REPORT RAPPORT

DATE:	17 February 2012
TO/DEST:	Executive Director, Ottawa Police Services Board
FROM/EXP:	Chief of Police, Ottawa Police Service
SUBJECT/OBJET:	INTRODUCTION OF CIVILIAN CAREER INITIATIVE PROGRAM

RECOMMENDATION

That the Ottawa Police Services Board receive this report for information.

BACKGROUND

The Civilian Career Initiative (CCI) has been launched to significantly improve the career prospects of civilian employees within the Ottawa Police Service.  The goal of the initiative is to create a range of human resource programs that will provide OPS civilians with the opportunity to have challenging, fulfilling, robust and long careers with the police service.  As an organization with almost 90% of its budget in the area of compensation, the OPS must pay close attention the needs of its employees in order to fulfil its overall mandate of serving the community.

A new civilian job competition process is the first program to be launched under the CCI umbrella.  It was initiated as a result of a Letter of Understanding (LOU) entered into by the Police Services Board and the Ottawa Police Association as part of the 2008-2010 Collective Agreement for Civilian Personnel.   The agreement required that Human Resources and the Association form a joint committee to establish recommendations for improvements to the competition process and promotional procedures for civilian members of the Service. (A copy of the LOU is attached as Annex A). 

The civilian job competition is a good starting place for CCI.  Selecting the right candidate for a position is key to the organization’s success.  This opportunity arrived at a very strategic time for OPS.  The graphic below summarizes the drivers behind the timing and need for a new competition process.

• A number of grievances pointed to the need for a clear and transparent competition process which would promote fairness and accountability.
• The number of opportunities for civilian advancement was increasing in the organization as a result of retirements, temporary project assignments and backfilling opportunities resulting from maternity and parental leaves. Putting the new strong and transparent process in place would ensure that these positions are filled with the right candidate at the right time.
• As the new process matures, employees will have another tool to help advance their career at OPS.  It is a foundation upon which other processes such as career planning and development can be built. Investing in civilian career programs sends a strong signal to the civilian members about the value that they contribute to the organization. It is an important step toward being Employer of Choice for all in policing.

This report is intended to provide an overview for the Board on how the Civilian Career Initiative was developed and report on the progress to date.

DISCUSSION

Project Structure

A project was struck in April 2009 to develop and implement the new competition process.  A Joint Committee composed of representatives from Human Resources and the Ottawa Police Association played an oversight role.  It was supported by a project team, consisting of a Project Manager and Project Specialist. The role of the Joint Committee was to review the existing processes; conduct research surrounding best practices in this area of human resourcing; and present their findings and draft recommendations for approval by the Chief.  Approved recommendations would result in the creation of a new Civilian Competition Process.  The graphic below sets out the project governance:

Framework and Guiding Principles

The project was approached within the framework that the civilian competition process should be considered the first stage of a wholly integrated Civilian Career Initiative that includes learning and development, career development, succession planning and talent management. All of these would be integrated with the existing Performance Review Process. 

The Joint Committee established guiding principles to drive and support its work.  These principles would be referred to by the Project Team and Joint Committee as they developed their recommendations for the new competition process.  The graphic below sets them out and they include:

• Consistency
• Flexibility
• Fairness
• Transparency
• Streamlined
• Supportive environment.

Research Phase

Internal research was conducted to assist the Project Team in understanding the challenges that candidates, managers and practitioners faced with the existing competition process and pointed to areas for improvement.

The internal research included:

• Interviews were conducted with seventeen hiring managers who represented the majority of the sections and civilian positions in the organization.  The hiring managers included both Sworn and Civilian members.  The interview questions focused on the six phases of the competition process: Pre-Posting, Posting, Screening, Interview, Selection, Post-Selection.  (A summary of the comments are attached as Annex B.)

• Interviews were also conducted with the Labour Relations Team and Employee Services Team to gather specifics on past grievances, suggestions for changes and to identify specific parts of the process that required work from the team’s perspective.

• Information was gathered from the Civilian Professional Development Satisfaction Survey that had been conducted in 2009.

• Comments were received through a mailbox that was created for the project.  Many civilian employees provided their feedback from past competition experiences and also provided suggestions for change.   (See Annex B for a summary of the highlights and common feedback that was obtained from the Hiring Managers, employees and Labour Relations Team that lead to the five (5) recommendations.)

External research was also conducted.  The Project Team reviewed the human resource practices, processes, policies and collective agreement provisions, where applicable, and lessons learned of some of the ‘Big Twelve’ Police Agencies in Ontario such as Durham, Niagara, London and Peel. Other unionized employers such as City of Ottawa, Canada Post, Algonquin College, Ottawa Hospital, and Carleton University were surveyed as well.

All information gathered was synthesized and summarized into five (5) high level recommendations that would form the project foundation.  The recommendations were presented and approved on June 25, 2009 by Chief White and Steve Boucher, OPA President.  At that time approval was also given to continue with the project and implement the recommendations for a new Civilian Competition Process.

Civilian Competition Process Recommendations

1.	Design the detailed process steps for the civilian competition process, including standards and guidelines for all phases of the process.
2.	Establish clear roles and responsibilities for all players in the competition process.  (Employees, hiring managers, interview boards, Human Resources staff and Executives).
3.	Develop and implement a comprehensive training program for employees, hiring managers and interview board members on the new civilian competition process, including all tools and processes.
4.	Optimize the automation of the civilian competition process in order to reduce process timelines, ensure data integrity, and improve efficiency, communications and accountabilities.
5.	Improve HR’s effectiveness in advising and supporting hiring managers and employees in the civilian competition process.  Assess need for training and/or increased complement.

Communication

A timely communication program was needed for the success of this project.  As the project progressed, quarterly communiqués were issued to all employees sharing what had been completed and what was being worked on in the next quarter.  As recommendations for changes to the competition process were approved by the Chief, they were communicated and implemented.  Employees responded positively to the communication effort.

Other forms of communication included:

• A ‘Show Me’ newspaper was created and distributed throughout the organization.  It spoke to the work that had been completed and what changes were taking place.  

• A Civilian Competition Process mailbox was created on Outlook to allow feedback and input from all employees on the changes and their experiences in competitions with the changes in place.

• A project space was created on the OPS Intranet to allow all communiqués to be available to all employees at any given time.

Program Launch

The new Civilian Competition Process was formally launched on October 4, 2010.  Fourteen information sessions were held across the organization providing the employees with details of the program and allowing the opportunity for questions and feedback.  They were hosted by the Director General, the OPA Labour Relations Officer, the Director of HR and the Project Manager.

The New Competition Process

The new civilian process draws on the lessons learned from the Sworn Officer Promotional process and also draws on the best practices from other organizations.  It is designed to be used to fill permanent positions and for temporary positions with a duration of more than 4 months.  It has six (6) phases as shown in the figure below:

1. Pre-Posting

2. Posting

3. Screening

4. Practical and Interview

5. Selection, and

6. Post Selection.

Timelines have been established for each phase of the process. The goal is to complete internal competitions in 42 working days.

Clear roles and responsibilities have been assigned to the key players in the new process:

• Human Resources -  responsible for coordinating the competition process; managing timelines, ensuring adherence to established and approved process and guidelines, as well as supporting clients through the process;
• Hiring Managers – responsible for preparing the documentation needed for the competition; conducting the competition in accordance with newly established practice, and consulting with Human Resources throughout the process;
• Candidates - responsible for preparing for the competitions to which they apply and providing the application package as required. 

Templates and toolkits were created for the use of all stakeholders in the process.  They help to ensure consistency and transparency and to provide enhanced support to users.  They include:

• step by step instructions on the process;
• the timelines required for each phase of the process;
• quick reference guides;
• banks of sample interview questions; and
• examples of practical tests.

Training has been an important aspect of the program launch. A training module was developed for hiring managers and interview panel members. A separate module was developed for candidates to provide them with support in resume writing, creating a covering letter and how to prepare for an interview.

The initial training was offered in a classroom format and completed in 2010.  By the end of November 2010, 120 panellists and hiring managers and 120 candidates had received training.  All competition training is now provided via e-learning training modules.  Training is mandatory for all hiring managers and panellists.

Between Oct 4, 2010 and September 1, 2011 a total of ninety-one (91) competitions were completed using the new process.  This data is reported quarterly to the Board in the Workforce Management Report. 

Expression of Interest Database

To help quickly match hiring managers and qualified employees interested in short-term assignments of 4 months or less, an Expression of Interest (EOI) Database has been launched alongside the new Civilian Competition Process.  Employees access it through the OPS Intranet.  It provides them with a view of all OPS civilian positions and related job descriptions.  Interested and qualified employees can indicate their interest in one or many positions. When they have a short term assignment, hiring managers can use the EOI Database to find and select an interested candidate.

Between Oct 4, 2010 and August 1, 2011, twenty-five (25) employees from across the organization have been selected from the EOI Database for short term or temporary vacancies.  These employees are gaining experience in positions that they may not have known about or been considered for previously.  The quarterly Workforce Management Reports submitted to the Board cite the activity related to the EOI Database.

Civilian Job Postings on the OPS Website

Staff has also significantly upgraded the civilian career area of the OPS Website as a related initiative to the new Civilian Competition Process.  This site was previously dedicated to sworn officer recruitment and limited information was displayed about civilian opportunities.

Now it provides a highly visible place for individuals to visit who are interested in having a career as a civilian member of OPS.  Jobs open for external hiring are shown, along with all internal competitions. OPS employees who may be away from the office can now keep track of job opportunities while external visitors can see the employment opportunities that are available. The site provides links to the jobs that are open for competition as well as the application and competition process.

Staff has also introduced the concept of “Job Inventory Positions” for external candidates as way to efficiently address shorter term or temporary vacancies that must be filled externally. These positions are typically ones with high turnover rates that are in continual need of external candidates.  External candidates can view the positions, submit an application in the event of a short term vacancy and be notified when it is posted externally to the organization.

Structure of Employee Services

The Employee Services organizational structure was realigned to support the new Civilian Competition Process and the related initiatives that were launched.  Temporary staffing resources were assigned to ensure the successful start-up of the program and to handle the volume of staffing actions which had reached a peak.  Under the new structure the Employee Services Manager is accountable for all civilian hiring and recruiting.  The Staffing Coordinators have been assigned a portfolio of directorates and are accountable for supporting their clients.

                    Employee Services Organizational Structure

Staffing Requisition Form

Staff has also streamlined the front-end of job competitions by simplifying the process which launches them. The Staffing Requisition Form initiates all staffing actions for civilian and new sworn officer positions in the organization.  Previously, the process was based on a paper form that was manually circulated for approval to all levels of management.  Now it is electronic, the number of levels of approval have been reduced, and the processing time has dropped from approximately fifteen (15) to five (5) days.

Civilian Staffing Action Plan

To mirror the practice followed for the sworn complement, a Civilian Staffing Action Plan has been developed.   It identifies the total number of staffing actions estimated for the year based on the number of new positions, retirements and resignations and the subsequent vacancies created when internal candidates successfully compete for permanent positions.  The Plan provides the information required to project staffing needs for the future and assists with workforce management for civilian employees.  It is an electronic communication tool that is available to our employees through the OPS Intranet and Wiki.  It will serve to advise them of future vacancies and the anticipated timelines within which competitions will be conducted.  Civilian staffing actions are reported to the Police Services Board in the quarterly Workforce Management Report.

Civilian Staffing Meetings

Staff has also followed the lead of the Superintendents and implemented monthly Staffing Meetings to ensure that civilian staffing actions proceed expeditiously and with due regard to labour practices.  The meetings are chaired by the Director General and attended by senior staff from Corporate Support and Resourcing and Development. The topics include a status report on the number of vacancies, an update on the number of competitions underway, solutions for removing obstacles for competitions that are stalled, confirmation of funds for vacant positions, and confirmation that priority placement and labour relation issues have been addressed prior to holding competitions for vacant positions.

Civilian Career Initiative Joint Steering Committee

To help ensure the success and effectiveness of the Civilian Career Initiative, a Joint Steering Committee was established.  The committee is chaired by the Director General and includes representatives from Human Resources, Employee Relations, the Ottawa Police Association and the Senior Officers Association.  The previous CCI Project Team members have been included as subject matter experts.  The Committee meets regularly and their mandate includes discussion and resolution of complaints about the process; ensuring that the process continues to be efficient and effective in meeting the guiding principles; recommending or reviewing recommendations for changes to the policy, process and/or tools; and making improvements or introducing new programs under the Civilian Career Initiative umbrella.

One of the first undertakings by the Committee has been to conduct a survey of CCI participants at the one-year mark of the program.  The goal is to gain feedback on the program so that changes and enhancements can be development and implemented.  Late in the fall the Survey was issued to 643 members.  All civilian members as well as any sworn officer who had participated as a hiring manager or panel members were asked to complete the survey.  The response rate was 54%.  Roughly half of the respondents were from the Support Services Directorate and one-quarter were from Corporate Services.  These results are in keeping with the distribution of civilian employees across the organization.  Interviews took place with members that requested an opportunity to elaborate on their response.  The data is currently being analysis on a directorate basis.  The results will be shared with the members and the Board during the coming quarter.

CONSULTATION

Not applicable.

FINANCIAL STATEMENT

The Board has made a significant investment in the Civilian Career Initiative in the three years since it began in 2009.  A total of $600,000 has been spent, funded from one-time sources.  The largest cost was the Project Team, comprised of a Project Manager and a Project Specialist.  Existing OPS members played these roles.  Staffing levels in Employee Services were also increased to help launch the new Civilian Competition Process and to handle the peak work load.  A temporary Staffing Coordinator and a temporary Staffing Assistant were in place for a partial year in 2010 and a full year in 2011. Existing OPS staff played these roles.  The smallest budget item is for professional services.  Subject matter experts were retained in 2009 to help develop the new program.  In 2011 a survey expert was retained to develop the questionnaire and undertake the first CCI feedback survey.

Item	2009	2010	2011	Total
Project Team	$75,000	$150,000	$150,000	$375,000
Professional Services	$25,000	-	$20,000	$45,0000
Temporary Staffing in Employee Services	-	$60,000	$120,000	$180,000
Total	$100,000	$210,000	$290,000	$600,000

CONCLUSION

The Police Service has taken an important first step with the introduction of the new Civilian Competition Process and the related initiatives that support it.  In addition to honouring an important obligation under the Letter of Understanding between the OPA and the Police Services Board, it has started on a path that will help to ensure that civilian employees have long, challenging, fruitful and robust careers at OPS.

(Original signed by)

Vern White

Chief of Police

Annex A

The comments shown below represent the summary of the feedback from the Hiring Managers /Supervisors Interviews, comments/feedback received from employees as well as interviews with the Labour Relations Team about past grievances. (May 20^th to June 1^st, 2009)

	Posting	Screening	Interview	Selection	Post-Selection Process
Process and Roles	· Establish clear roles and responsibilities for players throughout the process:  (Candidate, Hiring Manager, Human Resources, Approval levels in Chain of Command) · Automate where possible!   Streamline the process!  · Provide more HR support throughout the process. · Provide HR with sufficient resources to deliver staffing advice and support effectively · HR needs to play a more prominent role in screening applications and providing Hiring Manager with only qualified packages. · HR should oversee and approve all aspects of the hiring process ie: interview questions, expected responses, practical tests, scoring, weighting etc. · For certain high volume/high churn positions create a pool of employees and a process for accessing this pool  · Improve data tracking, documentation and analysis throughout the staffing process · Establish clear accountabilities for oversight of timeframes/conditions for contract / term staff
Training and Tools	· Provide opportunities for hiring managers to network, build on ideas · Provide opportunities for refresher training, establish expiry dates to ensure managers obtain retraining · All tools should be available electronically · Create tools to guide Hiring Managers and set consistency and standard for all competitions. · Managers should be trained on all aspects of the hiring process.
Support for      Employees	· Provide employees with a clear summary of competition process steps and requirements (training sessions and intranet) · Provide standards and consistency for employees to learn about positions · Provide consistency and be transparent with tools used for competition · Provide training to employees on requirements for competitions. · Provide training to Hiring Managers to allow comfort when speaking with potential candidates about positions.

This table includes a compilation and synthesis of feedback provided during 14 interviews with 17 hiring managers, feedback and comments received through the CCI mailbox by employees and an interview held with LR Team.  Please note that this table is a compilation / synthesis of the feedback received the points included in this table are representative of feedback that we consistently heard – they have been included in this table because they were suggested a number of times and because they have broad applicability to the development of a new competition process and career development program.   Situation specific or one-off suggestions are not reflected in this compilation.