PUBLIC
SECTOR
Public Sector, Vol. 29, (3) 2006
Articles
Developing leadership in the New Zealand public service
New Zealand involvement in local government development in the Solomon Islands
Meeting the challenge: Elements in reducing and managing risk in social work practice
News
Annual prizes awarded at Victoria University’s School of Government for 2006
- Volume 28 Number 2 2005
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Publisher
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Email: [email protected]
PUBLIC
The whole of the literary matter of Public Sector is copyright ©2006 – IPANZ
SECTOR
Editor
Allen Petrey
- 2006
- Volume 29 Number 3
- ISSN 0110-5191
Layout
Hettie Barnard
Editorial Office
c/- The Publisher as above
Contents
Articles
Editorial Committee
Tom Berthold Ralph Chapman Chris Eichbaum Geoff Lewis
Developing leadership in the New Zealand public service
by Murray Short ............... ..................................................................................................... 2
Allen Petrey Gaylia Powell Michael Reid
New Zealand involvement in local government development in the Solomon Islands
- by Mark Dacombe ....................................................................................................................8
- Carol Stigley
Advertising
Meeting the challenge: Elements in reducing and managing risk in social work practice
by Rob Laking ....................................................................................................................... 15
Jay Matthes Phone:+64 4 463 6940 Fax: +64 4 463 6939
Email: [email protected]
Scope
News
IPANZ is committed to promoting informed debate on issues already significant in the way New Zealanders govern themselves, or which are emerging as issues calling for decisions on what sorts of laws and management New Zealanders are prepared to accept.
Annual prizes awarded at Victoria University’s School of
Government for 2006 ........................................................................................................18
Book Review
Roderick Deane: His Life and Times – Michael Bassett and Judith Bassett
by Judy Whitcombe ..................................................................................................................20
IPANZ arranges seminars and workshops for people to debate these issues. Much of this debate is reflected in Public Sector.
Information for Authors
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Obituary
www.ipanz.org.nz/pub.html
R.F. (Ray) McCullagh BE, FIPENZ, MIEE 1925–2006 ......................................22
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- Public Sector Volume 29 Number 3 2006
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Article
Developing leadership in the New Zealand public service
Murray Short
Leadership Development Centre, Wellington
Personal Attributes are seen as the underlying indicators of
Introduction
leadership potential and they tend to be more innate and difficult to develop. These include agility of thinking, integrity, ability to connect with people, energy and drive, and personal strength and courage. As these are difficult to develop and indicative of potential, the Centre uses them for assessment purposes to, for example, determine who enters the Executive Leadership Programme.
The Leadership Development Centre (the Centre) considers that the quality of leadership is critical to the success of organisations. Leadership is essentially about aligning people and action with the purpose and direction of an organisation and creating energy through motivation and inspiration.
The Centre was established to develop leadership capability in the public service and it has been in operation for three years. The Centre is a Trust run by a Board of Chief Executives elected by the 40 public service and other state agency members. We offer a range of services to senior managers and the agencies themselves.
The Leadership Abilities are strategy forming, culture shaping, senior official nous, managing people, business acumen, stakeholder management, cultural sensitivity, and responsiveness to Mäori. These abilities are the focus of development for the Centre’s programmes and services.
The Centre’s funding comes from agency subscriptions, fees for services and events, and government funding of part of the cost of one service, the Executive Leadership Programme1.
Pathways and Experiences are the variety of life and career experiences that people bring to the leadership role. The Profile indicates that there is value in breadth of experience in terms of both varied career paths and other life experience. Experiential learning is also central to the development focus of the Centre’s programmes.
The Centre has seen a substantial increase in the use of its services and as a consequence has expanded its resources to match the demand. The Centre now has 16 staff, up from a
- base of six when it was established.
- The Profile is therefore an inclusive model of leadership in the
sense that it includes the range of management skills and competencies rather than focusing exclusively on leadership aspects. This informs the approach taken by the Centre and consequently the term leadership is used throughout this paper in the inclusive sense. The Centre considers that comparing and contrasting the two is not helpful, particularly in terms of development.
Over the three years of operation, the Centre has grown in its understanding of the nature and current state of leadership in the public service, its importance for organisational effectiveness, and the most effective ways of building leadership capability. This paper sets out some of those insights.
We prefer the approach implicit in Mintzberg’s seminal ‘The Nature of Managerial Work’, which includes key leadership behaviours as part of the management role conferred by hierarchical status.
Leadership in the New Zealand public service
Management is the role which creates suitable conditions for organisational and individual performance. It develops and communicates purpose, strategies and plans; sets up operating systems and conditions; obtains and deploys resources; and operates internal and external accountabilities.
The Centre develops leadership capability within the context of the Senior Leadership and Management Development Strategy, which is one stream of the development goals for the state services as expressed by the State Services Commission (the SSC)2. As a key part of this Strategy, the SSC developed a standard for leadership in the public service, the Leadership Capability Profile (SSC, 2003). The Profile has three main aspects; Personal Attributes, Leadership Abilities, and Pathways and Experiences. The Profile is a type of competency model and can be readily aligned with such models, although the attributes and abilities are described at a higher level.
Good managers will have a number of leadership qualities so that, in carrying out their role, they gain alignment and energy from others
(Leadership Development Centre, 2006).
In the Centre’s view therefore, leadership is part of good management. It is the set of behaviours good managers use to
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inspire active followership by ensuring that people are aligned with the organisation’s purpose and direction and energised to fulfil them. The outcome of such management and leadership is the achievement of results through others; results that exceed what could otherwise be achieved through the contribution of individuals.
When working with managers on their career planning, the framework is used to indicate the development emphases (based on the Leadership Capability Profile) that flow from their particular career aspirations. So, for example, if a manager aspires to lead a large and complex organisation (Organisational leadership) then the greatest emphasis needs to be on the abilities associated with ‘culture shaping’, ‘managing people’, and ‘business acumen’. In contrast, if they aspire to a senior functional leadership role such as in financial management then the technical abilities remain an important emphasis.
One aspect of leadership that the Profile does not incorporate is the concept developed by Elliott Jacques (Jacques, 1998) of different tasks and competencies at different levels of management. This concept is central to the Australian equivalent of the Profile, the Integrated Leadership System (APSC, 2002) and the Centre considers it is particularly important in terms of leadership development.
Organisational leaders cannot maintain the technical leadership role across the increasingly diverse range of functions they become responsible for as they move into more senior positions. Furthermore, all leaders need to be cautious about exercising a direct role even in the area of their own technical expertise because this can have the effect of disempowering those in the organisation who have that function, as illustrated in the following passage from a recent article in Harvard
Management Update.
The concept is that at each level of management the tasks are different and the timespan over which discretion is exercised increases. This requires different sets of knowledge and skill as leaders gain experience at the various levels. So for example, first level management is predominantly about managing the performance of staff in a 12-month cycle. The skills required include setting expectations, coaching and mentoring, giving feedback, and joint problem solving. In contrast, at senior levels there is a 5–10 year cycle of strategy development, implementation through organisational systems, and increasing focus on external relationship management.
Phelps points to a newly appointed manager in a construction company who, after being given the results of a 360-degree review, was shocked to learn that her direct reports found her demanding and unwilling to listen to their ideas. An exceptionally brilliant and talented professional, usually several steps ahead of anyone else she worked with, the woman was accustomed to coming up with the best ideas herself and then making them happen on her own. So, she simply continued that behaviour as a manager, not realizing she was stepping on team members’ toes – and making them feel incompetent
(Field, 2006).
One of the most critical factors in this process is the transition from ‘doing’ to ‘achieving through others’. It is the Centre’s view that leadership is, in essence, about creating the conditions that enable others to achieve – the larger and more complex the organisational context, the more actual results are achieved through others. This will vary with the nature and size of the organisation and the Centre has developed the following framework to illustrate this.
This is reinforced in another article that describes how a new Chief Executive Officer must learn to manage organisational
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context and move away from the focus on daily operations, which is described as a ‘jarring transition’. The article suggests that for the successful operation of the organisation, the leader ‘…needs to learn how to act in indirect ways – setting and communicating strategy, putting sound processes in place, selecting and mentoring key people – to create the conditions that will help others make the right choices.’ (Porter et al, 2002) between objectives, vaguer personal accountability, a need for more integrative and collaborative behaviour, and higher concern with risk avoidance that may affect innovation and entrepreneurship.
The importance of good leadership
The recently published Career Progression and Development Survey, 2005 (SSC, 2005) highlights that effective management is amongst the three most important factors that motivate public servants. Of the 5235 public servants surveyed, 84 per cent rated effective management as ‘highly important’. When asked what management functions were important to them they identified effective communication, being allowed freedom to use their initiative, and being encouraged to have input into decisions that affected them.
If the leader retains direct involvement in the ‘doing’ then it is also likely that the real leadership role will be neglected. A significant portion of leaders’ time needs to be devoted to developing their team through coaching, mentoring, providing feedback ,and generally building capability. Professor Malcolm Higgs3, in a conversation at a recent Centre seminar, commented that in recent research at Henley Management College, it was noted that effective managers spend up to 60 per cent of their time developing others (using development in its broadest sense).
Because of demographic and other trends (Khawaja, 2006)
that are resulting in increasing skill shortages and intensified competition for staff, the ability of organisations to recruit and retain staff is becoming increasingly important. Organisations that are attractive to employees will succeed in recruiting and retaining talent, and leaders are ultimately responsible for creating the conditions that attract. It is clear therefore that the quality of leadership is going to be increasingly critical to organisational capability.
Central to the organisation are its people and a critical aspect of leadership is about building the ‘social capital’ which has been described as the softer side of the organisation, ‘…the informal networks, accumulated know-how, mutual understandings, and trust that make organisations effective’ (MacMillan, 2006). Social capital is seen as making organisations more effective because:
•
Conflicts arise less frequently because people trust one another, have learned to work together, and share common goals. When conflict does occur, it doesn’t fester. People get it on the table and resolve it, and they get back to work.
Leadership is also important for maintaining organisational productivity and effectiveness. The Centre considers that the two key effects of good leadership are ‘…that people are aligned to purposes or goals espoused by the leader and are energised to pursue them’ (Leadership Development Centre, 2006). Alignment involves linking the people and their roles and activities to the purpose and direction of the organisation. Energising is achieved through motivating and inspiring people and has been described as helping to tap into the discretionary effort that people are capable of when highly motivated to do so. This is particularly important with knowledge workers who have more discretion than those in more ‘production line’ environments (Patterson et al, 1996).
•
Operational issues can be handled at lower levels because manage- ment can trust employees to do the right things.
• •
Problem solving is faster because of trust and common goals. The company enjoys leadership continuity and low turnover thanks to long-term employment and a policy of promoting from within.
• •
People know how and where to get help when they need it, and don’t feel obliged to ask for permission to act when they see things that need fixing.
Alignment to common purpose creates energy on its own, but good leaders galvanise above and beyond this. Some leaders generate energy by sheer force of personality, others by compelling communication of purpose, caring for people and generating a sense of belonging, or building energetic teams, and there are many combinations of these and other behaviours. The Centre considers that there is a common core of good leadership behaviours, but that beyond this there are situational and personal differences which mean that a wide range of different and even contrasting behaviours can still constitute effective leadership.
Employees enjoy job security. Consequently, there’s less ‘looking out for No. 1’ and much greater attention to the common good.
(MacMillan, 2006)
Leadership then, in the public service as elsewhere, is in essence about achieving through others. This requires a high degree of what has been described as ‘emotional intelligence’ – the mix of self awareness and awareness of others that provides the essential ability to connect with people, motivate and inspire (Cherniss, 2001).
Perhaps for this reason, much about the nature of effective leadership is contested (Grint, 2005). However, the Centre believes that good leadership achieves results that are more than the sum of individual contributions, and forges the pursuit of goals stretched above and beyond the ordinary. This is why there is widespread agreement that good leadership is critically important to the successful functioning of organisations.
There are differences between the public and private sectors which affect how leadership operates. This paper does not address this matter in any detail but the most important differences are: the political context and the challenges it imposes on leadership; pursuit of public good; crossorganisation, cross-sector and all of government interdependencies; and public accountability. The implications of these differences include greater ambiguity and conflict
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••
Effective communication Managerial expertise.
The state of leadership
There is evidence of considerable room for improvement in the quality of leadership and management in the public service. The Career Progression and Development Survey is one source of such evidence. As indicated above, a high proportion of those surveyed rated effective management as highly important; but only 27 per cent rated their organisation as good at providing it. When asked how they rated their experience of management functions that were important to them, a negative picture emerged, as highlighted in the following conclusion:
These conclusions are similar to those reached by the SSC in an analysis of chief executive appointments. That analysis led the then State Services Commissioner, in a speech for Ministry of Social Development Senior Managers in 2003, to conclude that, ‘…what was emerging was a Public Service leadership that was brainy, understood their way around Wellington (the political context), could do the stakeholder relationship thing (although mainly in a Wellington context) and were enthusiastic and committed to the job. But they were poorly equipped to be managers of their organisations’ (Wintringham, 2003).
In rating their managers against a number of management support factors, respondents did not give high ratings. Of the nine factors surveyed, only five were rated ‘Good’ by more than 40 per cent of public servants.
It has also been the experience of the Centre over the past three years that senior managers struggle to commit time to their own development. There is a relatively high rate of absence on the day, of those registered to attend our seminars and clinics. Attendance at Action Learning Group4 sessions, which are universally regarded by participants as highly valuable, still runs at about 60 per cent. The strong impression the Centre has gained is that there is a ‘culture of busyness’ in which the critical role of a leader as learner and developer is given relatively low priority.
Qualitative information showed that some respondents felt that a lack of management support had made it difficult for them to develop their careers. Many staff commented on poor management in general. A few public servants felt their managers did not fully understand or recognise their work and ideas. Some public servants perceived that managers were unsupportive or uninterested in advancing their careers, sometimes because managers were too busy with their own work. Other staff indicated a lack of positive feedback or opportunities to develop. Not having performance reviews or regular feedback on performance was part of this. A small number of public servants reported they had experienced bullying behaviour by their manager (SSC, 2006, p. 50).
This is particularly important because of the effect of what they are modelling. If they are not spending time and effort on development then it is likely that neither will their teams. Without ongoing development it is also likely that leaders will need to spend time in more detailed involvement, monitoring and quality control of the work of their team than would otherwise be the case. This may then limit the time they can spend on development and become a vicious cycle that is difficult to break from.
Other research reinforces these conclusions and also indicates that the problem is not confined to the public service. A Hudson Report that highlighted the importance of people management describes research across 17 sectors in New Zealand, including Government, that revealed only 17.3 per cent of the 1500 employers surveyed rated people management as the most effective aspect of their leaders (Hudson, 2005, p. 7). A recent article in Management identifies three other research studies that indicate management in New Zealand is performing below par, and it quotes Doug Matheson as saying: ‘…many of New Zealand’s managers are not achieving the potential of the organisations they lead’ (Birchfield, 2006).
The conclusion from this analysis is that public service leaders have some of the attributes that indicate leadership potential. They are well developed in some specific areas, but in the aspects of leadership and management that ensure effective achievement through others they are not strong.