Asia Pacific Journal of Public Administration

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Enhancing civil service capability: emergence of

the professions model

Richard Bartlett

To cite this article: Richard Bartlett (2020): Enhancing civil service capability:
emergence of the professions model, Asia Pacific Journal of Public Administration, DOI:
10.1080/23276665.2020.1787184

To link to this article: https://doi.org/10.1080/23276665.2020.1787184

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Asia Pacific Journal of Public Administration, 2020
https://doi.org/10.1080/23276665.2020.1787184

Enhancing civil service capability: emergence of the professions

model
Richard Bartlett*

Australian Public Service Commission, Parkes, Australia

In the last thirty years, the dominant approach in Australian public sector organisation
has been one of devolution with an emphasis on management at the agency level.
This has delivered benefits in terms of public service responsiveness to ministers and
stakeholders and a more diverse set of approaches that are tailored to the circum­
stances confronting individual agencies. However, a number of reviews, including the
recent Independent Review of the Australian Public Service (the Thodey Review),
have highlighted the limitations of this approach and the constraints it has placed on
the ability of the public service to respond effectively to broader challenges and to
leverage skills across agency boundaries. The professions model is an approach that
seeks to emphasise the continuity of practice across agency boundaries in various job
families. A number of countries have tried the professions approach as a way to
address a perceived lack of consistency and effectiveness across their collective
public services. This article describes international trends associated with the profes­
sions model and describes the approach to implementing digital and human resources
professions models in the Australian Public Service.
Keywords: professions model; Australian Public Service; digital transformation; civil
service reform; Australian Public Service Commission

Introduction
The Coombs Report on the Australian Public Service in the [1970s] sought to address
a perception “that what is wrong with the administration is not only its relation to
ministers and Parliament, not only that it is inefficiently managed in ways readily testable
by audit and similar checks, but that it is too closed, centralised, hierarchical, impersonal,
isolated from the outside community – insufficiently responsive both to the users of its
services and to its own lower personnel.” (Spann, 1977, p. 84). This Report was critical
to Australia’s participation over the following two decades in a broader international
trend to decentralise public service structures and to devolve administrative responsibil­
ities to agencies and agency heads. This culminated in new financial management
legislation, the Financial Management and Accountability Act (1997) and the
Commonwealth Authorities and Companies Act (1997) and new public service legisla­
tion, the Public Service Act (1999).
Similar moves occurred in New Zealand:

The State Sector Act 1988 [NZ] was created more than 30 years ago as part of wider reform
of the public sector in the late 1980s and ‘90s. These reforms sought to embed the theory of
*
Email: [email protected]

© 2020 The University of Hong Kong

2 R. Bartlett

the marketplace and business-like management models in public organisations. They trans­
formed the Public Service from a unified organisation with one employer into separate
departments, each with their own chief executive acting as employer of departmental staff.
Departments were treated as if they were separate firms in a private sector context. The core
principles of the reforms were accountability, contractualism, managerialism and decentra­
lisation.” (State Services Commission, 2019, p. 3)

This approach has delivered many of the anticipated benefits in Australia. An interna­
tional comparison of public administration conducted by Accenture (2008) noted that
Australia’s public administration was characterised by extensive consultations with
citizens, users and stakeholders with good e-participation and customer service maturity.
(p. 10; 13; 14) More recent reports, such as Advisory Group on Reform of Australian
Government Administration (2010) and the Australian Public Service Commission
(2015) however, have highlighted the limitations or shortcomings that a decentralised
approach has increasingly produced over time. First steps to address these issues were
taken with revised financial management legislation, the Public Governance,
Performance and Accountability Act (2013) which replaced the Financial Management
and Accountability Act (1997) and the Commonwealth Authorities and Companies Act
(1997), and amendments to the Public Service Act (1999) in 2013, which both empha­
sised collaboration across government agencies. Most recently, the Thodey Review
concluded that the APS needs to work more effectively together, guided by a strong
purpose and clear values and principles; it also concluded that “since at least the early
2000 s, too much devolution results in poorly integrated advice and support to the
Government on complex government priorities”. (Department of Prime Minister and
Cabinet, 2019, pp. 8, pp. 41–42). In New Zealand, the system is seen as fragmented
unable to act cohesively. Recent changes to the New Zealand State Sector Act were
designed to have the New Zealand public sector work as a unified public service with
leaders taking collective responsibility for major issues. (State Services Commission,
2019, pp. 5–12)
In an environment where governments are seeking to overcome some of the short­
comings of the existing arrangements, while preserving their benefits, the professions
model is an approach to increase capability across the public service and to overcome the
tendency of agencies to operate in siloes limiting the effectiveness with which they
perform common tasks. The Thodey Review recommended “that the APS develop an
APS profession model, led by the Australian Public Service Commission to lift its core
expertise, meet long-term capability needs and provide rewarding careers. … The
professions model provides a single focus, a frame and a discipline within which to
think about how best to deepen expertise across the board.” (Department of Prime
Minister and Cabinet, 2019, pp. 193–95).
My first exposure to the professions model was in 2016 in the UK when I was
looking at their implementation of corporate shared services. The implementation of
“standard” services without a standard approach had led to an inability to deliver
expected outcomes including increased efficiency. New technology enables common
systems and shared back office functions that can support greater transparency and
improved efficiency, but it requires a greater consistency in approach across agencies
while still meeting the needs of different government businesses. The use of
a professions approach for human resources and finance in the UK was intended to
support a standardised approach that would enable the civil service to realise the
 Asia Pacific Journal of Public Administration 3

expected benefits from shared services. (See also Department of Prime Minister and
Cabinet, 2019, p. 194)
Other countries have also looked at using a professions model to improve cross-
agency cohesiveness, but have approached it differently. New Zealand has chosen to
appoint heads of profession, create communities of practice and then let the impetus for
further collaboration develop organically. This is led by the New Zealand State Services
Commission and currently covers fields of professional skills like digital, property,
procurement, legal, human resources, finance, policy and communications. Other exam­
ples of the use of this approach can be seen in Singapore and Canada and in Australian
jurisdictions such as Queensland. (McPhee, 2015, p. 70)
The Australian Public Service (APS) has been aware of the potential for an approach
utilising professions for some time. The APS, like many institutions globally, is grap­
pling with challenges posed by geopolitical tensions, rapid technological change, high
community expectations and the need to deal with complex issues across agency
boundaries. These challenges, now and into the future, alongside the rising expectations
of the Australian community, necessitate an APS that is agile, capable, efficient, con­
nected to community and trusted. As the Thodey Review noted, the APS will need to
attract, develop, mobilise and retain talented and capable people to meet these chal­
lenges. (Department of Prime Minister and Cabinet, 2019, pp. 16–21). The response to
COVID-19 has also highlighted the need for flexibility in the public service and
a capacity to quickly deploy staff into areas of high demand. A more formal and focused
professionalisation of key roles is seen as a way to respond to these challenges and to
enhance the public service’s ability to operate in a unified way.
Two key areas where the Australian Public Service Commission is doing considerable
work at the moment are human resources and digital. The use of a professions approach is
particularly relevant in these two areas as they both require high-level professional skills
and they are both subject to high levels of common practice across agencies, significant
change and high service expectation, either internal or external. A standard approach offers
a way to bring consistency and collaboration to achieve greater capability. It also offers
a way to assess and enhance specialist workforce performance and planning – something
that is particularly important in an area undergoing rapid change like digital.
Several reviews of the APS over recent years have highlighted capability gaps across fields
such as accounting, strategic human resources (HR), economics, strategic policy analysis, data
analysis, IT and project management. (Advisory Group on Reform of Australian Government
Administration, 2010, pp. 15–30; Australian Public Service Commission, 2015; Department of
Prime Minister and Cabinet, 2019, pp. 183–91). In 2017, drawing on international models and
review results, the Australian Public Service Commission and the Department of the Prime
Minister and Cabinet finalised a report: Growing APS capability: Potential of professional Job
Streams (GAPS) Report. The GAPS report identified four reasons for current capability gaps:
inadequate talent management; lack of career pathways; rigid recruitment practices; and,
insufficient knowledge sharing.
It identified that “profession-based networks or streams are bodies which connect
people who work in particular professions with and across different public service
agencies. These bodies may also reach outside the public service to share best practice
with academia and the private sector.” (Department of Prime Minister & Cabinet and the
Australian Public Service Commission, 2017, p. 4). The typical overarching aims are to:

(1) Facilitate recruitment of skilled people at all levels

4 R. Bartlett

(2) Identify and provide targeted development opportunities

(3) Offer profession-specific targeted development opportunities
(4) Develop models to deploy people across agencies to share skills and fill short-
term capability gaps
(5) Identify and develop talent to improve staff retention, protect institutional mem­
ory and implement succession planning.

It also noted that these aims could be achieved in models with different levels of
formalisation, recommending a hybrid model with profession-based networks with
highly respected senior officials nominated as heads of profession. This has become
the approach adopted in introducing the first two professions. (Department of Prime
Minister & Cabinet and the Australian Public Service Commission, 2017, p. 4)

APS HR professional stream

The HR function is critical to achieving the aspiration set out in the Thodey Review of “a
trusted public service, united in serving all Australians” (Department of Prime Minister
and Cabinet, 2019, p. 17). The shortcomings in strategic human resources have been
a recurring theme in a number of reviews of the Australian Public Service (Advisory
Group on Reform of Australian Government Administration, 2010, p. 52; Podger, 2017).
The Australian Public Service Commission (APSC) has developed an APS HR
Professional Stream Strategy to professionalise the HR leadership and workforce in the
APS. The HR Professional Stream Strategy will put in place arrangements that increase
human resources capability, share knowledge and experience between agencies and tap
into areas of external expertise such as professional associations, academia, private sector
organisations and local and international counterparts. It will seek engagement from
human resources practitioners in collaborative and voluntary activities.
The strategy will support the professional stream by identifying the core, long-term
capability needs, appropriate standards and the design of career pathways and include an
HR professional network, a mobility program to develop individual expertise and agency
capability, and an overarching human resources strategy that will provide a touchstone
for individual agency strategies.

Professionalising the APS digital workforce

The second area where the APSC is currently implementing a professions model is
digital. While Australia rates quite well internationally in the area of e-government, there
is demand for much more transformation of the delivery of government services, both to
respond better to individual needs and preferences and to achieve greater efficiency. In
the 2018 UN Report on Global Trends in e-government, Australia rated second behind
Denmark, the same position it had held in 2016. (Department of Economics and Social
Affairs, 2018, p. 89). The Thodey Review identified the likely need for major new
investments as well as restructuring. In identifying impediments, the Report noted
a reliance on ageing and complex systems leading to inflexibility and high running
costs that constrain changes in policy (p. 146). The Report notes that the current annual
operating expenditure of AUD$6.2 billion is skewed towards running costs, rather than
being spent on growing digital capabilities (Department of Prime Minister and Cabinet,
pp. 152–53). It indicates that significant expenditure would be needed to match the level
 Asia Pacific Journal of Public Administration 5

of digital transformation that has occurred in the private sector, with an investment of
between AUD$650 million and AUD$1.2 billion per year, supported by a comprehensive
ICT audit to create an inventory of current and forecast government ICT expenditure and
assets (Department of Prime Minister and Cabinet, pp. 153–56).
The Report also notes that the APS relies heavily on contracted IT service providers,
but is becoming increasingly aware of the importance also of internal digital capability
including business architecture, strategic design, project management and the broader
digital aspects of delivering for the Australian people (Department of Prime Minister and
Cabinet, p. 158). There is also a need for all senior executives to have an appreciation of
the implications of digital developments for both public policy and the management of
public programs.
Over the past two years the APSC and Digital Transformation Agency have been
working in partnership on a Building Digital Capability Programme to build the digital
skills of the APS. The work has been funded from the Public Service Modernisation
Fund – Transformation Stream, a 2017–18 Budget initiative to make funding available to
support innovative approaches within the public service, and has progressed in close
consultation with agencies and experts both within and outside the APS (Australian
Government, 2017–18, p. 75).
The aim of the program is to lift the capability of the APS to deliver the digital
transformation of government services. To date the program has delivered a range of
initiatives that address different aspects of capability at every level, including;

● The Leading Digital Transformation program, which is on track to reach 10% of

all senior executives by the end of this financial year. Evaluation results are
indicating a significant shift in capability, and the program has generated strong
interest from state and territory governments.
● Expansion of APS entry level programmes to include specialist digital capability
such as cyber security.
● The development of 18 learning standards for specialist digital capabilities like
robotic process automation and DevOps engineering. These provide a basis for
establishing a shared understanding of digital roles, and support common
approaches to specialist digital training.
● The design and prototyping of digital career pathways, linking roles, skills and
classification levels across a digital career in the APS.
● Research and a pilot of skills and aptitude assessment for digital roles.

As the various elements of the digital capability program have evolved, the need and
opportunity to professionalise the APS digital workforce has emerged.

Towards an APS digital profession

The Building Digital Capability Programme has established a solid foundation for an
APS professional model for digital. Figure 1 outlines the proposed model. The model
brings together a range of initiatives that are already underway, along with proposed new
areas of activity, linking them under the umbrella of a professional model which aims to:

● Improve the consistency and quality of digital service delivery across government,
with professionals adhering to common standards for their profession
6 R. Bartlett

Figure 1. Professional model for digital in the APS (Digital Transformation Agency and the
Australian Public Service Commission [2019]).

● Improve the attraction and retention of talented digital professionals, with visible
recognition and support of technical expertise, and clear career pathways
● Give greater responsibility and accountability to those delivering digital products,
akin to what is expected of engineers and lawyers
● Nurture and develop a pool of digital specialists, who have clear visibility of their
role in digital service delivery and their future potential in the APS digital
profession.

Other countries are also moving towards professionalising the digital workforce to
attract, develop and retain digital skills and talent (see Table 1).
Drawing on these international exemplars, it is envisaged that the APS digital work­
force professional model will have five pillars as indicated in Figure 1. Establishing these
pillars will involve:

Leadership for the digital profession

A head of profession will be appointed to lead and oversee the development of the digital
profession, and foster a professional community across digital disciplines. Digital disci­
plines comprise sub-professions where specialised capabilities, techniques and knowledge
are shared by practitioners in the discipline. Examples include service design, user research,
robotic process automation, AI ethics, DevOps engineering. Within each of these disci­
plines, there will be multiple roles and a discipline-specific career pathway connecting those
roles, independent of the cross-discipline career pathways that may also exist.
The Thodey Review noted that there is a significant challenge confronting the APS in
building digital skills:

As part of the professions model, the APS should create a genuinely compelling offer to
work in data, digital and broader technology roles in the public service. A data and digital
 Asia Pacific Journal of Public Administration 7

Table 1. Public sector digital profession models in selected countries.

UK Singapore Canada

Digital, Data and Technology ● Head of profession ● A “made-in-Canada”

(DDaT) Profession includes: who appoints all digi­ Digital Academy in
● Head of profession tal professionals partnership with the
who appoints all across the public non-profit, academic
senior digital execu­ service and private sectors.
tives across UK civil ● Building capability ● Career management
service centres focused on portal
● Common digital, data areas such as cyber­ ● Talent management
and technology security, data science initiative focused on
(DDaT) capability and sensors & cyber security, data
framework across the Internet of Things. science, agile pro­
civil service ● Smart Nation curement and com­
● Government Digital Fellowship program plex project
Service Academy that for data scientists, management
provides training and engineers, software ● Talent cloud recruit­
development for developers, technolo­ ment platform &
DDaT professionals gists, designers and marketplace
● Communities of prac­ applied researchers
tice for disciplines ● Smart Nation
with an identified Scholarship program,
community manager sponsoring tertiary
● Common pay bands students
for digital disciplines
across the civil ser­
vice, which are com­
petitive with private
enterprise
● Entry level and fast
stream programs
which support the
acquisition and devel­
opment of new talent
(Government of Canada (2018), Government of the United Kingdom (2017), and GovTech Singapore [n.d.]).

profession, or separate but linked professions for data and digital experts, are an early
priority in deepening in-house APS capability to support an ambitious digital transforma­
tion. (Department of Prime Minister and Cabinet, 2019, p. 158)

The head of profession will also have an important role in shaping the culture that will
support this digital transformation, so that all staff in the APS (regardless of professional
discipline) are engaged in the transformation.
This expansion of digital capability in the APS will initially be supported through an
expansion of the Leading Digital Transformation Programme to a wider group of senior
APS leaders. The programme will also be made available to other Australian government
8 R. Bartlett

jurisdictions. This will aid in building individual and collective leadership for the work
required to transform government services for Australian citizens, regardless of which
layer of government delivers them.

Professional standards & recognition framework

A code of service and professional standards will be developed to guide professional
behaviour. This includes methodologies for conducting digital work and benchmarks for
assessing quality and effectiveness. A recognition framework for digital professionals
will be explored. This would recognise digital expertise and aid in the attraction and
retention of technically capable professionals.

Career pathways for digital practitioners

At the centre of the proposed digital professional model are digital career pathways. These are
intended to provide a clear definition of digital roles and the associated skills, knowledge and
experience required, and the links between various roles, within or across digital disciplines.
Building on the work to date to map the digital skills landscape (Figure 2), define digital
capability requirements (Figure 3), and prototype digital career pathways (Figure 4), digital
career pathways will be extended by:

● Finding or building a prototype career explorer tool

● Linking pathway transitions to learning solutions
● Providing mobility opportunities through skills matching.

Career pathways will provide a common framework for understanding digital roles and
capability across the APS, helping to facilitate capability development and mobility.

Figure 2. Digital capability model and career pathways framework (Digital Transformation
Agency and the Australian Public Service Commission [2019]).
 Asia Pacific Journal of Public Administration 9

Figure 3. Digital capability model and career pathways framework (2) (Digital Transformation
Agency and the Australian Public Service Commission [2019]).

Figure 4. Potential career paths for service designer (Digital Transformation Agency and the
Australian Public Service Commission [2019]).

Individuals will be able to see how their current skills could be applied to digital roles,
the digital career paths they could pursue, and the new skills they will need to develop.
This is expected to enhance the attraction and retention of digital professionals, and
support workforce transition planning. Over time, connections will be explored with non-
digital professions (such as finance or programme management) to create opportunities
for people to move into a digital role and increase the pool of digital practitioners.
10 R. Bartlett

Growing digital capability in the APS

A number of other initiatives are also proposed to continue to develop digital capability.
Skill requirements have been analysed and captured in 18 learning design standards, and
these will be used to establish a baseline of digital capability in the APS, and for sourcing
learning and other resources to support capability development. Other options being
explored include:

● An aptitude assessment to guide individuals towards career pathways and suitable

capability development options; and
● A trial of a cross-APS approach for recruitment for key digital roles where there is
high demand and low supply.

Professional communities for digital practitioners

To support digital professionals and encourage excellence, discipline communities of
practice will be established with discipline leads. The leads will be drawn from agencies
who have strength in a particular discipline. The leads would nurture the discipline
community, encourage sharing of knowledge and expertise, and build a common under­
standing of the discipline approach across the APS.

Challenges
The Thodey Review noted that current whole-of-government digital and data functions are
fragmented with agency siloes hindering whole-of-government efforts resulting in an
inability to attract, retain and nurture high-quality talent (Department of Prime Minister
and Cabinet, 2019, p. 146). In developing its digital capability, the APS will need to build on
significant investments in digital infrastructure by improving in-house capability through
a combination of recruitment and re-skilling of current employees. The digital profession
model and the work that underpins it creates a good template for doing this but the APS will
be undertaking this work at a time when digital skills are in high demand.

Conclusion
Recent reviews have highlighted the need for the Australian Public Service to strengthen
its operating model by blending the ongoing benefits of a devolved approach with
initiatives that improve the capacity of the service to work collectively. The evolution
of the professions model is an approach that respects the responsibilities of agency heads
while creating the conditions in which genuine cross-service collective activity can
occur. This will help to increase the professionalization of the service, develop staff
and provide a platform to support better cross-agency cooperation. In both human
resources and digital, there is the additional benefit that as skills needs evolve, there is
an opportunity to undertake whole service workforce planning and implement collective
training and other approaches to ensure that the workforce continues to be suitable to
meet changing requirements.
The opportunities and challenges involved in adopting new digital technology to
improve public services and policy advice are becoming increasingly significant while
offering potentially greater rewards in terms of service delivery, programme manage­
ment and policy development. This will accelerate in coming years with the growing use
 Asia Pacific Journal of Public Administration 11

of artificial intelligence and the analysis of big data. While it is inevitable that the public
sector will continue to rely heavily on the private sector for the provision of technology
support and for advice on emerging technologies, it will be equally important to have the
internal capability to appreciate the implications for business architecture and strategic
design, and to project manage the adoption of new technology ensuring that it supports
the efficient and effective delivery of high-quality services. The professions model
being applied to digital expertise within the Australian public service is aimed to
enhance these internal capabilities. It is being applied across the APS in recognition
of the way technology is requiring and driving inter-connectedness across and beyond
government.

Disclosure statement
No potential conflict of interest was reported by the author.

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