OECD Public Governance Reviews O E C National Schools of Government D P u b OECD Public Governance Reviews BuilDiNG Civil SERviCE CaPaCity lic G o This series includes international studies and country-specific reviews of government efforts to make the public ve National Schools r sector more efficient, effective, innovative and responsive to citizens’ needs and expectations. Publications n a in this series look at topics such as open government, preventing corruption and promoting integrity n c of Government in the public service, risk management, illicit trade, audit institutions, and civil service reform. Country-specific e R reviews assess a public administration’s ability to achieve government objectives and preparedness to address e v current and future challenges. In analysing how a country's public administration works, reviews focus ie on cross-departmental co-operation, the relationships between levels of government and with citizens w BuilDiNG Civil SERviCE CaPaCity s and businesses, innovation and quality of public services, and the impact of information technology on the work of government and its interaction with businesses and citizens. National schools of government operate in a context of rapidly changing needs and expectations for governments, citizens and civil servants. Drawing on a 2014 survey, the report reviews how schools of government are adapting to address countries’ most pressing political and economic challenges. It analyses best practices, and includes recommendations on designing and implementing whole-of-government and organisation-specific civil service learning and development strategies. The report suggests ways to align learning programmes with the priorities of national governments, to enhance innovative techniques in the delivery and content of learning, and to ensure their stable and adequate funding. N a t io n a l S c h o o ls o f G o v e r n m e n t B u il D iN G C iv il S E R v iC E C a P Consult this publication on line at http://dx.doi.org/10.1787/9789264268906-en. a C it This work is published on the OECD iLibrary, which gathers all OECD books, periodicals and statistical databases. y Visit www.oecd-ilibrary.org for more information. iSBN 978-92-64-26889-0 9HSTCQE*cgiija+ 41 2017 04 1 P OECD Public Governance Reviews National Schools of Government BUILDING CIVIL SERVICE CAPACITY This work is published under the responsibility of the Secretary-General of the OECD. The opinions expressed and arguments employed herein do not necessarily reflect the official views of OECD member countries. This document and any map included herein are without prejudice to the status of or sovereignty over any territory, to the delimitation of international frontiers and boundaries and to the name of any territory, city or area. Please cite this publication as: OECD (2017), National Schools of Government: Building Civil Service Capacity, OECD Public Governance Reviews, OECD Publishing, Paris. http://dx.doi.org/10.1787/9789264268906-en ISBN 978-92-64-26889-0 (print) ISBN 978-92-64-26890-6 (PDF) Series: OECD Public Governance Reviews ISSN 2219-0406 (print) ISSN 2219-0414 (online) The statistical data for Israel are supplied by and under the responsibility of the relevant Israeli authorities. The use of such data by the OECD is without prejudice to the status of the Golan Heights, East Jerusalem and Israeli settlements in the West Bank under the terms of international law. Photo credits: Cover © Ellagrin/ Shutterstock.com Corrigenda to OECD publications may be found on line at: www.oecd.org/about/publishing/corrigenda.htm. © OECD 2017 You can copy, download or print OECD content for your own use, and you can include excerpts from OECD publications, databases and multimedia products in your own documents, presentations, blogs, websites and teaching materials, provided that suitable acknowledgement of OECD as source and copyright owner is given. All requests for public or commercial use and translation rights should be submitted to [email protected]. Requests for permission to photocopy portions of this material for public or commercial use shall be addressed directly to the Copyright Clearance Center (CCC) at [email protected] or the Centre français d’exploitation du droit de copie (CFC) at [email protected]. 3 FOREWORD – Foreword Governments around the world are under increased pressure to become more transparent, open and accountable, and build institutions that are responsive to citizens’ aspirations to restore or maintain trust in government. Effective implementation of these priorities strongly depends on the competencies and capabilities of public servants in national administrations. Schools of government are uniquely placed to enhance the capacity of public servants to meet the leadership, policy and delivery challenges they face. Schools play this role both directly, through their learning and training programmes, and indirectly, by encouraging a learning culture that contributes to civil service effectiveness and efficiency. However, to remain relevant and responsive, schools also need to adapt their programmes to the changing needs of governments and civil servants. What are the main achievements and challenges of national schools of government in promoting civil service learning and developing the right skills for meeting citizens’ expectations? How do schools of government ensure responsiveness to government priorities in learning programmes? What are the schools’ capacities, management models and innovative methods to enable public service learning? This publication reviews how members of the OECD Global Network of Schools of Government are addressing these questions and presents a comprehensive analysis of best practices and common challenges. Established in 2014, the OECD Global Network of Schools of Government provides direct access to OECD governance expertise, and allows schools to exchange experiences and good practices in ensuring that public sector employees have the skills and competencies to address current and future priorities. The report is part of the Network’s efforts to create a dialogue across OECD and partner countries on effective and innovative tools in shaping public service delivery including capacity building, policy implementation and research needs. It draws on the results of the 2014 OECD Survey of National Schools of Government, the first cross- national OECD study of these institutions, and contributes to international comparative knowledge in this area. The report highlights that, while classroom teaching remains the preferred training method, there is a growing trend toward new training modalities, such as online training, team-based activities and study tours. These innovations are mainly driven by changes in civil service demographics – new civil service recruits often have different learning needs – as well as by fiscal pressures and the need to demonstrate results and value for money. The report finds that further investments in monitoring and evaluation activities are essential for ensuring enhanced impact and relevance of schools of government programmes. The report includes recommendations on designing and implementing whole-of- government and organisation-specific civil service learning and development strategies. It also makes recommendations for improving schools’ effectiveness through a greater focus on training programmes and evaluation processes. The report suggests steps to NATIONAL SCHOOLS OF GOVERNMENT: BUILDING CIVIL SERVICE CAPACITY © OECD 2017 4 – FOREWORD ensure the alignment of learning programmes with the priorities of national governments, enhance innovative techniques in the delivery and content of learning and development, as well as to foster their stable and adequate funding. NATIONAL SCHOOLS OF GOVERNMENT: BUILDING CIVIL SERVICE CAPACITY © OECD 2017 5 ACKNOWLEDGEMENTS – Acknowledgements The report was prepared by the Governance Reviews and Partnerships Division, led by Martin Forst, of the Public Governance and Territorial Development Directorate, headed by Rolf Alter. The report was elaborated under the strategic direction of Tatyana Teplova, Senior Analyst and Deputy Head of Governance Reviews and Partnerships Division. The report was drafted by Michael O’Neill, Policy Analyst, and Evgenia Korotkova, Policy Analyst. Edwin Lau, Head of the Reform of the Public Sector Division, and Daniel Gerson, Project Manager, provided significant contributions to the report and to the 2014 OECD Survey of National Schools of Government. Editorial work and quality control were done by Julie Harris and Andrea Uhrhammer. Ciara Muller prepared the manuscript for publication. Administrative support was provided by Makeda Yohannes, Isabelle Reullon and Katarzyna Weil. The OECD Secretariat wishes to thank members of the Steering Committee of the OECD Global Network of Schools of Government for their valuable guidance and support, particularly their Chair, Professor Tria, Director of the National School of Administration of Italy. The OECD wishes to acknowledge the significant contribution made by all members of the network and respondents to the 2014 OECD Survey. The team is grateful for the insightful comments and support provided by delegates of the OECD Public Governance Committee. . NATIONAL SCHOOLS OF GOVERNMENT: BUILDING CIVIL SERVICE CAPACITY © OECD 2017 6 – TABLE OF CONTENTS Table of contents Executive summary ........................................................................................................................ 11 Assessment and recommendations ................................................................................................ 13 Chapter 1. Setting the scene: Civil service learning - An evolving priority ................................ 17 Introduction ................................................................................................................................. 18 Methodology and context ............................................................................................................ 19 References ................................................................................................................................... 22 Chapter 2. Encouraging and supporting civil service learning and skills development ........... 23 Introduction ................................................................................................................................. 24 Civil service learning and development ...................................................................................... 24 Competencies and skills needed for a well-performing civil service .......................................... 25 The role of schools of government in developing civil service skills and competencies ............ 31 National civil service learning and development strategies......................................................... 36 Schools of governments’ inputs into government priorities ........................................................ 49 Assessment and recommendations .............................................................................................. 51 Notes ............................................................................................................................................ 53 References ................................................................................................................................... 53 Chapter 3. Innovating in schools of government programmes .................................................... 57 Introduction ................................................................................................................................. 58 Civil service learning and development approaches.................................................................... 58 Programme accreditation and standards of excellence ................................................................ 62 Knowledge development and research ........................................................................................ 65 Assessment and recommendations .............................................................................................. 68 Notes ............................................................................................................................................ 69 References ................................................................................................................................... 69 Chapter 4. Evaluating the success of national schools of government ........................................ 71 Introduction ................................................................................................................................. 72 Assessment and recommendations .............................................................................................. 80 References ................................................................................................................................... 81 NATIONAL SCHOOLS OF GOVERNMENT: BUILDING CIVIL SERVICE CAPACITY © OECD 2017 7 TABLE OF CONTENTE – Chapter 5. National schools of government: Building relationships and co-ordination ........... 83 Introduction ................................................................................................................................. 84 Schools as national learning and development organisations ...................................................... 84 Legal framework.......................................................................................................................... 93 Schools of government co-ordination mechanisms ..................................................................... 95 Schools of government internal governance and management ................................................... 98 Assessment and recommendations ............................................................................................ 101 Notes .......................................................................................................................................... 102 References ................................................................................................................................. 103 Chapter 6. Future priorities and challenges for national schools of government .................... 105 Introduction ............................................................................................................................... 106 Current priorities and challenges faced by national schools of government ............................. 106 Assessment and recommendations ............................................................................................ 112 References ................................................................................................................................. 113 Further reading................................................................................................................................ 114 Annex A. List of respondents to the 2014 OECD Survey of National Schools of Government ................................................................................................................... 119 Tables 2.1. Schools of government contributions to the development of government priorities ................. 50 2.2. Schools of government contributions to whole-of-government initiatives ................................ 51 3.1. Main areas of learning and development offered by schools of government and civil service skills gaps .............................................................................................................. 59 4.1. National schools of government success factors ....................................................................... 77 5.1. Civil service systems and civil service training institutions ...................................................... 86 5.2. National schools of government institutional relationships ....................................................... 90 5.3. National schools of government legal authority (government institutions only) ....................... 94 5.4. National schools of government internal governance and management structures ................... 99 6.1. Challenges facing national schools of government ................................................................. 107 6.2. National schools of government annual funding, 2014 ........................................................... 109 6.3. National schools of government fee-for-service income ......................................................... 110 Figures 2.1. UK Civil Service Competency Framework 2012-17 ................................................................. 26 2.2. The development of civil service competencies in national schools of government ................. 28 2.3. Priority competencies for senior managers ................................................................................ 29 2.4. Responsibilities of national schools of government .................................................................. 32 2.5. Civil service skills gaps and learning and development opportunities ...................................... 35 2.6. The degree of involvement of national schools of government in assessing leadership competencies ................................................................................................................... 36 2.7. The presence of national civil service learning and development strategies in schools of government ...................................................................................................................... 38 2.8. Level of government covered by national schools of government civil service learning strategies ............................................................................................................................. 40 NATIONAL SCHOOLS OF GOVERNMENT: BUILDING CIVIL SERVICE CAPACITY © OECD 2017 8 – TABLE OF CONTENTS Figures (continued) 2.9. Link between civil service learning strategies and performance management in national schools of government .................................................................................................... 41 2.10. Presence of organisational civil service learning plans in national schools of government ................................................................................................................................... 42 2.11. The presence of an ongoing review of civil service training and development needs in national schools of government .......................................................................................... 43 2.12. Channels for the identification of civil service training and development priorities in national schools of government .................................................................................................... 44 2.13. Determination of civil service knowledge needs in national schools of government .............. 45 2.14. Mechanisms to align government-wide priorities to civil service learning in national schools of government ........................................................................................................ 46 2.15. Co-ordination mechanisms to seek input into the determination of civil service learning priorities in national schools of government....................................................................... 47 2.16. Actors in priority setting for civil service learning in national schools of government ........... 48 3.1. Knowledge development and research in national schools of government ............................... 65 3.2. Research priorities in national schools of government .............................................................. 66 3.3. Who contributes to the definition of learning priorities for civil servants in national schools of government ........................................................................................................ 67 4.1. Modes and methods of evaluation of national schools of government activities ...................... 73 4.2. Private costs and benefits for a man obtaining higher education (in USD, 2007 or latest available year) ......................................................................................................................... 79 5.1. Presence of governmental training institutions in selected countries ........................................ 84 5.2. Models of institutional relationships between schools of government and other government institutions .................................................................................................................... 89 5.3. National schools of government institutional autonomy ........................................................... 92 5.4. National schools of government training activities at the national and sub-national level ........ 96 5.5. National schools of government co-ordination mechanisms across levels of government with respect to civil service learning ............................................................................ 98 6.1. National schools of government priorities ............................................................................... 107 Boxes 1.1. Terminology used in this report ................................................................................................. 19 1.2. OECD Global Network of Schools of Government .................................................................. 20 1.3. 2014 OECD Survey of National Schools of Government ......................................................... 21 2.1. The United Kingdom’s Civil Service Competency Plan ........................................................... 27 2.2. The new Key Leadership Competencies in Canada .................................................................. 29 2.3. National schools of government: Missions and mandates ......................................................... 32 2.4. Examples of national approaches to civil service competency development ............................ 34 2.5. National civil service learning strategies in Canada and Ireland ............................................... 38 3.1. Australia Public Service induction programme ......................................................................... 62 3.2. Programme accreditation approaches ........................................................................................ 63 3.3. UN/IASIA Standards of Excellence for Public Administration Education and Training .......... 64 4.1. Public service staff satisfaction surveys .................................................................................... 74 4.2. Ireland’s National Framework of Qualifications ....................................................................... 75 4.3. ENA’s approach to evaluation and quality improvement .......................................................... 75 4.4. What are the returns on investment in higher education? .......................................................... 78 5.1. Examples of consolidation in civil service training institutions in Canada, Hungary and Italy ............................................................................................................................. 86 NATIONAL SCHOOLS OF GOVERNMENT: BUILDING CIVIL SERVICE CAPACITY © OECD 2017