A POLICY FOR PEOPLE
Introduction
1. To have modern and effective Armed Forces, we must recruit and retain our fair share of the best people the country has to offer. The quality of our people and their readiness for the tasks entrusted to them are the true measure of our Forces' operational capability. The skills and experience we have been able to give our personnel, Service and civilian, their capacity for innovation and their morale and motivation are fundamental to Britain's defence.
2. We must therefore ensure that our personnel policies maintain our operational effectiveness and ensure that it is backed up, where necessary, by appropriate and demonstrable fighting power. Any change must be measured against this test. Our personnel policies need to match the best elsewhere to ensure that our people can give of their best.
3. Because our people and their views are so important, a key part of the Strategic Defence Review (SDR) was to supplement the normal consultation processes to enable us to know for certain just what are the issues of real concern. To this end the Defence Secretary directed that a liaison team be formed to talk directly to Service and civilian staff to discuss with them the issues raised by the SDR, and listen, first hand, to their concerns and ideas. In a programme of over eighty visits the team (which comprised a member from each of the Services and two civil servants) talked with audiences totalling some 7,000 people. Examples of what people had to say are reproduced throughout this essay including all the quotations. We are committed, through our Policy for People, to address the issues they raised.
4. Our Policy for People does not just include initiatives which have arisen out of the Review but incorporates others already in hand and those planned for the future to produce a coherent and comprehensive programme. On the Service side, we have endorsed the considerable work that was already in progress following the Independent Review of the Armed Forces' Manpower, Career and Remuneration Structures, (HMSO 1995) and the 1997 information document The Armed Forces of The Future - A Personnel Strategy, upon which we have drawn for our Policy for People.
5. Despite this we have, however, concluded that we need to do more. We are determined to have terms and conditions of service which are both relevant to the 21st century and balance the needs of the individual with those of the organisation. On the civilian side, we will continue to build on our Personnel Policy Statement and our Civilian Personnel Management Strategy Personnel Policy Statement for Civil Servants Employed in the Ministry of Defence (September 1995) and Civilian Personnel Management Strategy: An Agenda for the next Two Years, (August 1997).
6. We must be a modern and fair employer. We have pledged ourselves to continuous improvement in all our practices. For instance, we are implementing one of the biggest and most demanding Investors in People (IiP) programmes in the Country. Achieving IiP accreditation will help us to ensure that all personnel are properly trained and developed to meet our goals and targets, and that our significant investment in development and training, some £1Bn a year, is properly targetted and evaluated.
7. We are also committed to making real progress on improving our record on equal opportunities through tackling the complex web of underlying factors which have inhibited people from various backgrounds choosing to join us in the past. We must ensure that those who join us make progress according to their talents and legitimate aspirations.
8. Our Policy for People balances the needs of the MOD and our staff and, wherever possible, responds to the legitimate concerns expressed recently during the consultation process by Service and civilian personnel, trade unions and outside commentators. Our conclusions, plans and proposals are set out below.
Service Personnel
Current Concerns
"If we don't look at personnel issues then the SDR will fail."
(Note: This and all other quotations are statements made to the Strategic Defence Review Liaison Team. In order to preserve confidentiality they have not been attributed to individuals).
9. Overstretch and Undermanning. We know there are problems. Two of the most intractable, overstretch and undermanning, have existed for years and are themselves manifestations of deeper problems. The Armed Forces know they cannot be solved overnight and they would be suspicious of anyone who claimed otherwise. They also understand that personnel policy alone cannot resolve the imbalances between wider Defence Policy, commitments and resources. It must be part of a whole but, if we do not have a magic wand, we do have a determination to get things done. If some of the proposals in our Policy for People seem modest it is only because we have promised what we can deliver. Addressing the personnel problems that affect the Armed Forces will take time, trust, and money. Trust needs to be earned and will only arise from the delivery of tangible improvements in overstretch and undermanning.
"We are continually away from our families - there is no incentive to stay."
10. Unit Overstretch. Some of the causes of unit overstretch (too few units to meet commitments) are avoidable. So we have decided, as described elsewhere, to address the causes to ensure that there is a much better balance between resources and commitments. Specifically in the Royal Navy we have reduced the peacetime tasking required from the destroyer, frigate and submarine forces. In the Army, we will maintain our current level of commitments but increase establishments by 3,300 personnel and create a sixth deployable brigade. The size of Royal Air Force front line has been set against the level of commitment we expect it to meet. Extra logistic and medical units will be formed for all three Services and, as they become fully manned, will relieve overstretch in some of the most hard pressed areas. These measures are described in detail in other essays. It will take time for them to produce results but we are determined to put them in place as quickly as possible.
"Constant commitments are stopping people from training properly and developing their careers - so they leave early."
11. Individual Overstretch. For a large number of Service personnel the effects of unit overstretch are exacerbated by undermanning, which together cause individual overstretch. At present we do not have enough information to determine the size of individual overstretch or to identify solutions. All three Services are looking to remedy this. The Royal Air Force has developed a technique to record separated service. The Royal Navy and the Army are looking to adopt a similar system to ensure that individual overstretch and turbulence are managed as equitably as possible. In the meantime, the measures we are introducing to alleviate unit overstretch should also lead to reductions in individual overstretch. Matching resources to commitments will reduce turbulence and bring some stability back into people's lives.
"Manning is getting worse and we cannot see that the SDR will change anything."
12. Undermanning. The effects of undermanning are obvious, the causes many. At its simplest it happens because we neither recruit sufficient numbers nor retain Service personnel for long enough. This has caused a vicious circle to ensue, where undermanning causes individual overstretch, itself a function of unit overstretch, which then causes further undermanning and so on. This will be a difficult circle to break, but we intend so to do.
13. Breaking the Circle. We intend to break the circle by removing unit overstretch and achieving full manning (through improving recruiting and retention) so that we can reduce individual overstretch to manageable proportions. We expect largely to remove unit overstretch once we reach full manning. If we are successful, full manning in the Royal Air Force should be achieved by 2000, the Royal Navy by 2002 and the Army around 2004. The increase in the Army establishment described above is the main reason why it will take longer to reach full manning. Once reached this will have a significant impact, for the better, on individual overstretch.
14. To maintain proper, balanced career structures, we may not be able to achieve full manning without some redundancy in a limited number of employment categories. This will not be on the scale of previous programmes. There may be about 200 redundancies in the Royal Navy as a whole, targetting certain specialist categories and on a voluntary basis. No redundancies are envisaged in the Army or the Royal Air Force.
15. Improving Recruiting and Retention. The issues most frequently recorded by the SDR liaison team which would improve recruiting and retention included better terms and conditions of service, improvements in pay and allowances, better quality of training, reducing overstretch, allowing service beyond 22 years, providing opportunities to gain civilian qualifications during service, addressing concerns about family life, ensuring equality of opportunity and providing better accommodation. Other evidence from recent leavers' surveys showed that reducing separation from family and friends and improving promotion prospects would also be important.
16. All of these suggestions have been considered carefully and have been used to develop a package of measures, building on much that was already being done, to help the individual and the family, both in the short and long term, and which we believe will improve recruiting and retention.
Improvement Plans - Strategy for the 21st Century
"We need a vision for the future."
17. To provide a framework for addressing the problems we have identified, we need a comprehensive personnel strategy to take the Armed Forces into the next century. It must:
- incorporate all that is best in current practice, build upon the important work already in hand and respect the traditions of the three individual Services, especially the ethos and values needed to support operational capability;
- provide jobs which are rewarding and challenging;
- allow us to recruit, retain and motivate the people we need by offering pay, allowances and a pension scheme broadly comparable to those in the civilian sector, but which recognise the demands of service life and the role of the Armed Forces Pay Review Body;
- enable individuals to realise their full potential during their service, provide equality of opportunity irrespective of race, gender or religion, and assist them to prepare for subsequent careers;
- manage postings so that the operational requirement is met, but take individual aspirations for family stability into account as far as practicable.
Underpinning our strategy will be measures to improve recruiting, retention and resettlement. Critical to success will be measures to reduce overstretch and undermanning. These, however, will take time to have the effect we want.
18. We will therefore proceed with other measures whose effect on the individual and Service family will be more immediate. To improve recruiting we will continue with our measures to embrace all sections of the community, irrespective of gender or race and we will improve the provision for education and training on joining and within the Services. This will re-emphasise the value of a career of first choice in the Forces.
19. We also aim to improve retention with a range of new measures including: enhancements to operational welfare, introduction of a common leave entitlement and a programme to improve standards of single living accommodation.
20. We intend to address the concerns of Service families. As a first step we will establish a families task force. We will also ensure that the already high quality of education delivered by the Service Children's Education Agency is enhanced even further.
21. We intend to introduce a career transition service and, in a major initiative, we will improve aftercare provision with the establishment of a veterans' advice cell.
Improvement Plans - For The Individual
"Learning Forces" - Improved Provision for Education and Training
"To improve recruiting, give the potential Serviceman at the Recruiting Office a definite lead on his career and what qualifications he may attain."
22. Our consultation process reinforced our view that the perceived lack of opportunities to gain recognised civilian qualifications discouraged potential recruits from joining and caused Service personnel to leave prematurely. Within the framework of the Government's 'Learning Age' proposals, our 'Learning Forces' initiative will introduce a range of measures for the provision of better opportunities for personal development linked to academic, vocational and professional qualifications. We will provide substantial additional resources to fund these initiatives, based on the following principles:
- competence in key skills, related to national targets and rank/employment;
- the opportunity to gain recognised and transferable qualifications;
- funding for learning activities during and after service;
- provision of Personal Development Records;
- access to information, advice and modern learning facilities, irrespective of rank, age, employment or location;
- return the individual to the civilian workplace with "added value".
23. Key Skills. We will take action to ensure that all recruits will have an opportunity to gain an appropriate level of competence in the six key skills identified by Department for Education and Employment (DfEE) as needed by all in the workplace. Those skills include competence in literacy, numeracy and information technology. From 2000, some 1,300 school leavers a year will also have the opportunity to attend the new Army Foundation College for a 43 week course which will offer a National Traineeship and a Level 2 Scottish/National Vocational Qualification which will include Level 2 Key Skills commensurate with the ability of the student.
Recognised and Transferable Qualifications
"There is a need for civilian recognised qualifications."
24. Scottish/National Vocational Qualifications (S/NVQs). We recognise the considerable recruitment, retention and resettlement benefits of providing civilian recognised and transferable training for our military and civilian personnel, particularly S/NVQs. We wish to ensure that all military trade and professional training that can gain civilian recognition and formal accreditation does so. Most technical training within the Armed Forces already attracts civilian qualifications. We estimate that up to 70% of all training within the Armed Forces could be so eligible.
25. S/NVQ Level 2. For the purposes of illustrations, NVQ Level 2 is the broad equivalent of the academic attainment of achieving five GCSEs. Additional resources will be provided to give all non commissioned service personnel the opportunity to gain an S/NVQ Level 2 within three years, or by the time they complete their minimum engagement, whichever is the later.
Learning Credits
"We need to offer more in-Service education to retain people."
26. We will expand education and vocational training opportunities for the Armed Forces. Service personnel will be able to claim 'Learning Credits' for education and vocational training both while serving and for some time afterwards. When the DfEE Individual Learning Accounts are established we will, if necessary, adjust our proposals more closely to reflect them. We believe that it is right to retain an individual contribution to these schemes.
Personal Development Record
27. All military personnel will be provided with a Personal Development Record (PDR), to be retained throughout their Service career. That, in line with the DfEE Learning Age proposals, will be used to record the experience and qualifications they gain and provide opportunities to signpost routes/means for further development. It will be tangible proof for a prospective employer of their record of achievement and aspirations. The introduction of PDRs will be supported by a developing structure for accreditation of military education, training and experience in terms of national credit ratings.
Improved Single Living Accommodation
"Junior accommodation has been neglected and is in a bad state."
28. The strategy for improvements in the service families estate have not been matched by a similar strategy for improvements in single living accommodation. The SDR Liaison Team found sub-standard single accommodation to be a significant area of complaint. The Armed Forces Pay Review Body has consistently criticised the low priority this has been given in the past.
29. In future, new accommodation will be built so that, in most instances, individuals of all ranks will be provided with a single room. There are plans in place now to raise the standard of some existing single living accommodation, and we have initiated a survey of all single living accommodation to inform our longer term aspiration to improve the whole estate.
Operational Welfare Enhancements
"Welfare is key."
30. The provision of welfare support for Service and civilian personnel deployed on operations is a key component in the maintenance of morale and thus the overall effectiveness of deployed forces. Small enhancements in this area can cause a disproportionate increase in morale. Although much is already done, we have recognised that in two areas - the financial assistance provided for telephone calls home and the provision of Rest and Recuperation flights - more is needed.
- Telephone Calls. Personnel deployed on operations in for example Bosnia and the Gulf are currently entitled to financial support for welfare telephone calls roughly equating to a three minute call a week. That is too short for a satisfactory family call, particularly where young children are involved. We will increase the time for entitled personnel to ten minutes. We are investigating extending this provision to personnel on operational ships dependent on telephone facilities being available and operational feasibility.
- Additional Rest and Recuperation Flights. Our experience in Bosnia has shown that a small proportion of Service personnel may be deployed for eleven months or more. Those personnel are currently eligible for two rest and recuperation flights. We will increase the number of flights for such personnel to three. For those deployed for longer than 13 months, additional flights will be provided.
- Satellite TV on Royal Navy Ships. We are exploring extending the provision of satellite TV to all Royal Navy ships whilst at sea. It is currently installed on our aircraft carriers where it has been an important factor in contributing to morale, particularly on prolonged deployments. There are, however, technical difficulties in extending it to the rest of the Fleet and work is in hand to determine whether our aspirations can be realised.
31. Allowances. Enhancements to operational welfare need to be seen within the context of the 1995 Independent Review. An updated allowance package, based on its recommendations, was introduced last year. This was targeted at aligning allowances more closely to our current operational stance. It included a longer separated service allowance for those on long or frequent periods on operations, exercise and training away from their base and a get you home allowance which provides a contribution to the cost of travelling home for those on detached duty or courses. We will monitor the effectiveness of these allowances to confirm they are having the consequences we intended.
Leave Entitlement
32. The Services do not currently have a common annual leave allowance. Junior ranks in the Army and Royal Air Force, serving in the United Kingdom and the rest of the world, less North West Europe, are allowed less than senior ranks and officers. We therefore intend that, from April 1999, all ranks of all three Services should move to a common leave allowance of 30 'working days'. For this purpose the 'working days' of the week are Monday to Friday.
New Career Transition Service
33. We will improve current resettlement provision. This autumn we intend to introduce the Career Transition Partnership, in conjunction with a private sector supplier. For leavers with over five years' service, it will provide career transition support, including unlimited counselling, workshops and nationwide job finding support. At the same time, we will introduce enhanced job finding support for those with between three and five years' service. Our marketing campaign "Access to Excellence" will continue as will all current single Service resettlement support. We will also introduce, from April 1999, a graduated resettlement scheme. This will make available increased time, up to a maximum of seven weeks, linked to length of service, for career transition preparation. Our overall intention is to ensure that Service leavers receive the best preparation for their future careers.
Veterans' Advice Cell
"SDR should be looking to improve the welfare support organisations."
34. Ex-Service personnel and Service charities made us aware that there is no single point of contact which ex-Service personnel can approach so that they can be directed to those best able to deal with their particular problems. We will remedy this with the establishment of a Veterans' Advice Cell. This will be staffed by Service or ex-Service personnel who can provide guidance on where and how to obtain specific expert assistance. The Veterans' Advice Cell will also enable us to identify quickly any changing welfare requirements for veterans by monitoring the type and frequency of the requests that are made. That will enable us to identify and address issues before they become major problems. We plan to have the Cell operational, within the MOD, later this year.
Improvement Plans - For The Family
"To have an effective review you need to canvas the views of our wives."
35. Service Families Task Force. We are keenly aware of the problems that Service life can pose for families. "Following the Flag" means that spouses will invariably have to give up their jobs in circumstances which render them ineligible for the Job Seekers' Allowance, will have to find places for their children in suitable schools, register with a doctor and struggle to find an NHS dentist. That is an exhausting but not exhaustive list - additional problems occur over social security allowances and access to some NHS treatments. We intend to establish a task force to address the concerns of Service families. This will take time but we are determined to drive it forward.
Enhancement to Provision for Service Children's Education
36. Service personnel are concerned that their children are not disadvantaged as a result of their service overseas. The majority of Service children overseas attend schools maintained by the Service Children's Education (SCE) Agency. We intend in SCE to mirror the initiatives announced by the DfEE during the past year including the literacy and numeracy projects, improvements to school security (for example, to provide school fencing for those without) and training for School Advisory Committee members. Increased funding for these initiatives will be provided.
37. Those measures are in addition to the funds already allocated to replicate the provision of nursery education in civilian schools for all four year olds. Under this scheme, and in locations where there is already an SCE school or garrison playgroup, the facilities will be extended to cater for all four year olds with effect from September 1998, and sooner in some areas. In overseas locations where there is no integral SCE provision, or where numbers are insufficient to create a viable nursery class or pre-school group, Service parents will be given financial assistance to offset the costs of sending their children to a local nursery school.
Improvement Plans - Personnel Management
Equal Opportunities
"Will SDR comment on discrimination?"
38. Equal Opportunity Training. A Tri-Service Equal Opportunities Training Centre has been established at Shrivenham. Its purpose is to provide comprehensive training to Service Equal Opportunity Advisers, trainers and senior officers (i.e. Brigadiers or equivalent and above). All officers at brigadier level or equivalent are to receive mandatory equal opportunities training which will emphasise their leadership responsibility in this crucial area. All recruiting staff, new recruits, NCOs, junior officers and commanding officers now receive equal opportunities training.
39. Women. The three Services are wholly committed to maximising opportunity for women in the Armed Forces, except where this would damage combat effectiveness. 96% of posts in the Royal Air Force and 73% of the total posts in the Royal Navy and Royal Marines have been open to women for some time. On 1 April 1998, the Army increased the posts open to women from 47% to 70%. We have been reviewing whether we could improve the opportunities still further. As a result, we have decided that some 1300 posts in Army and Navy specialist units attached to the Royal Marines will be open to women. We have, however, concluded that posts in the Royal Marines, the RAF Regiment and those in the Army whose primary role in battle is to "close with and kill the enemy" should remain closed to women until we can properly assess, in two to three years, the impact on combat effectiveness of the recently introduced changes in the Army. Women are also currently excluded from service on submarines and as Royal Navy mine clearance divers for medical or practical reasons. Reviews of these areas will be completed towards the end of this year.
40. Servicewomen currently represent around 7% of the total strength of the Armed Forces. More women are joining the Forces and fewer are leaving. In the last year 14% of all new recruits were women and there was a 30% decrease in the numbers leaving. We hope that the numbers of recruits will increase, particularly as the Army has specifically targeted women in its most recent recruiting campaign. Additional work is also under way to establish a system of monitoring gender related issues including recruiting and maternity related aspects, building on experience gained from the ethnic monitoring programme. That will provide us with objective evidence of our success, or otherwise, on gender issues.
41. Ethnic Minorities. We are determined that the Armed Forces should better reflect the ethnic composition of the British population. Currently some 6% of the general population are from ethnic minority backgrounds, but they make up just 1% of the Services. This must not continue. We have set a goal of attracting 2% of new recruits this year from ethnic minority communities for each Service. We want that goal to increase by 1% each year so that, eventually, the composition of our Armed Forces reflects that of the population as a whole.
42. To encourage more members of the ethnic minorities to join the Armed Forces, and stay in once they have joined, we have been working hard to accommodate religious and cultural differences such as dress and diet wherever possible, while still maintaining combat effectiveness. We are working to develop and increase outreach work with local communities. We will continue to work closely in partnership with the Commission for Racial Equality (CRE), to persist with our efforts in the recruitment of ethnic minorities and to combat racism. We were delighted that earlier this year the CRE agreed to lift the threat of legal action against the Department and replace it by a partnership agreement between the MOD and the Commission. The Chairman of the CRE described this as, "A model of leadership in action". All three Services achieved a modest improvement in recruitment in 1997/98. We have introduced a further range of measures including ethnic minorities recruiting teams. There is a long way to go but we are fully committed to achieving this goal.
43. Harassment. All personnel have the right to work without fear of harassment or bullying. We have made clear our policy of zero tolerance on harassment. Any form of harassment is completely contrary to the military ethos; it is unacceptable and will not be tolerated. That is made explicit in directives promulgated by each of the three Services. We are determined that the principles laid down in those directives will be followed by all and that appropriate action will be taken where this does not occur.
44. Confidential Support Telephone Lines. Our policy of zero tolerance is not new. Confidential support telephone lines have been introduced (although they may not always be accessible from ships at sea) to offer completely confidential guidance across the whole range of personnel matters. They also allow personnel to seek advice on how to deal with harassment. Support lines do not undermine the individual chain of command arrangements for complaints, which remain in place.
Improvement Plans - Longer Term Initiatives
Develop a Common Overarching Personnel Strategy
45. One of the key recommendations of the Independent Review for the improvement of personnel policy was that the MOD should develop an overall strategic personnel policy and then ensure that each Service developed its own sub-strategy, policies and practices relevant to its own needs. This is a recommendation we wish to see implemented. We will produce an overarching personnel strategy with an associated action plan clearly identifying specific MOD and Service responsibilities. The Services are producing their own human resources strategies which will be linked into the overall strategy.
46. The introduction of a common personnel strategy will require care. The Independent Review recognised that some employment conditions needed to be common and some to be different. Those differences that must remain to preserve operational effectiveness will be kept; those that are not will be harmonised. The introduction of such a strategy should result in an increase in operational effectiveness, avoiding the difficulties which can occur on joint operations because of unnecessary single Service differences. We intend to introduce best practice across all three Services and secure administrative benefits through the use of common and standardised procedures. We will not, however, undermine the individual identity or ethos of each Service, but will recognise the contribution all three Services make to the provision of overall defence capability.
Better Career Management
47. The Independent Review recognised that all Service personnel were required to be mobile, that Service commanders rarely had the opportunity to select those personnel posted to them and that, accordingly, the quality and reliability of central personnel management in each of the Services was unusually important. We will continue to pursue improvements in postings policy and in career management. In an era of increasing openness, we wish to encourage a greater contribution by the individual in the development of his/her career in active liaison with career managers, so that the individual has the opportunity to fulfil his/her full potential.
48. Common Appraisal System. We need a consistent approach across all three Services to evaluation and proper assessment of performance against objectives. Although the Royal Navy and Royal Air Force have just introduced new appraisal systems, we have recognised the further advantages to be gained from having a common system across the Armed Forces. The Services have now decided to adopt an essentially common appraisal system for all commissioned officers. The new, common system will continue to provide feedback on performance and assist processes for identifying candidates for promotion, appointments and further training. In addition, it will be as simple and un-bureaucratic as possible and comply with the requirements of IiP. We aim to introduce the system in the year 2000.
49. Career Structures. Significant work has already been done in all three Services to develop future officer and non commissioned career structures, informed by the recommendations of the Independent Review, to take account of trends in the wider workplace. We are considering how to make better use of the experience of the non-commissioned other ranks. We would like to maximise the already substantial transfer that currently takes place through later commissioning - between 20-30% of the Officer Corps in all three Services is made up of late entry commissions or commissions from the ranks.
Develop An Overarching Recruiting Strategy
"We must attend to recruiting problems now, as we are overstretched."
50. We need an overarching recruiting strategy to get best value out of the almost £100M we spend each year on recruiting. This strategy must co-ordinate more closely our current recruiting effort and spread best practice. We need to ensure that sufficient numbers of young people of the required calibre are attracted to a career in the Services so that the correct balance of age, skills and expertise can be maintained within both our regular and reserve Forces. Failure would lead to a loss of operational capability.
51. We must therefore ensure that the role of the Armed Forces in the 21st century and the attractions of a Service career are widely understood across the whole community, hence the importance we attach to our initiatives on lifelong learning and equal opportunities. Our strategy will:
- emphasise the rewarding and challenging career opportunities within the Services (including the opportunity for all to gain recognised civilian qualifications);
- provide effective enquiry and recruiting arrangements, and will ensure that all applications are processed fairly and properly;
- provide a focus for all recruiting activity while maintaining the image of the three single Services - we recognise that potential recruits will want to join "the Navy", not "Defence".
Introduce New Pay System
"Pay is fundamental to the SDR otherwise we will lose our expertise."
52. Since 1971 the level of Service pay has reflected the recommendations of the Armed Forces Pay Review Body (AFPRB). Throughout the consultation process we were told that the current pay structure was inadequate to meet the future needs of the Armed Services. We share the view of the AFPRB that there is a need for a new system. We have endorsed the work which was already in hand to introduce a new pay structure whereby an individual's pay will increase within a rank in accordance with specified criteria; i.e. experience, professional qualifications and satisfactory performance. We hope to have this established by 1 April 2000.
53. Additional pay will continue to be paid to respond to the recruiting and retention needs in specialist skill groups. Evidence is being prepared for the AFPRB's consideration for a simple, flexible and better system.
Introduce Pay as You Dine
54. Currently Service personnel occupying single living accommodation pay a daily food charge, irrespective of whether or not they actually consume the meals provided. Many Service personnel feel this is unfair. The Independent Review recommended the earliest practicable introduction (with the exception, notably, of catering services in the field and in ships) of a system enabling military personnel to pay only for those meals or items actually consumed. That is Pay As You Dine (PAYD). Work is underway to determine the Armed Forces' requirements and the full implications for the MOD before preparing a request for proposals from a commercial partner. We envisage a commercial partner would be able to enhance dining facilities (particularly for Junior Ranks), and provide a range of new services such as take away or home delivery.
Review Compensation and Pension Arrangements
"A person who loses a limb whilst serving his country gets no recompense."
55. Compensation Arrangements. Concerns have been expressed about current arrangements to compensate Service personnel for injury, illness and death. These must reflect modern standards and be consistent with the legitimate expectations of Service men and women. A review of the principles underlying a possible new structure of compensation is underway. We wish to establish clear criteria for determining eligibility for awards and to set benefits at levels which are fair to individuals and consistent with good practice elsewhere. A consultation document will be issued.
56. Armed Forces' Pensions Scheme. We also intend to review the Armed Forces Pension Scheme, taking into account the arrangements for the provision of pensions in the public sector and elsewhere. Our objective will be to introduce arrangements which will meet the future manning needs of the Armed Forces in a way that is fair, cost-effective and affordable.
Military Discipline and Justice
57. A military system of justice which reflects the unique circumstances within the Armed Forces is vital: but the system must remain up to date and command respect within the Services and more widely. Reforms in the court martial system have been introduced to increase the independence and perceived impartiality of the courts and streamline their operation.
58. Tri-Service Discipline Act. We believe there would be advantages to be gained from combining the three Service Discipline Acts into a single Act. Those differences which the Services need to retain for operational reasons would be kept but reduced to the absolute minimum. That would require a complete rewrite of the legislation but would allow the Services to define their needs for the next millennium and translate them into legislation where necessary. That would be a substantial and complex undertaking which will take some years to complete, but one which we consider would be very worthwhile.
59. Membership of Courts Martial. In recognition of the value of Warrant Officers and their experience in contributing to the administration of justice, the Services will amend the eligibility criteria for membership of Courts Martial to allow Warrant Officers to sit as members of the panel where sergeants and more junior ranks (or equivalent) have been arraigned. This change requires legislation and it will be included in the next Armed Forces Bill in 2001.
Key Points - Service Personnel
For the Individual
- Lifelong Learning - all recruits to have the opportunity for personal development whilst serving and to gain civilian qualifications. Help for all personnel to pursue personal development and gain civilian qualifications during and after their service. As much service experience and as many courses will, as far as possible, be externally accredited to attract valid civilian qualifications.
- Better Single Living Accommodation.
- Improved Operational Welfare.
- Standard Leave Entitlements Irrespective of Rank.
- New Career Transition Support Service.
- Veterans' Advice Cell.
For the Family
- Establish a Service Families Task Force.
- Enhancement to Provision for Service Children's Education.
Personnel Management
- Equal Opportunities - maximise our efforts to recruit the very best, irrespective of gender, religious, ethnic or social background. Continue our efforts to make a Service career attractive to all.
Longer Term Initiatives
- Introduce an Overarching Personnel Strategy.
- Introduce an Overarching Recruiting Strategy.
- Better Career Management - common appraisal for commissioned officers.
- New Pay System.
- Review Compensation and Pension Arrangements.
- Pay As You Dine.
- Military Discipline and Justice - changes to membership of some Courts Martial, review of tri-Service Discipline Act.
Civilian Staff
Current Concerns
"Civilian staff feel that they don't matter."
60. Civilian staff in the MOD make a key contribution to our Defence effort. They undertake many crucial tasks in support of the Services and in some cases work alongside them on operations.
61. Nevertheless, many have felt that they have been undervalued over the last few years. There have been major organisational changes, people have been transferred to private sector employers, have had to move homes when work has been relocated and have faced changed expectations and management arrangements because of decentralisation and delegation. The cumulative effect has been to make people more uncertain about their future careers while at the same time requiring them to cope with 'initiative overload.'
62. It will never be right to put a stop to change. The MOD, like all employers, will continue to improve its performance and adapt to changing circumstances and operational imperatives. However, there is now increasing commitment to policies for civilian staff more attuned to the real needs of people who work for the Department and their families. There is a new focus on promoting excellence in the management of civilian staff, explaining and putting into practice good intentions which may have been expressed in the past but sometimes not properly implemented or given time to take root.
"Everything seems ad hoc, with no overall plan."
63. Our principles for the management of our civilian staff have been set out in our Civilian Personnel Management Strategy Civilian Personnel Management Strategy: An Agenda for the Next Two Years; and in the Personnel Policy Statement. Personnel Policy Statement for Civil Servants Employed in the Ministry of Defence:
- all staff in delegated management units and Agencies remain employees of the MOD, with opportunities across the Department and managed according to common principles of good management;
- MOD is an equal opportunities employer;
- MOD is committed to the Civil Service principles of recruitment on merit through fair and open competition, and promotion on merit;
- MOD will continue to invest in the training and development of staff to enable all to make a full contribution and enhance their potential;
- staff will be equipped with the skills, knowledge and awareness they need and will receive the clear and timely information which they need to do their jobs.
Source: MOD publications, 1995 and 1997
64. Those principles have been underpinned by a wide range of practical measures which aim to preserve the benefits for managers and staff of working in a large and diverse organisation, but give units and individuals more scope to develop skills and careers in ways which best suit them.
Career Management
"Some managers don't seem to care about people's careers any more - you're on your own now."
65. Over the last few years, the Department has seen important new systems for civilian management put into place which provide a framework matching best practice in other departments and the private sector. "Competence frameworks" help people identify the skills and experience they need. Revised appraisal systems help people be clear about the key purpose of their jobs, their objectives, and how they are expected to perform and develop. Annual training and development plans are produced and reviewed for individuals and business units. Assessment centres are used for promotions to the key management level below the Senior Civil Service. There is a mixed economy of job advertising and managed job changes to encourage a partnership between individuals, line managers and personnel managers in reconciling the aspirations of individuals and the needs of the Department.
Improvement Plans
66. Against this background, we have identified several areas for additional priority action:
- clearer career information and guidance;
- greater encouragement for continuous professional development;
- active promotion of practical equal opportunities measures and training which make a difference;
- reduced central regulation and more responsive flexible systems;
- better upward and downward communication.
Source: Civilian Personnel Management Strategy: An Agenda for the Next Two Years, (1997)
Career Guidance
67. We have already published Planning for Your Future: a Guide to Career Development in the Ministry of Defence (November 1997), a manual of career development guidance which gives examples of the types of opportunities available and guidance on how to assess options. That is just the beginning and further guidance and support arrangements are being developed centrally and in management units.
Lifelong Learning
68. We are determined to encourage lifelong learning. We have increased investment in a range of focused training and development programmes and improved infrastructure for training delivery. We have introduced systems through which people's training and broader development needs are kept under regular review. We have in place the full range of schemes to support day release, adult further education and external training programmes, and we are committed to expanding our involvement in interchange and volunteering programmes with links to the community at large, such as those run by the Prince's Trust.
69. To develop greater professionalism, support is being extended to an increasing number of staff studying for professional qualifications, including MBAs. Much improved arrangements and incentives for professional finance training are in place and we are considering similar measures for other functions. A number of schemes have been developed to help people achieve S/NVQs. These are being expanded. The MOD's modern apprentice scheme for industrial staff, a widely regarded model of its kind, now attracts almost 300 apprentices a year. A wide range of modules is increasingly being provided through information technology based inter-active learning packages available at an increasing number of new interactive learning facilities (ILFs) across the UK and in overseas locations.
Investors in People
70. It is fundamental that the policies and initiatives outlined above deliver results. Our commitment to the Investors in People (IiP) standards and process will be an additional spur to ensure that that happens. Throughout the Department the managers of individual units and their staff are committed to tackle by the year 2000 the gaps they have identified between fine words and best practice. IiP assessments will provide a widely respected rigorous independent check.
Equal opportunities
71. For several years we have placed a high priority on carrying out equal opportunities programmes to enhance the position of minority groups amongst our civilian staff. While some progress has been made, we are completely committed to improving equal opportunities:
- all line managers of civilian staff in the Department - Service and Civilian - will undergo appropriate equal opportunities training over the next three two years;
- action plans are being developed targeting equal opportunity measures for women, the disabled and ethnic minority staff;
- all personnel management policies and procedures have been reviewed to check that they conform with the requirements of the Disability Discrimination Act;
- we have nursery arrangements in an increasing number of locations, and are keen to continue to develop family friendly policies through flexible working and other means;
- we continue to operate harassment helplines for staff in need;
- we will implement the Working Time Directive to ensure that unreasonable demands are not made on people to work excessive hours;
- in monitoring our recruitment of civilian staff from different ethnic backgrounds, we will in future assess progress according to the composition of relevant employment catchment areas. We will pay particular attention to those areas where action is likely to be most needed and most effective.
Pay, Grading and Conditions of Service
"Pay and grading arrangements are too complicated."
72. Important steps are being taken to improve pay and grading arrangements by removing unnecessary complexity whilst providing greater flexibility for managers and staff, yet retaining fair and equitable structures. Improved and simpler performance pay arrangements were introduced last year for most non-industrial staff and a programme of further changes for both industrial and non-industrial staff is under discussion with the trades unions. We wish to see the terms and conditions of both groups of staff brought into line, wherever this makes sense and meets Departmental and staff needs, and thus move towards the concept of a single status workforce for all of our civilian employees.
"Conditions of service and working conditions do not match those of good outside employers."
73. We are determined that our staff should have a package of terms and conditions which match good practice elsewhere and meet modern expectations. Entitlements to annual, maternity and paternity leave are being improved, and work is in progress to develop an improved pension scheme which will be introduced throughout the Civil Service early in the new millennium.
74. We will also continue to make improvements to the working environment for our staff as has been achieved successfully and cost effectively in the Defence Evaluation and Research Agency at Farnborough and at the Procurement Executive complex at Abbey Wood in Bristol. The proposed redevelopment project for the Main Building will be taken forward on the same basis.
Reorganisation and Transfer of Work
"We are constantly being reorganised."
75. When issues about reorganisation or transfer of work arise, decisions are not being made because of dogma or the latest management theory. An informed pragmatic approach is now being taken, in consultation with staff and their trade union representatives, and the consequences for people, are being properly weighed and evaluated. We have learned a great deal from the extensive Competing for Quality (CFQ) programme. It has enabled the MOD to gain greater value for money from its limited budget. But, we are conscious of our duty of care to our loyal staff and are committed to looking after the interests of those affected by change in this way. To this end, we are introducing a Code of Practice for Transfer of Undertakings (Protection of Employment) (TUPE) agreed with trades unions and Industry which will ensure that the fullest attention is given to staff matters where personnel are transferred from the Civil Service.
Consultation
"Top management does not listen."
76. We will ensure that the views and opinions of our staff are sought, heard and taken into account as policies are developed and implemented. We will use the well-established procedures for consultation with staff and their trades union representatives on changes which have an effect on civilian staff interests. The constructive approach of staff and unions has been a crucial factor in helping produce major annual efficiency gains, and the procedures have served us well as the MOD has undergone the massive and widespread programme of reorganisation, relocation and reductions of the past few years.
77. Those consultation procedures are being modernised and developed, and will continue to be supplemented by the kind of surveys, formal and informal, and direct consultation with staff which have been so welcomed during SDR. Timely upward feedback, and consultation and negotiation with the trades unions as appropriate, will remain a key way of ensuring that our policy for people is properly and practically focused and brings real results. Our IiP initiatives will be helpful here.
Consequences Of Sdr Implementation
78. Consultation will be particularly important as the SDR is implemented and we take steps to ensure that the MOD continues to match the standards of a caring employer to which we are committed. There are likely to be three key areas of concern to staff:
- Relocation. A comprehensive relocation package of compensation and practical assistance, which matches best practice in the private sector, is in place to ensure that when people and their families move home and job the stress is minimised.
- Early Departure and Redundancy. Further major reductions of civilian staff are not required as a result of the SDR, but the current assessment is that in addition to plans previously announced a total of approximately another 1,400 posts are likely to be abolished over the next few years. Consequential staff reductions are likely to be considerably less and will be handled with full consultation and, as far as possible, through normal retirements and departures and adjustments to recruitment. Compulsory redundancy will be kept to the absolute minimum; appropriate compensation terms will be available, and professional outplacement services will be provided.
- Service in Operational Theatres. Arrangements are in place to compensate for the difficulties and hardships of deployment to operational theatres such as Bosnia. These are designed to be broadly consistent with those for Service personnel and will be updated as necessary to meet new needs.
Overall Outcomes and Key Success Criteria
79. The key test for our strategy and action plans for civilians, like the corresponding plans for the Services, is whether the fine words actually deliver practical common sense results and meet the legitimate aspirations which staff have expressed. We are determined to ensure that our Policy for People does just that over the next few years. Civilians, like their Service colleagues, deserve nothing less.
Key Points - Civilian Staff
Career Management, Training and Development
- Revised appraisal systems
- Better career guidance
- Investment in training and development
- Interactive learning facilities
- More interchange and voluntary programmes
- Support for MBAs, professional qualifications and S/NVQs
- Commitment to lifelong learning
Equal Opportunities
- Action plans for women, ethnic minority staff and those with disabilities
- Appropriate training for line managers - Service and civilian
- Nursery facilities increased
- Family friendly policies including flexible working
Pay and Conditions
- Simpler pay arrangements
- Proposals for streamlined grading arrangements
- Aim to bring industrial and non-industrial terms and conditions in line where appropriate
Investors in People
- Gap between departmental practice and IiP standard will be bridged
- Rigorous independent assessment
Reorganisation and Transfer of Work
- Approach based on pragmatism and value for money not dogma
- Code of Practice for any staff transferred from the Civil Service
Consultation
- Commitment to improved communication with staff and feedback mechanisms
- Continued regular consultation and negotiation with trade unions
Conclusion
"Let us ensure that as a result of SDR the conditions of service for our personnel are improved."
80. Defence depends on the people who provide it, Service and civilian. We intend to build on many of the policies we inherited but our Policy for People also pursues a series of new measures to address the issues raised with the liaison team during the consultation process. We are determined to put in place modern and fair policies which ensure that the Armed Forces and the MOD attract and retain the right people and truly reflect the society they serve.
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