administration to adopt an autonomous recruitment procedure to select the most appropriate candidates. The latter pertains to “administrative� professional profiles that tend to be more generalized across various public administrations. The level of details in the descriptions of professional profiles and tasks varies across administrations. Some public administrations describe in detail the tasks expected to be performed by public officials classified in a specific professional profile, while other organizations tend to provide only a general description of tasks. Once again, there is a trade-off between regulatory and administrative views. A high level of detail at the regulatory level creates rigidity in the 46 identification of professional profiles, making it difficult to change the evolving organizational needs. In all cases, professional profiles are not related to concrete organization-specific positions (see Appendix 5). P62. The analysis of the public call for competition (Bando) and interviews conducted with HRM directors reveal that many central public administrations currently lack related description frameworks. The use of professional profiles should be integrated with the definition and the development of job descriptions. These are organizational tools that allow for an analytical description of the main characteristics of a role within an organization. It should also be supported by in-depth knowledge of the internal organizational model, based on accurate analysis of internal processes supported by available HRM data and information. Developing a job description framework integrated with HRM processes is key to informing the HRM processes, as further explained in section 3 (Proposed methodological option 3: Adopting a More Integrated Job Description Framework). P63. Currently, most central public administrations use the existing definition of professional profiles as a basis to develop their strategic workforce plan and inform the recruitment process. In all cases, professional profiles reflect an historical legacy of focusing more on technical skills and knowledge rather than on competencies. There seems to be a gap in terms of whether professional profiles represent clear and adequate competencies to inform the strategic workforce planning and recruitment used by each public administration. According to the NRRP, professional profiles should be used as a "benchmark" for recruitment policies. However, many public administrations use the content of professional profiles as a basis for informing recruitment procedures, as further developed in another World Bank output “Report setting out different assessment methods (and their analysis) for staff recruitment� (Output 2). Furthermore, even high performing public organizations, that inform the workforce plan by means of a detailed analysis of gaps in the requisite technical skills, are only now introducing the analysis of competencies in their HR strategy, mapping them in order to integrate a task-oriented classification into a competency-oriented classification of profession. Indeed, there is a growing consensus concerning the need to update and review the models actually utilized for describing and delineating professional profiles1. These should be upgraded to more advanced approaches based on competency-based frameworks, as further discussed in Section 2.5 and Chapter 3 (Proposed methodological option 2: Developing and Adopting a Competency Framework). P64. The current changes in the socioeconomic environment in which public administrations operate have led to the identification of emerging technical skills and competencies, moving away from the typical bureaucrat profile. As discussed in section 1.1, the current structure of public administration reflects the typical profile of a bureaucrat, characterized by legal and administrative culture and knowledge. Therefore, the current definition of professional profiles does not reflect emerging skills and competencies. Central public sector organizations are now looking for candidates with a combination of advanced digital skills, including data (and big data) analysis skills, as well as technical knowledge about an organization’s core business area. Similarly, and as part of the same tendency, there is an emerging need to hire candidates with legal knowledge combined with economics, mathematics, and/or statistics expertise. P65. There is a growing consensus about the importance of soft skills as part of core competencies for central public administrations, though this awareness is still at a nascent stage in many public administrations. Identifying the required soft skills is challenging for three reasons. First, there is a need to change the organizational culture since organizations, especially line ministries, still see technical knowledge as an exclusively essential skill. Second, public administrations lack the analytical foundations to comprehend and correctly determine the soft skills needed. Third, there is a mismatch between what organizations need in terms of soft skills and what the market offers. HRM directors recognize that newly hired candidates 47 generally lack the required soft skills because the education system or universities do not consider important fostering such skills in their curricula. 2.5. Competency Management in Italy P66. The NRRP recognizes the importance of moving towards a competency centered HRM to strengthen public sector human capital. One of the primary purposes of introducing competency-based management is horizontal integration, that is, integrating a HRM cycle, from recruitment and career development to performance management and training. However, most Italian public administrations currently lack competency-based management approaches to HRM. According to the NRRP, “the current lack of competency-based management often reduces the HR planning to a mere replacement of staff leaving the service39�. P67. Most public administrations do not systematically identify or have the capacities to assess emerging skills and competencies to fulfill their missions in the medium and long term. According to the NRRP, “public administrations cannot often project their features over the medium and long-term horizon in terms of competencies needed to respond effectively to the demands from citizens and the productive world�40. In this framework, an analysis of current workforce capabilities is necessary to identify strengths and weaknesses (OECD 2017)41. From the desk research and interviews with HRM directors and stakeholders, it emerged that the lack of capacity to identify emerging skills and competencies is partially explained by the poor level of the analytical foundation in guiding more strategic HRM policies in many central public administrations, especially those related to public officials in non-managerial positions (see section 2.2). In this context, it becomes clear that there is a need for mapping and tracking skills availability via skills audits, capability reviews, the development of employee databases, and a better definition of professions (OECD 201742). Most public administrations have outsourced these types of exercises to external actors, such as the SNA for managerial positions. P68. The SNA has conducted a pilot project for mapping, evaluating, and developing the competencies of central public administration managers since 2017. The SNA launched a pilot project in 2017 to identify the competencies of 240 public and senior public managers in PCM. In 2018, the project was scaled up to cover public managers in the central level public administrations43. The project, introduced as learning exercise, mapped the competencies of top managerial roles, developed corresponding job profiles and descriptions, and identified skills and competencies gaps to inform individual and organizational development programs, as further discussed in Box 3. As part of this project, the IRA mapped the competencies of all its managers, leading to the development of a job description. They have since organized an assessment phase for about 400 public and senior public managers. The purpose is twofold: identifying the set of typical management competencies and specific individual-related skills. Box 3: The SNA’s Organizational Analysis, Evaluation and Development of Competencies44 39 National Recovery and Resilience Plan, 2021, page 49. 40 National Recovery and Resilience Plan, 2021, page 49. 41 OECD Public Governance Reviews, “Skills for a High Performing Civil Service�, 2017. 42 OECD Public Governance Reviews, “Skills for a High Performing Civil Service�, 2017, page 57. 43 The SNA is currently collaborating with the Presidency of the Council of Ministers (PCM), Italian Revenue Agency (IRA), Minister of Justice (MoJ), Minister of Education (MoE), Minister of Culture (MoC), and the Italian National Institute of Social Security (INPS). 44 “Analisi organizzativa, valutazione e sviluppo delle competenze: la tripla sfida�, 2021, De Castri, M. 48 The SNA project has two phases: organizational analysis of each administration involved and competencies analysis to identify public managers' competencies and define individual development plans. Organizational analysis The first phase concerns the organizational analysis of managerial positions and administration's senior leadership. The activities envisaged in this phase include the following: ✓ Presentation of the project in each administration to bring managers and senior managers on board and to strengthen the participation of all the actors involved. ✓ Desk analysis of relevant administration documentation to better understand the administration, its organizational structure, and human resource management policies. ✓ Focus group and meeting with the top management to identify the core competencies in each administration. ✓ Semi-structured interviews. The next phase involves administering semi-structured interviews to develop an analytical description of managerial positions in each organization. ✓ Drafting job descriptions. After the interviews, the SNA team of work psychologists draft the job descriptions, which the line manager then validates. ✓ Organizational analysis of the administration. The interviews make it possible to analyze and assess the administrative organizational structure. Competencies analysis The second phase aims to (i) evaluate the managerial competencies of each public manager, (ii) identify the gap between the competencies required of the post and those actually possessed, and (iii) design an individual and group developmental path for developing competencies and filling the gaps. In this phase, the following activities have been carried out: ✓ Drafting of job profiles and a set of managerial competencies. The SNA team of psychologists analyzes the job descriptions and converts them into job profiles. ✓ Creation of the Assessment Center. The key phase of the psychological analysis is represented by the Assessment Center, which is fundamental for carrying out a correct mapping of the administration's competencies. By competence, the SNA refers to a systemic set of knowledge, experiences, and skills that — if activated — can produce effective behaviors. ✓ Data processing and feedback. The last phase of the Assessment Center involves the preparation of a qualitative-quantitative report and the subsequent gathering of individual feedback to the managers involved. The report (individual profile) contains the strengths (managerial competencies already consolidated), the areas for improvement (competencies that can be further enhanced), and the suggested training programs. In addition, it also created an aggregated report of competencies gaps in the administration to inform organizational development activities. Source: “Analisi organizzativa, valutazione e sviluppo delle competenze: la tripla sfida�, 2021, De Castri, M. Competency management for public employees has been generally limited to on-the-job training at entry. Because the Italian recruitment system has a legacy of testing legislative knowledge rather than focusing on technical and transversal competencies, public administrations have strongly relied on in-service training at 49 entry to assess and strengthen public officials’ competencies. The MoJ has developed a training system for new hires. It is mainly focused on soft skills provided by various agents according to the type of jobs and roles. The MEF has an onboarding system combined with a training course. It is mainly focused on strengthening new hires' soft skills in collaboration with the SNA. For example, the 400 Funzionari hired through a public competition launched in 2018 were required to undertake a series of training courses at the SNA. Box 4: National Institute of Public Service In France, the post-recruitment school, the National Institute of Public Service (INSP), provides training to newly recruited managers to strengthen their competencies, helping them to prepare to assume their posts after the recruitment process. The post-recruitment training course provides a structured framework to foster a common administrative-organizational culture with a common basis of training curricula. It will allow the decompartmentalization of the courses and the creation of social networks, and the facilitation of subsequent exchanges of expertise by the staff in performing their tasks or in delivering public services, thus reinforcing the adaptability of the staff. The INSP replaced the National School of Administration (ENA) on January 1, 2022, becoming the main state provider for initial and continual training of middle and senior managers. The INSP educational program is centered around a competency-based approach, in line with what is expected by public employers. The objective is to strengthen competencies related to the implementation of public policies, the management of change, and the carrying out of the essential missions of the State. This is done in the context of an individualized path that combines the transmission of knowledge and the learning of professional techniques. The post-recruitment training lasts for 21 months. Immediately after being recruited (having been a winner of the national public competition), students are encouraged to position themselves in the competency frameworks to identify their learning needs, as well as to tailor the training program in line with their developmental needs, expectations, and experiences. Thus, this approach follows a logic of acquisition and ownership of competencies. An internship is also offered to enable them to acquire essential interpersonal skills (behavioral skills) and competencies to undertake expected responsibilities. P69. The current performance management is widely applied to managerial positions with a performance- based pay system; however, it is not linked with competency management. The Dlgs 150/2009 introduces the performance evaluation systems, defining the performance cycle in the Italian public administrations to improve public service quality, as well as to support the career development of public officials. The performance cycle is comprised of the following steps: (i) identification of organizational objectives; (ii) a clear definition of linkage objectives and resources; (iii) monitoring and implementation of any corrective measures; (iv) measurement and evaluation of organizational and individual performance; (v) definition and usage of reward systems based on merits; and (vi) results reporting to the political-administrative bodies, the top management of the administrations, the internal and external audit and control bodies, as well as external stakeholders, such as citizens and public service users. The desk research and interviews with HRM directors emphasize that the performance management system is linked to pay. However, it is poorly used as a strategic HRM tool to manage competencies in the organizations. P70. The Italian public sector is moving toward competency-based recruiting and selection of talents; however, the lack of a competency framework integrated into HRM practices remains a key issue. In line with the 50 strategic framework of the NRPP, the recent public recruitment reforms (Dlgs 44/2021 and decree-law DL 80/2021) introduce more agile, innovative, and digital recruitment options to respond to the urgent need to accelerate the hiring process during and after the COVID-19 crisis. One of the primary objectives of the recruitment reform is to assess candidates based on competencies rather than exclusively on “traditional� knowledge. To this end, public administrations should properly map the competencies needed. These should then be fully tested during the recruitment process. As further discussed in the following section, the competency framework serves as a strategic instrument to link and integrate different HRM processes, including selection and recruitment. However, desk research and semi-structured interviews suggest that many central public administrations in Italy still lack a competency framework, thus making the recruitment reforms more challenging. 2.5.1 Competency Framework P71. Competency frameworks have become increasingly common as a public administration HRM tool. According to the Chartered Institute of Personnel and Development in the UK, “a competency framework is a structure that sets out and defines each individual competency required by individuals working in an organisation or part of that organisation45�. Developing a competency framework shifts the focus of HRM from the establishment control based on headcounts and budgets to personnel skills, competencies and capabilities. Furthermore, a competency framework provides a common language to describe the required skills and expected behaviors required for top performance in specific positions and across an organization. P72. A competency framework is a strategic tool used to integrate various HRM processes, including recruitment and selection. Developing a competency framework also serves as a coordinated strategic approach to linking and integrating different HRMs. The review of international cases suggests that a competency framework, when developed, is fully integrated into workforce planning (France), recruitment and selection (Belgium, Ireland, and EPSO), training and development (France and Belgium), performance management and appraisal (France), and remuneration (Belgium). P73. Sharing the competency framework’s vision and objectives is essential for those with managerial responsibilities when making their hiring decisions and assessing performance. The competency framework can be a useful instrument to define shared expectations in terms of skills for the post and related levels of performance. It is key to share the vision, objectives, and benefits of using a competency framework, as well as to adequately train people to consolidate its usage. For example, the EPSO established a communications campaign to inform the various EU Institutions, including prospective candidates and all other stakeholders involved in the HRM process (or segment of it such as selection), concerning the adoption of a competency framework. Furthermore, it has introduced specific training for members of the selection boards on how to use it, as well as related assessing tools. P74. A competency framework is usually applied with flexibility and adapted to the job context. It is centered around the individual worker’s development levels and aspirations. It should be used strategically and implemented with a light touch. In this regard, its value may lie more in the process than the tool itself. Belgium confirmed that an excessive array of objectives and expectations or a rigid application might hinder skills development and, ultimately, institutional development. According to the Chartered Institute of Personnel and Development in the UK, the main criticisms of competency frameworks relate to challenges in: (i) adjusting the framework in response to changing environments; (ii) delivering on anticipated 45 See Chartered Institute of Personnel and Development knowledge hub on competency framework here. 51 improvements in performance; (iii) usage, since it is considered to be unwieldy and not user-friendly; and (iv) avoiding the creation of clones46. These criticisms reinforce the idea that the proper design and implementation process of the competency framework are key for its introduction. P75. Building on the project presented in section 2.5, the SNA has developed a competency framework for newly hired public managers linked to the training and development programs. The SNA assesses public managers' competencies to identify the training needs and develop specific courses to fill the competency gaps. At the same time, it supports public administrations in more effectively identifying internal training needs and related development programs, while also allowing public managers to recognize their strengths and weaknesses in their positions. The SNA has developed a competency framework comprised of eight competencies, as shown in Table 6. Table 6: SNA Competency Framework for Public Managers Competency Description Problem Management Promptly grasp the problems, identifies the most urgent issues, and proposes effective solutions that best meet current needs. Planning Plans activities systematically and consistent with the objectives, while optimizing time and resources. Results orientation Acts proactively and with determination to achieving goals, even when particularly demanding and challenging. Takes direct responsibility, even beyond what is required by the role. Effective communication Communicates clearly and effectively, adapting the communication style to each situation, while also listening to and involving the interlocutor. Group management Coordinates the group to achieve the objectives, while assigning activities, facilitating cohesion, reducing conflict, and transferring the values and strategies of the organization. Development of collaborators Recognizes and enhances the characteristics of collaborators, promoting their growth and motivation through delegation, feedback, and recognition. Promoting change Welcomes the changes with positive attitudes, favoring the introduction of new ways of managing activities, tools, and procedures. Managing emotions Copes with pressure, difficulty, conflict, crisis, and/or uncertainty while maintaining calm and clarity. Recognizes personal emotions and their impact on working life. Source: Authors’ adaptation from the SNA documents. P76. International reviews show different approaches to applying a competency framework to various professional profiles and grades. For example, the Ireland Public Appointments Service, the EPSO and France developed a central competency framework that is used across all grades (Ireland and EPSO) and functional domain (France). However, Belgium has set a common competency framework, and competencies are selectively applied to each grade. More specifically, every job in the Belgian federal government is linked to a job level, job family and generic job description. In addition, for each job description, there is a generic competency profile based on the federal government's competency model (see section 2.5.2). P77. There are different analytical lenses and approaches to the design of competency frameworks. In general, competency frameworks focus mainly on behavioral elements to support the identification of the soft skills 46 See Chartered Institute of Personnel and Development knowledge hub on competency framework here. 52 necessary for effective performance. This is the case of the Tax Agency of Sweden, with a competency framework for behavioral competencies (for example, collaboration within teams, being flexible, being creative, being forward thinking). However, the scope of competency framework has been recently broadened to include more technical competencies. 47 For example, the Irish competency framework also includes specific knowledge and expertise as a cross-cutting competency for all grades. Likewise, France’s competency framework identifies theoretical and technical knowledge areas (see section 2.5.2). P78. Competencies may be classified into several conceptual typologies. One major classification distinguishes generic from specific competencies. The first relates to transversal ones, which are relevant to an organization, sector, or the whole of the civil service. The latter relates to specific job families. Generic competencies are usually related to public service values and ethics, professional behaviors, and personal attitudes, whereas specific competencies are usually related to the content of a specific occupational job family. The review of international cases suggests that competency frameworks are generally focused on generic competencies that can be transversally applicable to various professional profiles and grades. P79. According to the OECD, there has been a shift from the traditional profile of bureaucrats, focused on legal and administrative knowledge, to one that is focused on soft skills — with a more proactive approach to work. Public officials are required to be “ethical, action-oriented leaders who can work strategically through teams and communicate to solve problems48�, as shown in Figure 14. Figure 14: Most Frequently Used Competencies in Competency Frameworks in OECD Countries 47 https://www.cipd.co.uk/knowledge/fundamentals/people/performance/competency-factsheet#gref. 48 Organisation for Economic Co-operation and Development (OECD). “Skills for a High Performing Civil Service.� (OECD, 2017), p. 60. 53 Source: OECD (2017). P80. Competency framework approaches — whatever their specific foci — aim to find a balance and a mix of three key dimensions of competency as follows: ✓ Knowledge: The theoretical understanding of a subject area. Therefore, knowledge may refer to the level of technical, economic, statistical, or legal knowledge required for a specific position. ✓ Behavior: The attitudinal and relational traits deployable and usable in the work environment, often known as soft skills. ✓ Know-how: This refers to the ability to put knowledge into practice. Therefore, know-how may refer to digital and language skills intended as the ability to employ and make the most of digital technology in performing one’s tasks, or to conduct one’s work in foreign languages when required. It may be seen as complementary so that technical, economic, statistical, or legal knowledge can be put into practice for different audiences. This can be achieved through language skills or through different elaboration and communication means via digital skills. 2.5.2 Review of Competency Frameworks: International Examples Belgium P81. The Belgian federal civil service presents a 5+1 competency framework. The competency framework is based on five groups of generic competencies ("5") and one group of technical competencies ("+1"). Each 54 group of generic competencies is comprised of eight specific competencies, ranked from low to high, depending on the complexity. The five generic competencies are: (i) dealing with information, (ii) dealing with tasks, (iii) dealing with co-workers, (iv) dealing with external actors, and (v) dealing with their own performance, as shown in Table 7. The use of the competency model is supported by a competency dictionary49 and competency cards. However, technical competencies refer to the theoretical and/or practical knowledge necessary and sufficient to perform a function. These are structured into two main components: business (technical competencies related to regulations, skills, methodology and context) and support (technical skills related to office applications, software, hardware, languages and written and oral expression techniques). Table 7: Belgian Federal Competency Framework Dealing with Dealing with Dealing with Own Dealing with Tasks Dealing with Staff Information Relationships Performance Understanding Sharing information Carrying out tasks Communicating Showing respect information and knowledge Processing Structuring work Support Active listening Adjusting information Showing Analyzing information Solving problems Guiding staff Working in teams dependability Adopting a service- Integrating Deciding Motivating staff oriented work Showing commitment information approach Innovating Organizing Developing staff Advising Dealing with stress Conceptualization Managing shifts Building teams Creating impact Self-development Insight into the Administering the Guiding teams Creating relationships Obtaining results organization organization Showing Managing the Developing a vision Inspiring Networking organizational organization commitment Source: Belgian Federal Public Service, Policy and Support P82. The competency framework is fully integrated with job functions, and standardized competency and technical profiles have been developed. The generic competencies are linked to the three groups of job functions (technical, management, and project leaders). They are based on hierarchical grades within each function such that higher grades are linked with more complex competencies. Furthermore, the technical competencies necessary for the performance of a function are grouped together in a technical competency profile. P83. The competence framework is fully integrated into various HR processes. There are various tools and applications that make it possible for the HR departments to link the right job description and competency profile for each employee. Relative to recruitment, competencies are measured during the interview, using 49 The competency dictionary unequivocally defines each generic competency, dimension, and related behavioral indicator. It constitutes a common language for the various HR processes within and across organizations. See BOSA website for more detailed here. 55 the STAR methodology50 and situational judgement questions. In addition, role-play activities (especially for managerial positions) are used to measure competencies as well, as further discussed in Output 2. P84. The competency framework has been developed jointly with external consultants, as well as through consultations with all the ministries. In designing this competency model, the government worked with an external partner. BOSA took the lead in this process, in collaboration with the various HRM representatives from the government ministries. The competencies themselves were elaborated over a 2-year period (2008- 2010), adapting the Hudson model51 to the Belgian context. Before being rolled out across the civil service, a provisional competency framework was piloted for six months in one ministry (Ministry of Labor) and monitored continuously by an internal working group. EPSO P85. Since 2010, the EPSO has developed and implemented a competency framework. The competency framework constituted the basis for reforming the EPSO’s selection methods to increase efficiency, effectiveness, and robustness, while also maintaining existing core values, such as fairness52. It facilitated the move from a knowledge-based assessment to a competency-based assessment of candidates53. P86. The EPSO’s competency framework comprises eight general competencies, which are applied in the recruitment process54 as follows: ✓ Analysis and problem solving: Identify the critical facts in complex issues and develop creative and practical solutions. ✓ Communications: Communicate clearly and precisely, both orally and in writing. ✓ Delivering quality and results: Take personal responsibility and initiative for delivering work to a high standard of quality within the set procedures. ✓ Learning and development: Develop and improve one’s personal skills and knowledge of the organization and its environment. ✓ Prioritize and Organize: Prioritize the most important tasks, work flexibly and organize one’s own workload efficiently. ✓ Resilience: Remain effective under a heavy workload, handle organizational frustrations positively, and adapt to a changing work environment. ✓ Working with others: Work cooperatively with others in teams and across organizational boundaries, while respecting differences between people. ✓ Leadership (for administrators only): Manage, develop, and motivate people to achieve results. P87. The competency framework forms the basis of the development of the professional profiles and grades. Job profiles are based on the common competency framework. They are used to set benchmark standards for the effective performance for each profile. P88. The competency framework is fully integrated with the EPSO’s selection process. Candidates are tested on an agreed set of eight general competencies. Specialist competitions also measure job-specific competencies. Competencies are also measured through assessment centers, and include interviews and other exercises, such as oral presentations, case studies, and role-plays. For a given exercise, each 50 A methodology where the candidate is asked to describe a Situation from their past, the Task that was involved, the Action they undertook, and the Result that came out of it 51 The Hudson model is the competency framework developed by the Hudson Research and Consulting company 52 EPSO Development Programme. Roadmap for implementation, 2010. See here. 53 Kramer, The Reform of the European Personnel Selection Office (EPSO) Selection Procedures: the First Lessons Learned, (T. Kramer, 2010). See here. 54 Taken from: https://epso.europa.eu/help/faq/3104_en. 56 general competency consists of five defined “anchors�, which are taken into consideration when assessing a competency. Candidates are observed for each anchor separately. They are then given a global score corresponding to each competency tested. P89. The competency framework has been developed in-house, in collaboration with the EU Institutions. All institutions provided input to the framework. The EPSO has the leading role and goes through several rounds of feedback and re-writing of the framework before presenting it to the EPSO’s management board. The Board consists of representatives of the EU institutions at the senior management level, as well as the EPSO’s director. Ireland P90. The Public Appointments Service developed a central competency framework to support the recruitment process and has used it across all grades. The Irish competency framework includes different competency models for each job category (Figure 16), including: clerical officer, executive officer (junior management), administrative officer (graduate entry), high-executive officer (middle management), assistant principal (senior management), principal officer (leadership), assistant secretary (senior leadership) and secretary- general (senior leadership). These have two competencies in common: ‘Drive and Commitment to Public Service Values’, and ‘Specialist Knowledge, Expertise, and Self Development’. Figure 15: Irish Competency Framework55 55 Taken from: https://www.publicjobs.ie/documents/PAS_CS_Competency_Models_2017.pdf 57 Source: Irish Public Appointments Service P91. The Public Appointments Service (PAS) competency framework is fully integrated with the recruitment process and performance review system. During recruitment, competencies are measured by various means (such as through assessment questionnaires, group exercises and presentation exercises). However, the most important one would be the interviews. During competency-based interviews, candidates are questioned about their past behaviors in order to predict their future behaviors. This is based on the STAR methodology. The competency ‘Delivery of Results’ includes digital skills56. This is usually not a competency assessed during the recruitment and selection process, although it might arise briefly during the interview. Furthermore, for each professional grade, competencies are linked to specific performance indicators, as shown in Table 8 (administrative officer) and Table 9 (High-level executive officer). P92. The Irish competency framework has been developed in-house by the internal team of work psychologists. The PAS developed it through consultations and workshops with senior managers from the HR department, as well as technical experts in all departments within all Irish ministries. Table 8: Competency-related performance indicators in Ireland (Administrative Officer) Competencies Performance indicators Leadership Potential Flexibility and willingness to adapt while positively contributing to the implementation of change Contributing to the development of policies in own area and the broader Department/ Organization Seeking to understand the implications of taking a particular position on issues and how interdependencies need to be addressed in a logical and consistent way Maximizing the contribution of the team, encouraging ownership, providing support, and working effectively with others Formulating a perspective on issues considered important and actively contributing across a range of settings 56 The Irish PAS is currently revising its competency framework and digital skills will get a much stronger focus 58 Analysis & Decision Making Skilled in policy analysis and development while challenging the established wisdom and adopting an open-minded approach Quickly getting up to speed in a complex situation, rapidly absorbing all relevant information/data (written and oral) Ability to use numerical data skillfully to understand and evaluate business issues Identifies key themes and patterns in and across different sources of information, drawing sound and balanced conclusions Understanding the logical implications of taking a particular position on an issue Is resourceful and creative, generating original approaches when solving problems and making decisions Delivery of Results Taking personal responsibility for and delivering on agreed objectives/ goals Managing and progressing multiple projects and work activities successfully Accurately estimating time parameters for projects and manages own time efficiently, anticipating obstacles and making contingencies for overcoming these Maintaining a strong focus on always meeting the needs of customers Ensuring all outputs are delivered to a high standard and in an efficient manner Using resources effectively, always challenging processes to improve efficiencies Interpersonal & Communication Communicates in a fluent, logical, clear, and convincing manner verbally and in writing Is able to listen Skills effectively and develop a two-way dialogue quickly Maintaining a strong focus on meeting the needs of internal and external customers Effectively influencing others to take action Working to establish mutual understanding to allow for collaborative working Working effectively Specialist Knowledge, Expertise Clearly understanding the role, objectives, and targets and how they fit into the work of the unit and and Self Development Department/ Organization. Developing the expertise necessary to carry out the role to a high standard and shares this with others Being proactive in keeping up to date on issues and key developments that may impact on own area, the Department and/ or wider public service Consistently reviewing own performance and sets self-challenging goals and targets Having significant expertise in his/her field that is recognized and utilized by colleagues Drive & Commitment to Public Consistently striving to perform at a high level Service Values Maintaining consistent effort under pressure and is resilient to criticism or setbacks at work Demonstrating high levels of initiative, taking ownership for projects and demonstrating self sufficiency Being personally trustworthy and can be relied upon Placing the citizen at the heart of all process and systems Upholding the highest standards of honesty, ethics, and integrity Source: Irish Public Appointments Service Table 9: Competency-related performance indicators in Ireland (Higher Executive Officer) Competencies Performance indicators Team Leadership Working with the team to facilitate high performance, developing clear and realistic objectives, and addressing and performance issues if they arise Providing clear information and advice as to what is required of the team Striving to develop and implement new ways of working effectively to meet objectives Leading the team by example, coaching, and supporting individuals as required Placing high importance on staff development, training and maximizing skills & capacity of team. Being flexible and willing to adapt, positively contributing to the implementation of change Judgement, Analysis & Gathering and analyzing information from relevant sources, whether financial, numerical, or otherwise Decision Making weighing up a range of critical factors Takes account of any broader issues, agendas, sensitivities, and related implications when making decisions Uses previous knowledge and experience to guide decisions 59 Uses judgement to make sound decisions with a well-reasoned rationale and stands by these Puts forward solutions to address problems Management & Delivery of Taking responsibility and being accountable for the delivery of agreed objectives Results Successfully manages a range of different projects and work activities at the same time Structuring and organizing their own and others work effectively Being logical and pragmatic in approach, delivering the best possible results with the resources available Delegating work effectively, providing clear information and evidence as to what is required Proactively identifying areas for improvement and develops practical suggestions for their implementation Demonstrating enthusiasm for new developments/changing work practices and strives to implement these changes effectively Appling appropriate systems/ processes to enable quality checking of all activities and outputs Practicing and promoting a strong focus on delivering high quality customer service, for internal and external customers Interpersonal & Building and maintaining contact with colleagues and other stakeholders to assist in performing role Communication Skills Acting as an effective link between staff and senior management Encouraging open and constructive discussions around work issues Projecting conviction, gaining buy-in by outlining relevant information and selling the benefits Treating others with diplomacy, tact, courtesy, and respect, even in challenging circumstances Presenting information clearly, concisely, and confidently when speaking and in writing Collaborating and supporting colleagues to achieve organizational goals Specialist Knowledge, Having a clear understanding of the roles, objectives and targets of self and team and how they fit into the Expertise and Self work of the unit and Department/ Organization and effectively communicates this to others Development Having high levels of expertise and broad Public Sector knowledge relevant to his/her area of work Focusing on self-development, striving to improve performance Drive & Commitment to Striving to perform at a high level, investing significant energy to achieve agreed objectives Public Service Values Demonstrating resilience in the face of challenging circumstances and high demands Being personally trustworthy and can be relied upon Ensuring that customers are at the heart of all services provided Upholding high standards of honesty, ethics, and integrity Source: Irish Public Appointments Service France P93. The French State civil service has developed and implemented the “interministerial job catalog - Répertoire Interministériel des Métiers�, whereby specific competencies are identified for each reference job. In 2011, an Inter-ministerial Dictionary of Competencies (DICO) for State Jobs was developed to support the registry of human resources. The DICO is an HR tool that contributes to communicating careers in the public service by offering a vision of the competencies needed across public organizations. The DICO's primary purpose is to create a common vocabulary for all public employees to identify and define generic competencies expected in the various state professions. The DICO is also used to inform recruitment, personnel planning and mobility, career development, performance management, and training. P94. The competency dictionary identifies 3 clusters of competencies: know-how (savoir-faire), behavior (savoir-être), and knowledge (connaissance), as shown in Table 10. According to the 2017 DICO edition, the dictionary lists 127 know-how competencies, 24 behavioral competencies, and 36 knowledge areas, alongside a brief explanation of their meanings. Furthermore, one of the DICO’s novelties consists of identifying "transferable" and "transversal" competencies. "Transferable" competencies refer to technical competencies common to different jobs in the same functional domain. "Transversal" competencies refer 60 to the generic competencies common to jobs in different functional domains. Thus, all the competencies listed in the DICO, and categorized in the three competency clusters, are identified as either transversal or transferable. Table 10: French Competency Clusters Cluster of Competencies Definition Number of Skills Example of Competencies/Skills Competencies/Skills Know-how Set of competencies acquired through 127 Working in a team, team experience and/or learning, which management, requires intellectual and/or manual skills communications (oral and in a specific domain to master them fully. written), and digital skills. Behavior Set of soft skills useful to know how to 24 Conceptual skills: behave in a given professional context. Intellectual curiosity, Behavioral competencies can be Initiative, Autonomy, categorized according to: Critical thinking, Sense of − Conceptual skills (9): focused on the innovation/creativity position of the public official. − Relational skills (9): focused on the Relational skills: relationship and the bond with Interpersonal skills, others. listening skills, diplomatic − Contextual skills (6): focused on taking skills, and demonstrating into consideration an environment or authority. a situation and the agent's reaction. Contextual skills: Adaptability, self-control, sense of organization, and a sense of public service Knowledge Theoretical and technical knowledge that 36 is acquired through training, professional or extra-professional experience. Source : Authors’ adaptation from the Dictionnaire interministériel des compétences des métiers de l’État , (2017). P95. The DICO creates the framework for the development of job descriptions (fiches métier) for each reference job across the functional domains. Table 11 presents an example of a job description for the Head of Administrative Coordination position in the general administration functional domain. Table 11: Example of French Job Description General Information Reference Job Title Head of Administrative Coordination. Functional Domain General Administration. Synthetic Description Organize, coordinate, and supervise the regular and continuous operation of the administrative and technical services of a structure. 61 Principal Activities − Contribute to the management of the human resources of the structure. − Contribute to social dialogue and internal communications within the structure. − Manage budget, accounting, and the specific means and logistics of the structure. − Manage litigation. − Drive structural projects and ensure their administrative and/or technical implementation. − Set up, monitor, and use activity evaluation tools. − Propose reforms and innovations to modernize the operation of the services of the structure or the management processes. Special Working Conditions N/A Competencies Know-how − Analyze a project, an approach. − Communicate. − Leading a project, an approach. − Manage a structure, a service. − Negotiation. Behavior − Sense of innovation / creativity. − Sense of human relations. − Adaptability. − Sense of organization. Knowledge − Budget and accounting management. − Governance and steering method. − Management control tools and techniques. − General principles of civil service litigation law. Management Competencies − Systematically Required Evaluation factors Medium-term Key Factors − Development of certification and quality procedures. − Control of public spending. − Modernization of public action. − Active participation in management control procedures and cost accounting. Impact on Job − Pursuing mutuality − Pursuing performance Examples of Corresponding − Ministry / Sector: Interior. Jobs − Typical job title: General Administration Coordinator. Source : Authors’ adaptation from the Répertoire Interministériel des Métiers, (2017)57. 57 https://www.fonction-publique.gouv.fr/responsable-de-la-coordination-administrative 62 PART 3 Recommendations and Conclusions 63 3. Methodological Options for Identifying Roles, Positions, Job Profiles, and Competencies Proposed methodological option 1: Strengthening Strategic Workforce Planning P96. HR planning needs to be substantially improved to address both long-term workforce needs and immediate operational needs in the rapidly aging public administration. Although a 3-year term allows officials to strategically program workforce needs, the current HRM planning in many public sector organizations has a weak linkage between the long-term and short-term visions and operational needs of the institution. In a dynamic environment, a poor connection between the long-term strategic planning of workforce and the short-term operational requirements of the institution limits the ability to adapt the workforce to changing strategic priorities, as well as to cope with its day-to-day operational needs. Workforce planning must be substantially improved to reconcile these dimensions and to address the massive workforce needs. At the same time, it is important to keep fiscal control tight to avoid inflating the wage bill. P97. Public administrations should be supported by a robust analytical foundation when developing workforce planning with improved HR data management. The development of the strategic workforce plan should be led by an assessment of changing organizational needs and internal resources for achieving institutional strategic objectives. It should be followed by a comprehensive analysis of HR dynamics and needs. Good workforce planning that responds to institutional needs is only possible with robust HR data. However, the availability of quality and relevant data is one of the most significant challenges facing many public administrations worldwide. Although this project did not systematically assess HR data management, including the HRMIS, the lack of integration of basic HRM data with more comprehensive HR data and attendant management system appears to be a major challenge in Italy. Table 12 provides examples of ideal HR data that would be required for workforce planning58. Table 12: Comprehensive HR Data to Inform Workforce Planning Comprehensive HR Data Information on current workforce, including the number of staff, levels/grades, job families, gender/other diversity data, education/qualifications, and years of service. Recruitment, terminations, retirements over the last five years, as well as retirement and turnover forecasts for the next five years. Staff competency information. Performance management results/analysis of development plans. Training offerings, training expenditures, and training needs analysis. Training and development plans/talent management plans. Courses offered at the local and/or regional universities and colleges. Labor force survey data, and demographic data. Staff survey results. Source: World Bank (2022). 58 World Bank, “Tech Savvy: Advancing Govtech Reforms In The Civil Service�, (World Bank, 2022/ forthcoming). 64 P98. There should be a stronger integration between the top-down (DFP) and bottom-up (individual administrations) function for HR planning, strengthened by inter-institutional coordination and support. Given the limited HR planning capacities of most public administrations, as recognized by several HR directors, there is a significant gap between the national vision for a strategic workforce plan and massive HR needs on the one hand, and the capacities of individual public administrations to properly deal with planning on the other. There is a need to strengthen the planning capacities of individual administrations and create a central mechanism within the DFP to coordinate, advise, and coach public institutions about strategic HR planning. At the same time, it is important to take a broader view of HR planning across the public administration. The French case can be a good example for Italy to address significant quality variations in strategic workforce planning, as well as to promote competency-based management across the administration. France has created a coordination body, the HR Steering Committee in the Directorate General for Administration and Civil Service (DGAFP), detailed in Box 5 – “Le comité de pilotage des ressources humaines de l’État�. The HR Steering Committee (HRSC) is a platform to identify the HRM-related needs of central public administrations, share good practices from best performing administrations to those that present more complex environment, and learn from peers. A coordination body within the DFP supports central public administrations in developing their HR planning. It comprises experts with a mix of skills in competency-based management and strategic workforce planning, such as financial management, strategic planning, data analysis, change management, and information technology. Box 5: Steering Committee for HRM in France Overview of the DGAFP’s Role A decree-law specifies the role of the DGAFP in guiding and coordinating the personnel policy for the entire public service. The decree-law confers the HRM of State public administrations to the DGAFP. As such, it also defines the role of the heads of HR, most often the Secretary Generals (SGs) or Director General of HR (DGRH), as privileged interlocutors of the DGAFP. It also stipulates the State's HR policy instruments including: the Inter-ministerial Strategy for Human Resources, the Steering Committee of State Human Resources, the Inter-ministerial Support Platforms for Human Resource Management (PFRH), and the lifelong learning policies project. The HR Steering Committee The HR Steering Committee is organized quarterly or annually with SGs and the ministries' HR departments. It shares and discusses the inter-ministerial and/or standard HR policies and implementation issues. The Steering Committee is considered powerful leverage for public administration transformations and reforms. The HR Steering Committee is a platform encompassing the following: ✓ The DGAFP identifies public organizational needs and progress to adapt existing HR systems or create new systems based on the evolution of their missions and related needs. ✓ The DGAFP informs public organizations of ongoing HR reforms as they are presented, explained, as well as gradually developed. This iterative approach makes it possible to readjust the systems according to the reports issued by the ministries concerning the possible limits of feasibility in the field. ✓ Public administrations share good practices that can be transposed from one organization to another. ✓ Public administrations hold exchanges between peers, allowing comparisons and the search for common solutions. 65 It is complemented by periodic meetings of the network of Deputy HR Directors and the Heads of HR Departments, each chaired by an appropriate level DGAFP manager. P99. The capacity development of HR departments for strategic HR planning and competency-based management is key. The decentralized HRM system has led to a significant variation in the relative internal status and role in HRM processes and functions that HR units across central administrations perform. Few administrations have the internal skills and resources to fully develop the strategic assessment and identification of the requisite professional profiles on their own. On the other hand, many public administrations appear to lack effective HRM tools such as robust HR analytical and management tools such as a competency framework fully integrated into an HRM information system to support proper HR planning. At the same time, they have limited staff in the HR Department combined with insufficient technical skills and expertise to analyze public administration employment trends, as well as the strategic needs to feed into the plan and adequately support the strategic identification of new requisite professional profiles consistent with current and future. In such administrations, the HR Departments — which are the driving force of any reform process and shift to strategic HRM — are more focused on compliance with the administrative and legal procedures than the strategic aspects of the entire HRM process. Thus, HRM departments need to strengthen their capacities for identifying and profiling competency-based professional profiles to overcome the above-mentioned “replacement� logic, that is, replacing professional profiles with the same quantitative and qualitative profiles. Proposed methodological option 2: Developing and Adopting a Competency Framework P100. In developing competency frameworks, a bottom-up approach and strong buy-in of staff are usually preferred over top-down approaches. The review of international practices (Ireland, Belgium, France, EPSO, and the UK) suggests that competency frameworks are generally developed in-house. The Chartered Institute of Personnel and Development in the UK confirms: “competency frameworks are usually designed in-house with or without the support of external consultants, while only a small number of administrations use frameworks produced by an external organization, such as a trade association or government body�. There are generally two ways to support the development process of a competency framework59: (i) a top-down approach, which starts by identifying existing competencies in the market, and adjusts them to the needs of specific organizations; and (ii) a bottom-up approach, which identifies the competencies that are needed in the organization, and structures them in a competency framework (OECD 2010). The review of international practices highlights that the most successful competency frameworks have been designed through a series of consultative activities with all ministries across the central government, most often using bottom-up approaches. For example, the Irish PAS conducted a series of consultations and workshops with senior managers of HR departments and technical experts in all departments of the government of the Republic of Ireland. The competency framework for the EU institutions was originally developed in-house, with the EPSO operating as coordinator and point of aggregation of the effort to develop the competency framework. The process of developing the competency framework unfolded through several rounds of consultations and feedback. It also entailed the extensive re-writing of drafts before the framework was presented to the EPSO Management Board for validation and adoption. Similarly, the Belgian Federal Public Service for Policy and Support coordinated the process of developing the competency framework in collaboration with the various 59 OECD, “Managing Competencies in Government: State of the Art Practices and Issues at Stake for the Future�, (OECD, 2010), page 46. 66 HRM representatives from government departments. Furthermore, before being rolled out across the civil service, the Belgian Federal Public Service for Policy and Support piloted a provisional competency framework for 6 months in one ministry. It was monitored continuously by an internal working group. P101. Building on international experiences, the following steps are proposed for the development of a competency framework in Italy: 1. Identify and select the competency model. The international practices suggest various approaches to designing a competency model, as detailed in section 2.4. A proposed competency model should potentially consist of the following three categories of competencies: knowledge, behavior, and know- how. The choice of model should be aligned with the organizational strategy, mission, and vision60. 2. Identify the desired competencies for each professional profile. This first stage involves a series of diagnostics to identify the desired set of competencies needed for each professional profile in line with the newly envisaged classification of professions (section 2.3.3), as well as around the three proposed categories of-competencies. This process also needs to be supplemented by job classifications, especially in the absence of such an HRM instrument in Italy. The research phase typically consists of reviewing programmatic and strategic documents of the public administration, as well as analyzing the workforce trends to determine the primary group(s) of key job profiles for the organization. Based on the preliminary phase of analysis, which defines the key parameters for each category of job, a series of consultations should be conducted with the identified stakeholders. This should be done using different qualitative and quantitative research approaches such as surveys, interviews, and focus groups. Self- reported surveys are generally characterized by relatively low-cost implementation, especially if conducted online. The advantage is that incoming data can easily be analyzed and reported. Focus groups usually require combining internal groups of public officials working in the same function or mix of professional grades or seniority levels. They are generally led by professional experts. Focus group participants can brainstorm about the type of competencies their roles would require, thus creating an ideal profile. In all cases, the diagnostic phase should identify general and desired competencies that transversally apply to all professional profiles, as well as specific and desired competencies that apply to particular groups of professional profiles. 3. Validation of the identified desirable competencies for each professional profile should be done with the directors of the line departments. The list of desired competencies identified for each professional profile or group of professional profiles should be validated with line managers. At this stage, line managers are required to confirm and revise the self-reported competencies in stage 2, justifying the changes made. After the validation stage, another round of consultations should be organized with the same groups of respondents to validate the changes. This would help to ensure complete buy- in/ownership on the part of the organization. 4. Codification of identified competencies in macro competency categories. Once the array of the ideal competencies has been validated, these can be clustered into aggregated sets of competencies at a more macro level. Taken together, they correspond to the framework of the competency model initially envisaged in stage 1. The content of a fully developed competency model includes groups of competencies, the competencies that make up each cluster, a definition of each competency, and several behavioral indicators for each competency61. The development of behavioral indicators supports the 60 OECD, “Managing Competencies in Government: State of the Art Practices and Issues at Stake for the Future�, (OECD, 2010), page 46. 61 OECD, “Managing Competencies in Government: State of the Art Practices and Issues at Stake for the Future�, (OECD, 2010), page 46. 67 assessment of individuals’ general and specific competencies and the extent to which they owned them. The development process requires the mobilization of specific HR expertise, including professional psychologistss, to determine the behaviors to be measured. 5. Pilot the competency framework. The Belgian case suggests that the large-scale implementation of the competency framework can be tested in one department or administration before rolling it out to the rest of administrations. This pilot phase should focus on fine-tuning the description of competencies and related indicators. 6. Dissemination of the competency framework and its usage in the HRM process. As stated in section 2.4, it is important to effectively communicate the purposes of the competency framework and sensitize managers and staff to its usage. Training should be provided to users of the framework regarding implementation of the competency framework in managing their human resources. Typically, a well- developed and institutionalized competency framework is used for both recruitment and career development. 7. Periodic revision of the competency framework. Competency frameworks should not be perceived as a static tool. Thus, they should be periodically reviewed to better reflect changes in the socio-economic environment. Likewise, they should support the identification of emerging skills and competencies. According to the Chartered Institute of Personnel and Development in the UK, the “competency framework should reflect core organizational values and integrated into a future-focused workforce planning to assess the nature and requirements of future roles�. Similarly, the EPSO is currently updating a competency framework to add emerging competencies such as “creativity�, “digital skills� and “entrepreneurship�. Proposed methodological option 3: Adopting a More Integrated Job Description Framework P102. An integrated job description framework is a critical instrument to support the various aspects of HRM. In addition to competency frameworks, it is vital to have clear job descriptions, which support workforce planning, the hiring process, task as well as performance management and career development of staff. An integrated job description framework can generally consist of generic and specific job descriptions. As such, it serves multiple users, as shown in Table 13: ✓ Generic job descriptions include broad information about the job, its main responsibilities and tasks and generic competencies required. However, these are not related to specific positions. In the case of Italy, professional profiles can provide the basis for the development of generic job descriptions. ✓ Specific job descriptions contain detailed information explicitly related to a concrete position within an organization. Table 13: Type of Users for Generic and Specific Job Descriptions GENERIC JOB DESCRIPTIONS SPECIFIC JOB DESCRIPTIONS User Purpose of Use Purpose of Use HR Departments • Workforce planning • Recruitment • Performance management • Periodical performance appraisal • Training needs • Reporting and analyses conducted at the • Career path organizational level • Career development • Periodic job analyses 68 Line managers • Workforce planning • Operational management of the workforce • Recruitment (linked with objectives, tasks, indicators). • Performance management • Support the preparation of the recruitment • Training needs – individual and at the group process, especially related to the final stages. level • Organize the induction sessions for the newly • Career path– within and across job families recruited staff. • Career development – within and across job • Organize the periodical performance families appraisal procedures. • Periodic job analyses. Formez/Ripam • Recruitment Public Employees • Provide information about the overall picture • Apply for a specific internal job position. of the public administration. • Prepare for specific interviews as part of the • Provide a clear understanding concerning the recruitment process. role and mission. • Acknowledgment of the details of the specific • Provide details to inform the options for career job occupied. paths. • Provide information about the preparation • Provide a clearer image when planning options for setting working objectives and for mobility. performance indicators. • Self-planning and organization of work. • Self-identification of specific training needs. • Provide information about the preparation of the periodical performance appraisal process. General Public • Search for jobs. • Apply for a specific job position. • Search for information about public • Gather information to prepare an application administration activities and civil servants. for a specific job. Source: World Bank. P103. The architecture to develop an integrated job description framework will follow the inter-linked process, which is already in place in many public administrations. The process unfolds in four main steps: 1. Identification of the number and type of jobs that allow public administrations to implement and realize their missions. In the Italian framework, the three-year strategic workforce plan supports public administration in identifying the number and type of personnel needed to fulfill the organizational missions. These are in line with the strategic and programmatic documents. The strategic workforce plan provides the basis to update the inventory of professional profiles already in place. This process should be coordinated by HRM departments. It should also involve representatives of each line department, the trade unions, and experts in the field. 2. Classification of the identified jobs into categories based on clear criteria, such as similar missions and tasks, common roles to be covered — all in line with the newly envisaged CCN. The revised regulatory framework, discussed in section 2.3.3) requires the CCNI to categorize professional profiles in occupational job families for each professional area identified by the CCN. In other countries, professional profiles are also classified in functional domains. This is the case in France, which is characterized by the provision of a higher level of details compared to occupational job families. 3. Identification of the mission, main tasks, and competencies for each professional profile and development of generic job descriptions. Public administrations are required to perform a content- related job analysis of the current activities and tasks performed by public officials in each professional profile. Self-reported employee surveys are easy and low-cost tools used to collect and analyze data, thus providing a quick means of understanding what employees do within the organization. The analysis of content-related job needs to be combined with validation activities from line directors. Revising 69 professional profiles, while also capturing more detailed information about the content of the jobs in a systematic and simplified manner will help to: (i) increase transparency vis-a-vis the general public regarding what the public employees do; (ii) enable a better deployment of employees and improved work performance; (iii) strengthen the identification and description of the competencies required in the public administration, which guarantees a straightforward linkage with training programs, recruitment processes and labor markets; and (iv) facilitate the planning and management of skills in the organization. 4. Integration of specific details of each job to develop specific job descriptions. Based on the generic job description framework, each department in the organization develops a specific job description to support the internal management of resources, thereby contributing to the development of the strategic workforce plan. P104. Job descriptions should not be perceived as a static tool; rather, they should be constantly reviewed to better reflect the needs and demands for public administration and services in an evolving socio-economic environment. As such, they should support the identification of emerging skills and competencies. The revision of job descriptions can follow different patterns. The line managers can revise the job description based on their judgments about the envisaged set of competencies and skills required for a specific position. Public officials can also perform a self-assessment of the current level of competencies acquired, as well as the potential identification of emerging skills and competencies to attain more effective performance. The revision of the job description requires additional validation from the line managers or appropriate management in the organization. Furthermore, line managers and public officials can revise the job descriptions together, thus linking the assessment of competencies with the performance evaluation, as currently adopted in France and detailed in Box 6. Box 6: Performance Evaluation and Job Description Updating Process in France In France, RIME has also found a logical extension in the individual performance appraisal, performed in a combined way with the assessment of competencies and skills based on a forward-looking management of jobs, personnel, and skills (GPRH) approach. The Directorate General of Administration and Civil Service (DGAFP) has developed guidelines for developing standardized appraisal forms. Individual ministries can use these forms during employee performance appraisals and the assessments of competencies and skills. Performance appraisal interviews are then conducted based on the public official's job description. With the performance appraisal of the past year, line managers and public officials can then identify any potential changes in the job description. The revision process is based on a forward-looking approach that considers the evolution of the service missions; the impact of the mission on public officials' tasks and activities; the identification of new skills to be acquired; and the training programs needed to acquire those skills. The revised job description is then attached to the professional evaluation interview report. The collection and centralization of training needs also make it possible to identify the main trends in the development of skills and corresponding professions. These observations are then shared among the ministries during the network meetings organized by the General Administration and Civil Service (DGAFP), thereby facilitating a continuous adaptation of the RIME reference works. 70 4. Conclusions P105. Incremental and structural HRM reform is necessary to introduce and consolidate a competency-based management culture in Italy. This report illustrates methodological options about how individual central government public sector organizations can develop the competency frameworks and competency profiles to inform the strategic workforce plan and recruit the required set of competencies for sustainable organizational development and long-term performance. The methodological options can be explored in parallel given the interdependencies between the job classification system, the development of job descriptions, the design of the competency framework and its use in workforce planning. Introducing and consolidating competency-based management represents a major shift from the current HRM. Indeed, it introduces significant changes to its culture. To this end, there should be coordinated efforts for structural reforms using an incremental approach. A strong top-down commitment is also necessary. It should be combined with bottom-up, buy-in and supported by a clear institutional mechanism. The DFP will play a vital role in this reform given its position as a key regulator in personnel policies, and as a key actor for any central government-wide reforms of HRM approaches. The current legislative framework provides extensive autonomy to public administrations in central government in setting their HRM policies. In this decentralized HRM system, HRM departments of individual administrations and, ultimately, public employees, will be the main stakeholders and beneficiaries of the reform. The proposed HR Steering Committee will be comprised of the DFP, HR Directors, and professional experts, as described in proposal 1. It will be a crucial platform at the highest level of the government for the proposed reform processes, as well as for continued HR policy reforms and their implementation. P106. The proposed recommendations require legislative and regulatory changes supported by political decisions and high-level commitment in the GoI to be fully adopted and implemented by central public administrations. Adopting the strategic HR tools discussed in proposals 1, 2, and 3 should enhance the gradual shift from a more traditional to a more strategic approach to human resources management. The reform process will require strong commitment at the highest level of the government, its political decision, and government consensus in defining adequate legislative and regulatory interventions. The legal and regulatory enforcement of such changes will set a common framework to encourage organizational and cultural change across central public administrations. P107. Implementing and adopting the proposed recommendations also requires setting up clear institutional governance and inter-institutional coordination mechanisms. The individual administration should be responsible for adopting and implementing HR strategic tools. However, they should be supported, guided, and advised by a central coordination body. Therefore, establishing a special HRM steering committee within the DFP, as described in proposal 1, can be powerful leverage in public administration and the organizational reform process. The inter-institutional HRM steering committee will perform as a platform to enhance, monitor, and support the change management process. P108. Creating a collaborative environment for changes and change management supported by strong leadership and communication strategy is key for success. Once the legislative and regulatory framework has been put in place, combined with strong political will and inter-institutional coordination mechanisms, the DFP should commit to a vision and strategy for change to motivate and inspire central public administration HRM departments and key stakeholders involved to comply with the envisaged reforms. The importance of moving towards a more strategic HRM should be supported by effective communication on the vision, mission, and advantages of embracing such changes within each organization. This process should 71 accompany capacity-building initiatives to strengthen the public organization and HRM departments' internal capacities in supporting the change process. 72 APPENDIX 73 Appendix 1: Age and Gender Distribution by Sector and Organization Comparto Aggregato Average Average Average Proportion Proportion Age Age Age of Men of Female (Men) (Women) (All) Ministries 54.98 54.27 54.60 46.40% 53.60% Fiscal Agencies 53.11 52.83 52.97 50.80% 49.20% Non-Economic Public Entities 54.27 53.03 53.53 40.40% 59.60% C.N.E.L. 56.42 54.50 55.76 65.52% 34.48% E.N.A.C. 55.10 52.61 54.17 62.50% 37.50% Magistrature 52.20 48.51 50.29 48.06% 51.94% Central Diplomats 46.46 41.57 45.34 77.21% 22.79% Function Administrations Prefects 53.85 53.53 53.67 41.96% 58.04% Carriera Penitenziaria 56.48 54.83 55.32 29.85% 70.15% Presidenza Del Consiglio Dei Ministri 55.77 55.28 55.52 49.97% 50.03% Independent Authorities 50.40 49.19 49.75 46.92% 53.08% Unioncamere 56.84 52.36 54.50 47.76% 52.24% Other Entities 52.12 49.44 51,07 58.26% 41.74% Total 53.58 51.53 52.68 48.03% 51.97% Police 44.94 41.83 44.64 90.31% 9.69% Armed Forces 39.82 29.89 39.13 93.03% 6.97% Defense Fireworkers 47.21 51.18 47.41 94.97% 5.03% Total 50.91 48.35 50.03 91.56% 8.44% Schools 51.00 50.66 50.73 20.88% 79.12% Universities 52.38 51.63 51.93 40.54% 59.46% Public Research Entities 51.59 50.94 51.28 52.43% 47.57% Education and A.S.I. 51.42 51.10 51.25 48.87% 51.13% Research Professors and Researchers 54.85 53.63 54.39 62.39% 37.61% Other entities 47.94 46.43 47.32 59.40% 40.60% Total 51.53 50.73 51.15 23.91% 76.09% National Health System 51.68 49.62 50.29 32.28% 67.72% Health Total 51.68 49.62 50.29 32.28% 67.72% Regional and Local Administrations 54.06 52.22 53.07 46.15% 53.85% Local Function Autonomous Regional/Local Administration Administrations 52.40 50.14 50.99 37.70% 62.30% Total 53.23 51.18 52.03 44.64% 55.36% 74 Appendix 2: List of Beneficiary Administrations Beneficiaries administrations Ministero degli Affari Esteri e della Cooperazione Internazionale Ministero del Lavoro e delle Politiche Sociali Ministero dell’Ambiente e della Tutela del Territorio e del Mare Ministero dell’Economia e delle Finanze Ministero dell’Interno Ministero dell’Istruzione Ministero dell’Università e della Ricerca Ministero della Difesa Ministero della Giustizia Ministero della Salute Ministero delle Infrastrutture e dei Trasporti Ministeri Ministero delle Politiche Agricole Alimentari e Forestali Ministero dello Sviluppo Economico Ministero per i Beni e le Attività Culturali e per il Turismo Ministero per I Rapporti con il Parlamento Ministero per l’Innovazione tecnologica e la transizione digitale Ministero della Pubblica amministrazione Ministero degli Affari regionali e le autonomie Ministero per il sud e la coesione territoriale Ministero delle Politiche giovanili Ministero delle Pari opportunità e la famiglia Ministero della Disabilità Ministero per il Coordinamento di iniziative nel settore del turismo Amministrazioni Presidenza del Consiglio dei Ministri Ordinamento Autonomo Agenzia del Demanio Agenzie Fiscali Agenzia delle Dogane e dei Monopoli Agenzia delle Entrate Istituto Nazionale di Previdenza Sociale (INPS) Istituto Nazionale per l’assicurazione contro gli infortuni sul lavoro (INAIL) Enti Pubblici Non Istituto Nazionale per il Commercio con l’Estero (ICE) Economici Istituto Nazionale di Previdenza per i dipendenti dell’Amministrazione Pubblica (INPDAP) Istituto Nazionale di Previdenza per il Settore Marittimo (IPSEMA) Enti Art.70 - C.N.E.L. Istituzionale del Consiglio Nazionale dell'Economia e del Lavoro. Enti Art.70 - Ente nazionale per l'aviazione civile E.N.A.C. Agenzia italiana del farmaco (AIFA) Altre Amm. Agenzia nazionale per i servizi sanitari regionali (AGE.NA.S.) Ordinamento Agenzia nazionale per la sicurezza del volo (ANSV) Autonomo Agenzia nazionale per la sicurezza delle ferrovie (ANSF) 75 Beneficiaries administrations Agenzia nazionale per le politiche attive del lavoro (ANPAL) Agenzia per l’Italia digitale (AGID) Agenzia per la coesione territoriale Agenzia per la rappresentanza negoziale delle pubbliche amministrazioni (ARAN) Agenzia per le erogazioni in agricoltura (AGEA) Ente nazionale per il microcredito Ispettorato nazionale del lavoro Agenzia italiana per la cooperazione allo sviluppo Agenzia nazionale per il turismo (ENIT) Agenzia per la promozione all'estero e l'internazionalizzazione delle imprese italiane (ICE) Amministrazione degli archivi notarili Ente nazionale per l’aviazione civile (ENAC) Agenzia nazionale di valutazione del sistema universitario e della ricerca (ANVUR) Unione italiana delle camere di commercio, industria, artigianato e agricoltura (UNIONCAMERE) Accademia della Crusca Agenzia nazionale per i giovani Istituto nazionale per la promozione della salute delle popolazioni migranti e per il contrasto delle malattie della povertà (INMP) Agenzia nazionale per le nuove tecnologie, l’energia e lo sviluppo economico sostenibile (ENEA) Agenzia spaziale italiana (ASI) Consiglio nazionale delle ricerche (CNR) Consiglio per la ricerca in agricoltura e l’analisi dell’economia agraria (CREA) Istituto italiano di studi germanici Istituto nazionale di alta matematica “Francesco Severi� (INDAM) Istituto nazionale di astrofisica (INAF) Istituto nazionale di documentazione, innovazione e ricerca educativa (INDIRE) Istituto nazionale di fisica nucleare (INFN) Istituto nazionale di geofisica e vulcanologia (INGV) Istituto nazionale di oceanografia e di geofisica sperimentale (OGS) Istituto nazionale di ricerca metrologica (INRIM) Istituto nazionale di statistica (ISTAT) Istituto nazionale per la valutazione del sistema educativo di istruzione e di formazione (INVALSI) Istituto superiore di sanità (ISS) Istituto superiore per la protezione e la ricerca ambientale (ISPRA) Museo storico della fisica e Centro studi e ricerche Enrico Fermi Stazione zoologica Anton Dohrn 76 Appendix 3: List of Interviews Conducted Key stakeholder (ARAN) Date Institution Participants’ Function Main topics covered April 19, ARAN Former President ARAN represents the public employer 2021 in collective bargaining negotiations with public-sector unions. The objective of the interview was to understand: • the process of collective bargaining in the public sector, • the role of the various stakeholders • how the single administration defines the professional profiles • the process public administrations have to follow to modify their professional profiles. April 28, ARAN General Director of the ARAN represents the public employer 2021 “Financial Compatibility in collective bargaining negotiations of the CCNL� with public-sector unions. The objective of the interview was to understand: • the process of collective bargaining in the public sector, • the role of the various stakeholders • how the single administration defines the professional profiles • the process public administrations have to follow to modify their professional profiles HRM directors The objective of the interview is to collect information on: ✓ the process of determining the need of personnel within the single public administration ✓ the actors involved in the definition of personnel need ✓ the type of skills administrations map ✓ what they mean by soft and digital skills 77 Date Institution Participants’ Function October 15, 2021 ISTAT Head of HRM department HRM directors October 19, 2021 Ministry of Justice Head of HRM department October 22, 2021 INPS Head of HRM department October 26, 2021 Italian Revenue Agency HRM directors November 3, 2021 Ministry of Economy and Head of HRM department Finance HRM directors November 17, 2021 Ministry of Culture HRM director International practitioners The objective of the interview is to collect information on: ✓ The process of determining a competency-framework ✓ The actors involved in the development of the competency-framework Date Country Participants’ Function January 12, 2022 Ireland Senior Lecturer, Institute of Public Administration January 28, 2022 Sweden Head of Resourcing, HR department of Tax Agency February 2, 2022 Belgium Research and Development Manager, Belgian Federal Public Service, Policy and Support February 3, 2022 Ireland Psychologist, Public Appointments Service February 3, 2022 EPSO Deputy Head of Unit, EPSO 78 Appendix 4: Protocol of Interviews Key stakeholder (ARAN) 1. National collective bargain in the Public Administration Q1. Is it possible to detail the collective bargain process in the Public Administration? Q2. What are the exact roles of ARAN, Unions, Sectoral Committees (Comitati di Settore), and DFP in defining the CCN? Q3. What is the general process that a single administration must carry out to define the CCI? What is the role of DFP/RSG in the process? 2. National collective bargain and professional profiles Q4. In your experience, what are the main tools for evaluating skills and competencies gaps, and for strategic personnel planning in the Italian public administrations? Q5. In your opinion, do you think that professional profiles are reflecting the professional content of public organizations? Q6. In your opinion, how should professional profiles be revised by each public administration? Q7. In case a public administration wants to revise the content of professional profiles, what would be the exact procedure? 3. Public recruitment system Q8. How much, in your opinion, does the motivation of a candidate for civil service matter? Q9. In your opinion, how has been and could be this assessed in the recruitment process? Q10. Do you consider that recruitment competitions in the current position attract the best candidates? If not, what do you think should be changed? Q11. What are the pros and cons of the current recruitment system? HRM directors 1. Analysis of gaps in professional profiles Q1. What are the key issues in managing people in your organization? Q2. Is it possible to detail the HRM process in the Italian Public Administration, indicating the key institutions involved and their responsibilities? Q3. In your experience, what are the main tools for evaluating skills and competencies gaps, and for strategic personnel planning in the Italian public administrations? Q4. How do you determine the need for civil servants in your organization? Q5. What are the steps needed so that your department identifies and determines the vacancies? Q6. What is the role of DFP in the process of determining the need of civil servants in your organizations? And the role of RGS? Q7. Generally, what information on vacancies, based on professional profiles, do you provide to the DFP for the recruitment? Q8. Who is responsible for updating data / modifying content / monitoring information related to professional profiles in your organization? Q9. Generally, do you think you can modify the content of professional profiles? 2. Skills gap, soft and digital skills Q10. What type of technical skills do you think are fundamental to work in your organization for entry, mid-career, and management levels? Q11. What type of soft skills do you think are fundamental to work in your organization for entry, mid- career, and management levels? 79 Q12. What type of digital skills do you think are fundamental to work in your organization for entry, mid- career, and management levels? Q13. How does the organization identify the type of skills needed to work your organization? Q14. How does your department reflect the real staffing needs coming from the various hiring managers? 80 Appendix 5: Example of IT Officer Professional Profile in IRA, MOC and MOJ IT officer Organization Professional Specifications General Content of tasks description IRA The IT officer (a) defining the technological development plans and supports the competent structures in identifying the carries out automation needs; (b) providing technical assistance during the implementation of the procedures and activities related to ensures the system's overall consistency; (c) taking care of IT security and cooperation problems and the IT system's ensures the monitoring of ICT contracts, also verifying compliance with service levels;(d) temporarily operation, assuming managerial functions in place of or in the absence of the manager. development, and monitoring. MoC The IT officer (a) providing support services to users in using IT systems and applications; (b) contributing to the design performs the and development of IT systems; (c) overseeing the realization of the programs, and the relative revision, activities related to optimization and maintenance; (d) designing the necessary hardware structure, proposes any changes, operational carries out the technical analysis of the procedures; (e) supporting programmers with the necessary planning, documentation for the drafting of the programs; (f) managing the data processing and communication management, and center, or one or more sectors in which it is divided; (e) providing the operational functioning of the coordination of the processing systems and telecommunication networks; (f) carrying out the technical and procedural IT system and operations necessary to ensure the proper functioning and maintenance of the performance standards of telecommunication the systems and service to the user and of the certified e-mail systems; (g) planning and coordinating the network resources. management of processing activities, optimizing the functioning of the IT systems and implementing the interoperability process between the systems; (h) designing the logical and physical configuration of the Ceds and networks; (i) defining the operating standards. MoJ (a) High degree of theoretical and The IT officer (a) carrying out program development, revision, optimization, and maintenance of the IT systems; (b) practical knowledge and experience of conducts highly designing the necessary hardware structure and software management, proposing any changes, and management processes in the IT field; specialized evaluating the related products; (c) supporting the preparation of the documentation required for the (b) coordination, management, and activities in IT drafting of programs, coordination, and planning of the development and management of IT systems, control of organic units, including procedures to checking the operating standards, and the related functional specifications; (d) supervising the correctness external work and study groups; (c) implement the of the IT systems by monitoring the activity of the assistance companies; (e) participating in the evaluation carrying out activities with a high guidelines and and/or testing commissions in the role of the component or president; (f) discussion technical/economic technical, managerial and specialist objectives of the opinions that require in-depth theoretical/practical knowledge; (g) managing organic units or services in content with direct assumption of office defined by considerable complexity and essential structures; (h) participating in the administration's learning activities responsibility for results; (d) autonomy the manager. in the field of specialization. and responsibility in the context of general directives. 81 References [1]. 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