HRD STRATEGY FRAMEWORK REPORT

Prepared by: Tsukudu Associates P O Box 5606, Tygervalley, 7536 Tel: +27 21 914 4005 Fax: +27 21 914 4006

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TABLE OF CONTENTS

1
1.1

Executive summary................................................................ 3
Key findings................................................................................................. 3

2
2.1 2.2 2.3

Introduction and background ................................................ 4

Approach to the work................................................................................ 5 Deliverables ................................................................................................. 6 A model of learning and development to impact workplace performance................................................................................................. 6

3
3.1 3.2

Drivers..................................................................................... 7
Institutional leadership ............................................................................. 7 Institutional direction of HRD.................................................................. 8

4
4.1 4.2

Vehicles................................................................................. 11
Performance management process .................................................... 11 The HRD function itself........................................................................... 12

5
5.1 5.2 5.3

Activity .................................................................................. 13
HRD planning to enhance performance............................................. 13 HRD activity to enhance performance................................................ 14 Evaluation and transfer of learning..................................................... 15

6
6.1

Outcomes.............................................................................. 17
Impact on performance in the workplace .......................................... 17

7 8

Recommendation, resourcing and enabling options......... 17 Conclusion............................................................................ 18

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EXECUTIVE

S U M M ARY

This report focuses on human resource development for staff within Parliament and the legislatures. There is a separate intervention which focuses on members. The overall purpose of this project is to focus the efforts and measures of human resource development (HRD) initiatives for effectiveness and impact. The aim is to conduct a diagnosis of HRD practices, develop a HRD strategy framework and a skills audit tool for both Parliament and the provincial legislatures. 1.1 K EY FINDINGS Overall, there are many similarities in HRD practices among all the legislative institutions. The differences were so minute that it will not serve any meaningful purpose to highlight them. The findings therefore, paint a comprehensive view of the sector, which then forms a solid platform for collaboration and for utilising the HRD strategy framework. The following is a summary of the key findings. All institutions have a vision, mission and values, which are well displayed, though not internalised, by employees. The culture of strategic planning is well entrenched at senior management level but not well communicated to the rest of the organisation There is a heightened awareness that current HRD initiatives are not tailor-made to the sector, except for inter-institutional exchange visits. The HRD function in the sector is not strategic in action, location and influence, resulting in very little credibility HRD interventions are externally driven and implementation is mainly ad hoc and reactive. There is poor alignment with the strategic objectives of each institution and other HRM processes such as performance management, career management, succession planning and promotions, etc. People development lies at the heart of every managers responsibility; yet in this sector management behaviour does not indicate an appreciation of HRD as a contributor to enhancing institutional performance. People development is still regarded as HRs responsibility and managers performance is not yet evaluated on their people development efforts. Institutional investment is still largely limited to compliance with legislation and is not driven by a comprehensive HRD plan.
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What is considered the HRD plan is the workplace skills plan (WSP) derived mainly from the wish lists of individuals and not from well considered institutional and business unit needs, and not integrated with the personal development plans (PDPs) of employees. HRD practitioners have a poor understanding of the core business of the sector, nor do they keep pace with developments in their professions. From experience, we know that it is competent and talented people who make a difference in the performance of institutions. We anticipate that this initiative would harness commitment and enable institutional leaders and their human resources (HR) functions to better intensify their innovative talent strategy and management initiatives.

I N T R OD U C T I O N

AN D B AC K GR O U N D

The Legislature Support Programmes (LSP) mandate is to support both the national and provincial legislatures in their efforts to carry out their constitutional obligations. The terms of reference for the Legislative Sector Human Resources Development Strategy Framework (HRDSF), forms part of this process of building the capacity of these institutions to enable them to fulfil their legislative and policy formulation role, executive oversight, constituency work and public education. The constitutional mandate of the legislatures clearly states that their roles are differentiated, but interrelated, i.e. they need to work towards a common objective, while still retaining their own identity. Furthermore, the decision by the sector to adopt a sectoral approach in their operations will make it possible to develop a framework for the sector where each institution can derive value for its own unique needs, while still benefiting from collaborative efforts. The overall purpose of this project is to focus the efforts of HRD initiatives for effectiveness and impact. Improving performance in the workplace and ensuring the development of individuals and teams is central to the work of any HRD function. The aim is to conduct a diagnosis of current HRD practices in order to inform the development of the HRD strategy framework and the skills audit tool for both Parliament and the provincial legislatures. Specific objectives The objectives of this project are the following: Conduct a brief overview of each institutions organisation and strategic intent. Design and develop a sector-wide HRD strategy framework. Simultaneously develop an audit tool, and
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Recommend options of resourcing and enabling the HRDSF.

2.1 APPROACH

TO THE WORK

Our approach to the work was informed by an understanding that defines HRD as a process for developing and unleashing human potential and expertise for the purpose of improving performance. Therefore, HRD is about enhancing both people and organisational performance through a series of planned processes. It is for this reason that we have adopted a holistic and integrated approach to HRD/people learning and development.

As part of achieving the above objectives, we have adopted a phased approach to the work by dividing it into the following phases: Phase 1: Review and learn Field visits to all the institutions to conduct interviews and focus groups Understanding the current reality, strategic intent, the organisation and challenges facing each institution An assessment of current HR practices and HRD strategies Review of documents, literature and benchmarking with international colleagues.

Phase 2: Synthesis and design Sifting through and analysing all data gathered Synthesis and consolidation into emerging themes Development of guidelines for the framework Draft the HRD strategy framework and the audit tool.

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Phase 3: Consultations and feedback Soliciting feedback and further inputs Making a presentation to HR legislature stakeholders and a sample of their (HR) customers. Conducting reviews to enhance buy-in for the product from key leadership role-players, such as the HR Forum, the forum for the Secretaries of the legislatures including the forum for the Speakers

Phase 4: Draft final documents and present to LSP After stakeholder feedback and inputs, draft final HRD strategy and final audit tool, and Present the final HRD strategy framework and audit tool to LSP.

2.2 D ELIVERABLES The deliverables in this report are the following: The model used to guide both diagnosis and design Findings of current HRD practices in the sector Recommendations on possible resourcing options to enable the implementations of the HRDSF The HRD strategy framework and skills audit tool appear as separate documents. 2.3 A
MODEL OF LEARNING AND DEVELOPMENT TO IMPACT WORKPLACE PERFORMANCE

The model, outlined below, encapsulates the key features of a learning and development strategy in any organisation. This model was adapted as a framework for presenting the findings of this project, as it was used to guide diagnostic process. This report is therefore divided into three major components of a learning and development (L&D) strategy, leading to improved performance outcomes in an organisation. (This model is adapted from The Training and Development Audit by Rosemary Harrison). The model is depicted below and the four components are: Drivers leadership components which drive and form the platform for L&D Vehicles components used as delivery strategies for L&D Activities various activities under whole-umbrella L&D is delivered Outcomes of improved performance and increased competence

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T H E L & D OPERAT I N G M ODEL

DRIVERS

VEHICLES

ACTIVITY

OUTCOMES

Institutional leadership

Performance management process

L&D Planning to enhance performance

Institutional direction of L&D

L&D function

L&D activity to enhance performance

Impact on performance

Adapted from: Rosemary Harrison

Evaluation and transfer of learning

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DRIVERS

3.1 I NSTITUTIONAL LEADERSHIP The vision, mission and goals of each institution are important in building a sense of shared purpose, and guiding common commitment. For this purpose, these set the operational framework within which HRD activity takes place. They therefore need to be well communicated and shared widely in the organisation for all to internalise. The quality of leadership determines the success of the institution, drives culture change and sets the climate for HRD activity. Employees in turn, develop trust and confidence in the organisation and its leadership, leading to increased commitment to deliver the expected services. Vision, mission, values and goals o All institutions have a vision, mission and values, which are publicly displayed, though not well internalised by employees. o The culture of strategic planning is well entrenched at senior management level but not well communicated to the rest of the organisation. o However, there is no vision for HR or HRD and whatever training takes places is initiated by employees on what should be a needs analysis.

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o The annual training report (ATR) which is compiled, is for Skills Development Act (SDA) purpose reporting. No meaningful feedback is done to the organisation nor is there any linkage with institutional goals. o A performance management system (PMS) is only used for bonus purposes, and although there is an element of development addressed, it does not mean anything o Institutional objectives are set without any consideration of their internal capacity, needs and requirements. o Many organisational vision statements are too cumbersome, seemingly incoherent and not understood by the majority of employees, nor internalised by the senior leadership. o There is very little of a visible link between individual jobs and organisational vision and objectives, which anyone could articulate easily.

Leadership and strategic direction o There is a pervasive us-and-them culture in institutions emanating from a perception of skewed exposure to training favouring managers. o Managers show lack of visible commitment and understanding of HRD as a contributor to performance improvement. o Many HRD functions do not determine their training budget. Where the budget is available, it is based on the SDA-determined 1% of the payroll. However, in reality the actual figure is far less than stipulated. o Managers have very little influence on what training their subordinates go to. o Most of the time training undertaken is not directly linked to individual functions within the organisation. o There are no proper controls in place. Allegations were even made that training occurs on a favouritism basis. (If you are not a buddy to the HRD person or the any senior manager, then no training will be offered to you). o Generally, HRD is not looked upon as adding any value, and both managers and employees have very little trust and/or confidence in the HRD system.

3.2 I NSTITUTIONAL DIRECTION

OF

HRD

The vision and values of HRD needs to reflect the institutions belief that investing in the development of the people is central to improving the
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performance of the institution. The role that HRD plays will also be influenced by where it is positioned in the structure and how comprehensive its strategy and plans are. HRD vision and values o There is no vision for the HRD function which drives training and development processes and activities. o Training is done to spend the budget allocated, and no real direct return on investment (ROI) and return on expectations (ROE) are measured. o No visible mechanisms exist indicating that HRD is treated as a significant value-adding process by top management, towards achieving performance targets. Thus, there is a lack of linkage between training interventions and strategic objectives. o There is a lack of evidence of an understanding and application of the broader concept of learning. The only approach utilised is training courses, and no broader provision of learning opportunities is demonstrated. o HRD is viewed as something to be tolerated, as managers often interrupt or call people out of training programmes, and do not demonstrate that they value training as strategic and a contributor to performance improvement.

Strategic HRD role, goals and plan o Some mechanisms (post training reports, annual WSPs, a performance management system, a training needs analysis) are in place, but are used for reporting and compliance purposes (for Auditor-General reporting and compliance with the Skills Development Act). o These mechanisms which are in place are meaningless, as managers and HRD functionaries do not utilise them for alignment, transfer of learning and skills, quality assurance, monitoring and evaluation (M&E), and knowledge management. o The HRD role is not strategic by action, location and influence. Structurally it falls within the ambit of the HR unit which is under the corporate services directorate. HRD practitioners are at lower levels to be able to influence strategy and senior management. Its activities are ad hoc, reactive and mainly externally driven. o HRD is rarely discussed by management as a strategic issue. It is only mentioned for reporting and compliance requirements. o Limited capacity and capability play an important role in the disfunctionality of this role. HRD practitioners seriously lack critical skills and knowledge for effective functioning.
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o Annual HRD plans seems to be done only for SDA reporting purposes as most training that takes places is initiated by employees and not guided by the strategic objectives of the institution and the business units o There is a lack of clearly defined HRD goals that influence the development of WSP. The process of compiling the WSP is the major stumbling block for integrating these with institutional objectives. o HR policies exist, though not within a comprehensive framework for all HRD activities. There is also inconsistency of application. o There is an annual training needs assessment (TNA) exercise. However, this exercise is not determined against clearly set organisational goals and performance targets. It is generally used by employees to register their wishes for further training, and not even guided by personal development plans emanating from an informed process of managing performance. HRD system o HRD is not seen by top management as a primary responsibility of all managers, but is seen as the responsibility of HR and the HRD function. Job profiles of managers do not have people development as a key performance area (KPA); thus very few managers take a keen interest in the development of their people. o Managers are generally perceived to be only concerned about and prioritise their own development. o Not all institutions have managers job profiles explicitly identifying people development as a responsibility. Where these exist, managers are not measured against such targets. o There is no system in place that provides for regular appraisals of managers to ensure effective performance of their HRD responsibilities, even where it is part of their KPAs

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Investment in HRD and management of resources o No HRD budgeting that is based on identified training needs is conducted. The budget is mainly set in accordance with the SDA stipulation of 1% of the payroll. o An annual HRD budget for the institutions is generally centralised within the HR function and is neither unit specific, nor needs sensitive. o Current practice indicates that training is viewed as a cost and not an investment for improving organisational performance. This is evidenced by the overall budget figure and how it is managed (sometimes less than 1% of the payroll). o Legislatures exercise some degree of flexibility in how the overall budget is utilised and allocated. However, this flexibility is not evident in relation to training interventions. Budgetary constraint is always cited as the reason for not providing training opportunities to employees. The training budget is normally the first to be cut during cost reduction exercises. o There is no evidence of management measuring the value adding of HRD, i.e. whether the investment is yielding any fruits ROI; and whether their expectations are being met ROE. o The majority of legislatures do not have a comprehensive and effective induction programme for either the institution or its functions. Thus even the initial link with training and development is broken. This is further evidence that even HRD staff are not effectively inducted into their function.

VEHICLES
MANAGEMENT PROCESS

4.1 P ERFORMANCE

The nature of the relationship between performance management and HRD has to indicate that there is shared responsibility and joint accountability for results, as well as joint involvement in agreeing on what needs to be done and how. Appraisal processes must lead to identification of HRD needs and PDPs. It is important to assess how these processes are used, and whether they are aimed at development, performance improvement or only for corrective purposes. Furthermore, where performance management systems exist, what principles and values underpin these processes? o Most legislatures have a PMS. However, it is neither well communicated nor understood as a process for managing performance. Generally the principles, of keeping it simple, making it routine and personal, connecting it with key people decisions, training managers in the
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process and ensuring that it is widely understood have generally not been adhered to. The role of training and development within the PMS is not clearly defined, nor understood by either the line managers or their teams, including HRD practitioners themselves. PMS is used as a tool for reward (bonus purposes) as opposed to being based on a philosophy of shared responsibility in the management and development of performance and joint accountably for results It is not uncommon, to find managers conducting all the years reviews within one sitting. Managers truly miss the opportunity for continuous performance improvement and competence building. PMS is consequently enjoying very little credibility in institutions as a genuine contributor to performance improvement and a tool for building the skills and knowledge of the workforce.

Continuous improvement and recognition of performance o The PMS provides for the regular appraisals of employees, but there is a tendency to assess employees according to job descriptions and not on set performance targets. The accuracy of training needs and PDPs identified in that process is therefore questionable. o The PDPs that come out of appraisal reports are poorly monitored. Some peoples PDPs remain the same year after year and others never even attend any training, irrespective of the nature of their PDPs.

4.2 T HE HRD

FUNCTION ITSELF

Assessing and reporting on how the function is positioned and organised, including processes within that guide how its activities are undertaken. The capacity and capability of HRD staff affect their effectiveness and the degree of influence the function can exercise in the institution. The HRD strategy o The HRD strategy is lacking in all legislatures. The plans that exist focus mainly on training activities. o In some legislatures the HRD function is a separate unit within the structure while in others the function is performed within the HR unit. However, there are those who see the HRD function as being embodied in the skills development facilitator (SDF) alone. o Most SDFs seem to have an idea of what needs to happen but currently do not play any meaningful HRD role except for arranging training offered by external providers. o There is generally a lack of understanding of the core business and challenges facing the legislatures. This has resulted in the function
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operating in a reactive and inflexible way, and sometimes in isolation. o The HR and HRD functions enjoy very little credibility in the institutions due to strongly held perceptions of a lack of competence and ability to make a meaningful impact. o The lack of effective training also affects the HR and HRD functions themselves. These practitioners, have not kept pace with developments in their profession

Strategic quality of HRD processes o There is a culture of inter-legislature exchanges and functional forum meetings. These are considered to provide benchmarking opportunities while in effect they are a forum for sharing and comparing practices, a useful exercise in itself. These forums have been used for exposure purposes as well. o Currently there is no capacity and capability to conduct real benchmarking exercises. There is also no monitoring of trends and developments in the profession and/or sector.

ACTIV ITY
PLANNING TO ENHANCE PERFORMANCE

5.1 HRD

HRD practitioners require knowledge and understanding of the learning cycle, and are able to differentiate between learning, training and development. Furthermore, they require knowledge and understanding of adult learning principles, and the ability to design and facilitate learning. They need to be sensitive to the nuances and challenges of these concepts, and take them into consideration when planning. An ability to influence and work collaboratively with the line managers is central to success.

Identifying, agreeing and prioritising needs o There is a standard form that the HRD function generally sends out for completion annually. This exercise is usually completed at the beginning of the year. Managers generally distribute the forms to their staff. Very few make an effort to sit together with their staff to complete what could be called a wish list. o During appraisals, training needs are identified and recorded (PDPs). In the majority of institutions PDPs are not linked back to that wish list. The HRD function does not conduct an analytic
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consolidation of the PDPs and what emerged from the TNA, nor is any feedback given to either managers or employees. Whatever is consolidated, maybe within the WSP, is neither ratified, nor fed back to managers in their business units. o In our interviews, we did not get feedback or see any evidence of the link and integration with the WSP. HRD planning o The WSP is driven by the HRD function, mainly the SDF, and it is institutionally oriented and not unit-level specific. There is no evidence of analytic consolidation of needs according to teams, functions or levels in the institution. It is just a list of training required for the entire institution data with no information or insights. o There is no effective integration of plans between individuals, teams and the business unit. Therefore, all training that is done becomes individually focused. o Training implementation is generally ad hoc, reactive and externally driven, with no evidence of prioritisation and evaluation from year to year to monitor progress. o Legislatures do not have a process where managers and HRD staff agree on outcomes to be achieved and how to monitor and evaluate these plans. o HRD plans are poorly integrated with other HR processes, policies and practice. o There is a serious lack of capacity and capability within the HRD functions in the sector: - A lack of ability to develop a budget for training (staff, time, finances, other physical resources, etc.) - A lack of learning design, facilitation, monitoring and evaluation ability - A lack of partnering ability with line management to plan effectively for learning and development. o The poor understanding of the core business of the legislature by the HR/HRD function, has contributed to the ad hoc, reactive, and in some instances irrelevant, implementation of training.

5.2 HRD ACTIVITY TO ENHANCE

PERFORMANCE

The use the concept learning instead of training, is to indicate that there are many formal and informal ways in which learning can be organised to help people develop and improve their performance. The scope or coverage of learning experiences needs to support employees in their jobs, roles or any work changes they might be challenged to undertake. To achieve this requires
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some knowledge and understanding of learning theory, including how adults learn (adult-learning principles). Learning design o T&D activities within the sector are externally driven. The current culture is that people respond to marketed courses that seem to have some relevance to their jobs. Learning experiences are not a result of well-planned and responsive interventions by the HRD function in collaboration with line management. o HRD is not involved in the design, delivery and evaluation of these externally driven training activities, due to their lack of ability. o Hardly any benchmarking is done in the sector to addresses design and delivery matters. o It is important that HRD practitioners keep up to date and familiarise themselves with developments in the learning and development field this field is changing fast, and is exciting. HRD coverage o Training and development consists mostly of sending people to external courses. o There is limited interaction between the legislatures through the forums and inter legislature exchanges. Only a few functions have benefited from the inter-legislature exchanges in supporting employees in their roles. o Seminars and conferences have also been used for exposure purposes. o These limited interventions have however not been effectively coordinated to derive maximum benefit for people development and improving workplace performance. o Where internal opportunities (e.g. coaching, delegating, project leadership. etc.), have been used, they have either been very few or have been used for solving problems that should not be solved by training, e.g., shifting an employee where there is conflict with the manager. o HRD practitioners are not able to support managers to differentiate between problems that can be solved by training skills or knowledge needs; and problems that cannot be solved by training attitudinal issues.

5.3 E VALUATION AND

TRANSFER OF LEARNING

The day-to-day behaviour of managers, HR and HRD practices, peer group interactions and messages from top leadership need to foster a learning
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culture in the institution. The nature and quality of conversations need to engender a belief that learning is a top priority and is seen as a contributor to improving service delivery and achieving the mandate. Moreover, monitoring and evaluation are essential to the success of HRD strategy, plans and experiences. Managers play a central role in ensuring that the institution derives benefits from HRD intervention by enabling the transfer of learning back into the workplace. But they require support and guidance from HRD practitioners. Workplace culture o Managers do not see training as important to improving performance of both the individual and the organisation. o Some managers see training as a disruption to their work and do not encourage employees to take responsibility for their own development and empowerment. o Many managers do not ensure the transfer of learning back to the job, by encouraging employees to experiment on their newly acquires knowledge and skill, or creating opportunities for the teams to share what they have learnt. o Because managers do not see HRD as part of their own core function, but as the responsibility of HRD function, they miss many opportunities for developing their people at the heart of the business, as well as of improving performance. Review, evaluation and increase of learning o There are no regular or periodic and timely reviews of HRD outcomes across the institutions. o Hardly any collaborative review and monitoring of learning experiences and events by stakeholders is done. There is general a lack of monitoring and evaluation of training plans, processes, activities and budgets. Problems and concerns that arise are rarely attended to and resolved. o Knowledge management functions within the institution re not utilised for sharing lessons learnt. o There is no evidence of any standard practice where managers and their staff discuss the purpose and intended outcomes before any L&D initiatives, and then agree on achieved outcomes and how to implement them. o There is no evidence of any processes used to assess service providers and the quality of their offerings seeing that the sector is fully dependent on external training provision. Without the ability to

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design and deliver training, HRD practitioners cannot fully evaluate the quality of provision.

O U T C OM E S
ON PERFORMANCE IN THE WORKPLACE

6.1 I MPACT

Ensuring good performance of individuals and teams is central to the work of any HRD function. To improve performance in the workplace and increase the competences needed to meet future challenges, HRD must be business led and strategic. o HRD function and management behaviour does not treat T&D as a contributor to employee and organisational performance improvement. As a result, T&D is not perceived as having any impact. Generally, people use T&D as a means to enhance their CVs and a stepping stone to greener pastures. o Legislatures do not have a system or culture of monitoring and evaluating T&D and therefore miss the opportunity of assessing its impact.

R E C OM M E N D AT I O N ,

R E S OU R C I N G AN D E N AB L I N G OP T I ON S

Leadership in the legislative sector can no longer afford to just pay lip service to the slogan, over-used by leaders in many organisations, that says our people are our biggest asset. Why? Because people become the source of excellent service provision, competitive advantage, and an asset that has the potential to appreciate depending on how well this asset is led and managed. The HRD functions in the sector will certainly be judged by how they position themselves as the key drivers. To achieve this, senior management needs to ensure access and effective use of available resources to enable effective design and implementation of the HRD strategy. The following factors are recommended as enablers for resourcing implementation. Skills levy make optimal use of the levy. Strengthening effectiveness of training committee: - To conduct quality assurance of the HRD planning and implementation processes - Play an auditing and oversight role - The composition of the committee to be inclusive with a focus on capacity to assume the above responsibilities effectively. Increase capacity and capability of the HRD function: - Competent people who u
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Strategically locate the function or head of the function to ensure strategic contribution. - Re-engineer the role of the SDF to ensure understanding of its strategic contribution. - HRD practitioners to play the role of business partner with line managers. HRD practitioners to do the basics right in their role to earn the credibility they so much deserve by: - Understanding legislature core business - Being politically savvy, with high level communication skills - Developing strategic thinking and being proactive. Raising awareness of senior management: - Learning and development is their responsibility. - They are the drivers of building a learning and performing culture. Secure sector and other partner collaboration such as: - South African Management Development Institute (SAMDI) to enable some alignment with public sector where necessary - Institutions of higher learning, as others have already done - Private sector collaboration for mutual exposure purposes. Quality assurance: - Quality and relevance of learning outcomes and materials - Quality of service providers and sharing information across the sector - Ensuring consequences for non performing service providers. EULSP support: - Using of its position, role and even financial resources as leverage for ensuring quality and encouraging collaboration - Monitoring and evaluation setting and enforcing criteria - Conducting confirmative evaluation periodically to assist with the leveraging role - Could insist for a holistic HRD strategy to be in place, by setting time-frame and using it as criteria for further support and interaction. Explore exchange programmes and learning opportunities: - With reputable private corporations for mutual benefit.

CONCLUSION

We believes that this report and HRD strategic framework, including the skills audit tool, is an initiative that will support the legislative sector in harnessing the commitment of its people, while enabling institutional leaders and their human resources functions to better intensify their innovative talent strategy and management initiatives. We hope this will enable the sector to win the war for talent and keep their employees engaged.
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