MPA IV Master of Public Administration in Governance 2009

Transcription

MPA IV
Master of Public Administration in Governance
2009-2011
International Institute of Social Studies, Erasmus University Rotterdam
Organizational Change at the Ministry of Regional Development
A case study of the HRM implementation project
By
Cheryl Daal
FHRISS040917
Supervisor
Date
: Dr. Paul Breman
: 13 November 2011
This paper was submitted in fulfilment of the requirement for the Master of Public
Administration (MPA) in Governance degree at the FHR Lim A Po Institute for Social
Studies.
Organizational Change at the Ministry of Regional Development :
2011
Acknowledgement
This paper is an Individual Study Project (ISP) to complete the Masters of Public
Administration Program at the FHR Lim A Po Institute for Social Studies in Suriname in
cooperation with the Erasmus University of the Netherlands. This course was informative and
contributed to strengthening the competencies of the researcher. However it was not an easy
road to combine this course with a job and personal life. Without the support of those that are
dear to the researcher, it probably would not have led to completing this program. In this
regard the researcher would like to take this opportunity to first of all thank the management
of the Ministry of Regional Development for giving her the opportunity to complete this
course and also for their support and belief in her. Secondly the researcher thanks her
husband Martin, sister Simone and mother Joyce Hasselbaink for the moral support which
strengthened her perseverance in difficult times. Furthermore the researcher is grateful for the
backing of the members of study group of the researcher, the so called “Bardoel plus team”,
from the beginning until the end.
The researcher also takes this opportunity to thank her supervisor dr. Paul Breman for his
patience and professional support in guiding her through the process of writing this ISP.
Since this subject is the personal preference of the researcher, it gave her great pleasure to
conduct in depth research and hopefully it will be considered as a useful contribution to
future change processes in the public and private sector.
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Table of Contents
Chapter
Description of the content
Page
List of Abbreviations
5
1
Research and Design
6
1.1
Background
6
1.2
Research problem
8
1.3
Research objectives
9
1.4
Research question
10
1.5
Relevance and justification
10
1.6
Methodology
11
1.7
Limitations and scope
13
1.8
Structure of the paper
13
2
Literature review
14
2.1
Concept of Organizational Change
14
2.2
Leadership: Its important role during the Implementation of 15
changes
2.2.1
Kotter‟s analytical framework
15
2.2.2
Characteristics of Resistance
17
2.2.3
Commitment and Ownership
18
2.3
Change Strategies and Interventions
20
2.3.1
Change Strategies
20
2.3.2
Interventions
22
2.4
Consultancy
and
requirements
for
assessing
their 24
effectiveness
2.5
Summary
3
Case description HRM project at the Ministry of Regional 29
26
Development
3.1
Project deliverables and reasons to implement the HRM 29
project
3.2
The HRM project department targets
30
3
3.3
2011
The cooperation between the Ministry of Regional 31
Development and the PIU
3.4
Summary
33
4
Research results
34
4.1
HRM Change project
34
4.2
How leadership affected the change
34
4.3
The support from the consultant to leaders during the 40
implementation process
4.4
Change Strategies
41
4.4.1
Effectiveness of Interventions
43
4.4.1.1
How the consultant interacted with important stakeholders
46
4.5
Critical analysis of the HRM case
48
5
Conclusions and Recommendations
51
5.1
Conclusions
51
5.2
Recommendations
54
Bibliography
55
Annex 1
List of persons that were interviewed
59
Annex 2
List with questions
60
Annex 3
Organizational structure Ministry of Regional Development
65
Annex 4
Organizational Structure Project Implementation Unit of 67
DLGP
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List of Abbreviations
DLGP: Decentralization Local Government Strengthening Program
GoS
: Government of Suriname
HRM : Human Resource Management
IDB
: Inter-American Development Bank
PIU
: Project Implementation Unit
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1. Research and Design
1.1 Background
This ISP focuses on organizational change at the Ministry of Regional Development.
Organizational change applies to the improvement of an organization but also to a less
advantageous situation (Amburgey et al.,1993). This indicates that organizational change can
create a better situation but it also can lead to unpleasant outcomes.
Organizational change is inevitable in public sector institutions that struggle with
performance issues if they want to serve citizens in a better way. However it can be argued
that bureaucracies in the public sector of developing countries have difficulties with the
implementation of organizational changes (UNDP 2006). Reasons that were encountered are
capacity- problems,
institutional weaknesses and ignoring obstacles. Furthermore
organizations often fail to acknowledge and amend mistakes (UNDP 2006). This explains
that there are recurring issues within public sector organizations and that it is important to
learn from these experiences.
While organizational change may be required it does not necessarily mean that it will
improve the situation. In practice factors such as leadership, change strategies and
interventions can determine the change outcome. Leadership contains taking action such as
visioning; communicating the vision, diagnose the sense of urgency and establishing a
powerful team in order to create followers (Kotter 2002). Furthermore it implies fulfilling
challenging roles such as commitment, involvement, ownership and dealing with resistance.
Strategies imply thinking beforehand how to approach the change while interventions contain
taking action. “The Colors of Change framework‟ from De Caluwe and Vermaak (2003)
indicate which kinds of interventions and strategies can be used. Experts such as consultants
can provide support with strategies and interventions. Walenberg (2010) states that
consultants can add value to the performance of clients through support with interventions
and strategies. Walenberg (2010) continues saying that the quality of this support can have an
effect on change outcomes.
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Following the above mentioned concepts it can be stated that the Ministry of Regional
Development has attempted to implement an organizational change project. This change
concerned the introduction of a Human Resource Management system. Leadership, change
strategies, interventions and the contribution of the consultant all affected the change results.
Between 2006 and 2008 a HRM Project was implemented at the Ministry of Regional
Development. This project was conducted by Consultant Bureau FIX. The project was
initiated by the Project Implementation Unit (PIU) from the Decentralization Local
Government Strengthening Program (DLGP). This unit is a work arm of the Ministry of
Regional Development. Due to performance issues at the Ministry of Regional Development
the PIU decided to hire a consultant to introduce an HRM system. Project arrangements were
established between the director of the PIU and the consultant of Consultancy Bureau FIX 1.
The change contained an introduction of Human Resource Management (HRM) and
aimed at increasing the productivity, professionalism and more attention for the utilization of
Human capital. This project did not reach all of its goals, because there is still no HRM
system (Interview project manager 2011).
1
This is a fictional name.
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1.2. Research problem
Leaders that are in charge of a change process can be held responsible for certain
actions during a change process. Kotter (2002) elaborates on actions that have to be taken by
leaders to implement a successful change. However cooperation issues can occur if those
affected by the change do not really support the change. In this sense the lack of ownership
and commitment can influence the actions of these leaders. On the other hand consultants are
hired to provide professional support to leaders of organizations (Johannsmann 2007).
Johannsmann (2007) presented an overview of important criteria to assess the quality of the
contribution of consultants. The effectiveness of the consultant depends on the way in which
expertise is used during the process. This can contribute to determining the (right) change
approach and direction.
The problem is that the implementation HRM project at the Ministry of Regional
Development was badly prepared, handled and conducted and not in accordance with
important change standards that contribute to success.
The assumptions are as following:

The PIU had insufficient support from important stakeholders to proceed the project.

The cooperation and commitment of the management team at the headquarters was
poor.

Ineffective change strategies and interventions were used before and during the
change process.

The consultant was not capable of dealing with all change issues.
As a result the project goals were not achieved. Hence the ministry does not apply an HRM
policy.
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1.2 Research objectives
The objectives of this research are: to gain insights about the course of the HRM
organizational change process at the Ministry of Regional Development in order to
improve future implementation processes and contribute to management and organization
disciplines with regard to the role of concepts such as leadership, change strategies and
the interventions of the consultant in a public sector institution.
This study will analyze a case of organizational change that was implemented at the
Ministry of Regional Development. The research will address the main factors that have led
to the Human Resource Management (HRM) change results.
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1.4. Research question
The central research question is the following:
How did leadership, change strategies and interventions affect the HRM change project and
its outcome at the Ministry of Regional Development during the period 2006 and 2008?
The sub- research questions are the following:

How did leadership affect the implementation of the HRM change project at the
Ministry of Regional Development?

How did change strategies affect the implementation of the HRM change project at
the Ministry of Regional Development?

How did interventions used by consultant Bureau FIX affect the implementation of
the HRM change project at the Ministry of Regional Development?
1.5. Relevance and Justification
The launching of every new activity requires learning from previous experiences. The
case study can provide insights with regard to aspects that have to be taken into account when
there is a desire to change an organization. Besides the Ministry of Regional Development
other organizations can benefit from lessons learned.
Hopefully the findings of this ISP will contribute to better achievements in the future.
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1.6. Methodology
Desk research and an analysis of important reports were done.
Additionally six face to face interviews were conducted. Making field reports helped the
researcher to reflect on the interviews and adjust where necessary. Before starting with the
research the researcher contacted the people that were on the list to be interviewed.
Employees working for the ministry received a letter signed by the current director to ask
permission to be interviewed. Participants‟ received a thank you letter after the interviews.
Before starting with the interview the topic and the purpose of the interview were briefly
introduced. Groenendijk (2003:83) emphasizes that it is important that respondents
understand the importance of their input and the issues that will be addressed. Composing a
model based on the literature study enabled to researcher to analyze the HRM project.
Note pads were used to write answers down. The respondents were told to feel free in
expressing their opinion and emotions but had to take the talking speed into account to enable
the researcher to write the conversations down. The interviews went generally well. One of
the respondents needed some time to recall her memory, because the change process was not
so recent. This taught the researcher to send the questions one day in advance. During one of
the interviews, the researcher felt the tension, because it was a team member that was
dismissed from the team. The researcher told her that she recognized that things could have
been addressed in a better way. Generally the researcher felt that participants appreciated the
personal invitation and the treatment during the interviews. According to Groenendijk (2003
:83) cooperation of respondents can be enhanced if a pleasant environment is created by the
interviewer. The respondents were overall open and relaxed. Moreover some of the
interviewees informed the researcher that they were happy with the interview because it
enabled them to reflect on what they could have addressed differently.
Interviewees were selected on the basis of their knowledge and insights on the change
process. Therefore the decision was made to apply qualitative research. This method is
appropriate to collect data about e.g. views of respondents on events (Groenendijk 2003:93).
Quantifying numbers was not the purpose of the research and was therefore not applicable
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(Groenendijk 2003:93). Furthermore it was important to select people in different positions
that could provide specific information. The persons interviewed occupied positions such as:
Team member, employee of the personnel department, project manager and deputy director.
A disadvantage of the qualitative research is that a selected group gives its opinion about how
the change went. Thus data analysis is a reflection of the perspective of this group. For the
data analysis fictional names were used.
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1.7. Limitations and scope
The scope of this research is organizational change. However it was difficult to find
data on organizational change within the public sector of Suriname.
The former director of the Ministry of Regional Development at the headquarters and a
team member from the Commissariat Wanica promised to give an interview but afterwards
the researcher was not able to reach them. However it was striking that the views of
interviewees often had similarities.
It is also worth mentioning that the researcher was involved in the change process.
Therefore she could have had an influence on people. However the researcher managed to
limit her influence due to the fact that interviewees were generally open.
1.8. Structure of the paper
The first chapter mainly focuses on the research and design of the ISP. Chapter two
presents a series of concepts and theories. Three focuses on background information about
the actors that were involved in the HRM project, the reasons for implementing the change
and the cooperation between DLGP and the Ministry of Regional Development. Chapter four
analyses the HRM change. The ISP will be concluded with some final remarks and
recommendations in chapter five.
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2 Literature review
This chapter will address the key concepts. These concepts are guiding for the
research.
2.1 Concepts of organizational change
The concept “organizational change” applies to the improvement of the status quo of
an organization but it can also lead to the creation of a less advantageous situations
(Amburgey et al.,1993). In other words change does not necessarily improve the current
situation.
Concepts that will be used to analyze the process of the HRM organizational change
are leadership, change strategies and interventions. The selection of these concepts is based
on theory. Research showed that leaders have to help employees coping with organizational
change (Callan 2007). This determines the acceptance of change (Callan 2007). Furthermore
literature shows that leadership, strategies, interventions are dominant factors during changes.
Authors such as Kotter (2002), Cummings and Worley (2005) and Rampersad (2002)
emphasized the importance of leadership during changes. Therefore leadership is considered
to be an essential part of the success of organizational changes. Authors such as Kort (2010),
De Caluwe & Vermaak (2003) and the UNDP (2006) point out that strategies and
interventions are important during changes. During the HRM process a consultant was hired
to conduct the process. These experts can add value to the performance of their clients.
Therefore it is important to analyze leadership and the contribution of the consultant
The relationship between these concepts is that the contribution of both the leadership
and the consultants determine the change outcome. Leaders are responsible for the
acceptance of change. Consultants are experts and responsible for the ability to apply this
expertise in an appropriate way in order to determine the change direction. According to
Walenberg the contribution of consultants depends on the results that are achieved. Due to
the fact that the researcher works at the ministry for seven years the theory enabled her to
recognize recurring issues during organizational changes. This strengthened her conviction to
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select important organizational change concepts such as: leadership, interventions and
strategies as well as the contribution of the consultant.
2.2 Leadership: Its important role during the implementation of
organizational changes
This paragraph elaborates on responsibilities of leaders during organizational changes.
According to Mc Gannon (cited in Adair 2009) leadership is not necessarily related to
a position but the ability to take action. On the other hand Peter Drucker (cited in The Real
Trust) states that a leader is “a person that has such an influence on a certain group that they
are willing to follow the path that is chosen”. Both authors are pointing out that leadership is
not necessarily connected to a hierarchical position. Therefore the researcher agrees with both
authors. However leaders in (top) hierarchical positions have the power to reject certain
decisions or grant facilities. In this regard employees may be inclined to accept their
instructions during a change process. Senge (1999 :16) on the other hand argues that there is
no fixed definition for leadership.
For leadership some of the most important aspects are commitment, ownership and all
the components of the eight step model of Kotter (2002).
Below Kotter sets out which actions leaders should take to create followers during
organizational changes.
2.2.1 Kotter’s analytical framework
While reading the book “The Heart of Change” from Kotter (2002) I looked for
information that could contribute to analyzing change process. Kotter‟s eight step framework
is about preconditions to successfully implement change. The framework is useful because it
contains aspects that can be recognized in practice. The author refers to the following
conditions: pressing reasons to implement change, a strong team to guide the change, a clear
direction, communicating the final destination, removing barriers, rewarding people
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periodically when small successes are achieved, creating more change and finally
guaranteeing
that change becomes lasting . Aforementioned conditions for success are
attributed to leaders and play an important role in a change process. According to the opinion
of some authors it is easier to persuade people in the private sector of the need for change (De
Vries & Balaz in Fernandez & Rainey, 2006). Furthermore Kotter (2002: 38) points out that a
powerful guiding team with the right competencies has to be established to lead change.
Another striking point is that Kotter ( 2002: 43) emphasizes the fact that tools and skills
have to be provided to those that resist change. This could enable antagonists to support the
change process. According to Kotter (2002:104) overcoming resistance is possible if
employees are empowered. Cummings and Worley (2005:159) add to this perspective that
overcoming resistance implies the following:

“Ensuring empathy, support, encouraging participation, ensuring involvement of
important stakeholders, communicating plans and providing up to date information”.
Cummings, Worley and Kotter are stressing important conditions to implement changes
successfully but ignore the fact that poor management can affect the attitude of employees
towards change. Van Dam et al. (2008:318) emphasizes that there is a relationship between
the reaction of workers on change and the way they are managed daily.
Furthermore the sequence of the eight steps model of Kotter is a rational approach to
change and therefore the researcher considers it to be an ideal situation. Change can be very
complex and is usually not a linear process. In practice (political) power games play an
important role during changes but are not clearly addressed by Kotter. People are usually
inclined to look at their own interests. The primacy of self-interest fits in the party model
which will be discussed further in the text by Tibosch (1992). Tibosch et al., (1992:16) cited
Voets 1987, Lammers 1989 and Mastenbroek 1991 and emphasized that irrationality is in line
with the party model. In organizations people focus on their own interests and use different
(unpredictable) methods to achieve their goals. During changes one can encounter certain
problems that can impede change. Visible and invisible power can affect change outcomes. If
social networks have a negative influence on advocates of the change, this can lead to
undesirable outcomes. Leaders should have the capabilities to recognize certain issues and
deal with it properly. However, this is insufficiently addressed in Kotter‟s framework.
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Furthermore Kotter‟s 8 steps model with regard to the successful implementation of change
underlines the importance of inspiring and motivating people to contribute to change which is
not an easy journey. Challenging roles of leaders are e.g. the ability to inspire and persuade
employees and deal with emotional reactions. For this reason managing activities is not
enough to yield success during a change process (Gill 2003:308).
Kotter is not clear about creating commitment and ownership. This makes it necessary to
include the views of other authors with respect to the aforementioned components in this
chapter.
2.2. 2 Characteristics of resistance
Leaders are responsible for dealing with resistance. However in some cases leaders can
resist change if it is imposed. According to Cuyvers (1999: 173) resistance means that
arguments are used by people within an organization to oppose change. These arguments can
be either well founded or baseless. Furthermore people can start acting uninterested or use
vague reasons for not participating. Cuyvers states that there are many reasons for people to
resist change: people want to maintain the current situation, employees lack understanding
about motives or believe in reasons that were given. Furthermore resistance can also rise if
there is a lack of capacity or insufficient understanding about benefits of the change
outcomes. In the researcher‟s opinion Cuyvers is ignoring the fact that people can resist
change in a subtle manner because he only discusses visible aspects. Since power plays are
not always observable it is important to also take this aspect into account.
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2.2.3 Commitment and ownership
The lack of commitment can be an important reason for people to resist change (Gill
2003).Commitment issues can be recognized as follows:
1. “Unwillingness to look for possibilities
2. The failure of managers to take important decisions
3. Refusal or non-attendance of important stakeholders
4. The lack of ownership and responsibility for change” (Gill 2003:308).
Furthermore Gill argues that hidden agenda‟s can also influence support for change.
According to Rampersad (2002:238) it is important to create commitment among top
managers. This author also states that commitment means taking the lead. Cummings &
Worley (2005:168) indicate that commitment goes hand in hand with planning beforehand in
order for stakeholders to support the change. This implies that the lack of commitment can be
prevented. Sarcone (2009:24) clarifies the content of commitment by specifying that it refers
to accepting and embracing change. The author states that this may require leaders to attempt
to influence, convince and persuade stakeholders. According to Rampersad (2002) that
commitment contains taking the lead since promises provide no guarantees for knowing what
kind of support can be expected from important stakeholders. Taking the lead is in the
opinion of the researcher a method to sustain commitment during the entire process.
Previously Cummings and Worley (2005) determined that it is important to analyze support
in an early stage. Rampersad (2002) elaborates on this aspect by emphasizing how
commitment can be maintained. Furthermore Rampersad states that it can be challenging to
maintain commitment because during the change process participants can discover that they
will lose power or other benefits if the change is implemented. An aspect that is not
addressed by Cummings, Worley and Rampersad, is which strategies can be used to create
commitment.
With regard to the “Colors of Change” Framework of De Caluwe and Vermaak
(2003) it can be argued that the yellow approach2 provides the opportunity to deal with power
issues. This approach can be used to analyze important forces in the field beforehand
(Cummings & Worley 2005: 125). Leaders can determine strategies in order to persuade
2
See page 22
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certain groups in a preliminary stage. If there are doubts about the feasibility (due to the lack
of support among e.g. politicians) it may be wise to postpone the plan.
Another aspect that is also not clearly addressed by Kotter is how to build a sense of
ownership. Some scholars are stressing the fact that if a change process affects a certain
group directly it should be avoided to give them the impression that the change is imposed
(Canadian International Development Agency 2000:8). Subsequently this institution states
that a lack of ownership can lead to the failure of change (Canadian International
Development Agency 2000:7). If the drive and leadership comes from outside a change
process, it will not end as desired. Furthermore this institution reveals the following: those
that are affected by the change must determine important dimensions of the change and the
road that has to be followed. Therefore outsiders such as e.g. donors must not dictate
components of the content and the road that has to be followed (Canadian International
Development Agency 2000). Another source is more specific about methods that can help to
build ownership. The central point is that ownership includes involvement which creates a
sense of solidarity. Methods that were mentioned are installing committees with different
responsibilities such as scheduling plans, brainstorming, evaluating methods, writing
documents and designing deliverables (Elizondo-Montemayor et al. 2008:3)
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2.3. Change strategies and interventions
This paragraph starts with views with regard to change strategies. Subsequently,
interventions will be addressed. Consultants can provide support to leaders with change
strategies and interventions. If interventions are conducted by consultant they are responsible
for the action that is taken.
2.3.1 Change strategies
Kort (2005: 19-20) cited three views regarding change strategies.
1. “According to Worley and Cummings a change strategy includes planning as to how
change will be achieved.
2. From the perspective of Pettigrew a change strategy contains the intension to use a
certain method to implement change.
3. Cozijnen and Vrakking are of the opinion that a change strategy is a conscious and
deliberate contemplation to maximize success and reduce resistance during the
change”. Evaluating the aforementioned definitions, it becomes clear that change
strategies comprehend thinking beforehand about how the change will be approached.
De Caluwe and Vermaak (2003) developed a framework that can be used to analyze
strategies3. It consists of 5 colors namely yellow, blue, red, green and white. The yellow
approach regards pressing for change through power and constituting coalitions. The blue
print thinking is corresponding with making a detailed plan. This approach resembles the
fact that people will behave as rational individuals during the process. Therefore it ignores
resistance. The yellow approach takes politics and interests into account which are
disregarded by the blue approach. In essence the green approach focuses on yielding results
through learning and developing competencies of individuals during a change process. De
Caluwe & Vermaak (2002) explain that the red print thinking contains making change
attractive for people through interventions such as incentives and special attention for needs.
Finally the white print thinking is in line with facilitating spontaneous changes. The authors
3
See page 22 &23
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De Caluwe and Vermaak (2003) developed a multi dimensional framework. The framework
can be useful for experts such as consultants.
Moreover Twynstra Gudde (2008) is pointing out how strategies can be evaluated.
According to this author it is important to assess strategies as follows:
1. “Are strategies working and is an adjustment desired?
2. Which color is dominant?
3. Is a combination of colors desired?”
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2.3.2 Interventions
While methods refer to what was done, interventions focus on how the consultant
interacted with the client (Cullen et al. 1981:181:56). Kort (2005:21) cited the authors
Worley, Cummings, De Caluwe and Vermaak with regard to interventions. Firstly Worley
and Cummings in Kort (2005:21) defined interventions as “a series of activities or events to
enhance the effectiveness of an organization. In other words deliberate actions have to be
taken to alter an organization or subsidiary. Secondly, De Caluwe and Vermaak (cited in Kort
2005:21) emphasize that interventions contain bringing strategies into practice”. Evaluating
the aforementioned definitions it becomes clear that interventions contain deliberate actions
to improve the current situation of an organization.
Below the colors of Change framework will be presented with optional interventions.
The Colors of Change Framework of De Caluwe and Vermaak (2003)
Interventions

Establish
coalitions

Pitfalls


-Conflicting
Facilitate

protected people.

Perspectieves about change colors
Mediation
Power politics plays a role
Equal interests has to be brought
together
Create Win -win situation
interests
-Lose-lose
situation
and
negotiation

Making analysis

Manage
monitor
and
as
a
project

Organize pleasant
events

Assessment
pay
and


Change is a rational process
Clear steps, goals and results has to be
 formulated
together
 Planning
and
monitoring
Seeks common
interesrest
and Use of power and influence



-Neglects all
concerns
and
resistance
-Ignoring
Provide incentives to people to contribute
to change
Reward desired behavior
HRM approach
power
issues,
and
conflicts.
-Cautious
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with
sanctions

Training

Management

development


Coaching
Create ways for people to learn and
strengthen competencies
Organizational development interventions
are used
Ignores the
fact that not
everyone is
willing and
capable
to
learn

Empowerment

Self
steering
teams




Laissez faire
Change is fostering energy
A natural and evolutionary process
Obstacles have to be removed
Open
communication
De Caluwe and Vermaak (2003: 58)
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2.4 Consultancy and requirements for assessing the quality of their
effectiveness
This paragraph will address expectations from consultants and how they can approach
changes.
According to Walenberg (2010), consultants can provide support to leaders by means of
strategies and interventions. The quality of this support determines the effectiveness of
consultants. Therefore it is necessary to assess expectations of advisors which are considered
to be a yardstick to measure the effectiveness of events. In this regard Walenberg (2010:15)
cited Hrivnak and Halfhill in Boros (2009) as follows: “The effectiveness of consultants is
the capability to produce or bring about a desired outcome or result. It is contingent upon
goals and the agent, method, process or “way” the goal is achieved, as well as the context and
circumstances in which achievement is reached”.
Furthermore Walenberg (2010: 8) made a distinction between an expert and process
approach. The first approach contains that of the consultant who is responsible for the
methods and results with regard to organizational changes. The second approach holds clients
responsible for the change. However another source reveals that the lack of capacity can lead
to undesired change outcomes in the public sector (UNDP 2006:8). In order to assess actions
conducted by consultants it is necessary to include expectations from these experts.
Johannsmann (2007:13-14) is specific about identifying good advisors during a change
process. This author argues that a good advisor does not provide answers, but asks questions
to bring them to the surface. This author mentioned expectations that clients should assess. A
few components that were mentioned are:
1. “Skills to change an organization
2. Acting diplomatic
3. The ability to maneuver between political obstacles
4. Knowledge about political relationships
5. Insights into human nature
6. Clear and good analysis
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7. Vision
8. Empathy
9. Creativity
10. Divide details for key aspects
11. The ability to acknowledge weaknesses, learn and correct shortcomings
12. Impartial
13. Provide autonomous advise ”
The aforementioned aspects are indeed important and useful. The researcher agrees with
the author that autonomous advice is important..
An important dimension that the researcher would add to the list of Johannsmann is that
an advisor should be a people‟s person and also not conceited. It is important that consultants
go among the people in order to listen, observe and connect with them. There is a possibility
that aforementioned components are included in the dimension self refection but the
researcher prefers to be very specific about it. Furthermore advice has to provide feedback
and coaching to clients.
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2.5 Summary
This ISP will address four aspects. These are leadership, change strategies
interventions and the contribution of the consultant during the change process.
Leadership means taking action in order to create followers. Using the eight step
model of Kotter enables scholars to analyze how successful change is conducted by leaders.
Ignoring the elements can result in unwanted change outcomes. It provides insight in actions
that leaders need to take during a change process. Yet it is not considered to be an exhaustive
list of activities. Hence other activities can be added to the list in order to prevent and
overcome resistance. Additional components in this regard are: ownership, involvement,
listening, empathy, communication and commitment of (important) stakeholders. Moreover
the researcher‟s opinion is that leaders should have the capabilities to recognize and deal with
power games.
The second aspect deals with change strategies. Strategies contain thinking
beforehand about the general change approach without being concrete about action steps
(Kort 2005). Through the colors of change framework an interpretation is given about
possible approaches. Yellow takes politics and interests into account. Blue approaches the
change process rationally by means of a plan but ignores resistance. Red focuses on making
change attractive. Green is in line with changing the organization by means of training and
development. White contains facilitating unrehearsed changes.
The third aspect namely interventions are considered to be an outflow of strategies.
The colors of change framework presented an overview of possible interventions.
Interventions are in line with important actions aimed at the realizations of the ultimate goal
which is improving the effectiveness of the organizations.
Furthermore consultants are experts who can be hired by clients. Therefore these
experts have to comply with certain expectations. Therefore it was necessary to include
requirements of these experts. Another aspect is that consultants can use the expert approach
during changes or the process approach. Both can also be used.
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Literature review enabled the researcher to select critical factors that resulted in the
HRM change outcome. Therefore the focus will primarily be on applicable key elements.
These elements will be used to analyze the HRM change process. The model is composed by
the researcher and primarily based on Kotter‟s, Johannsmann and De Caluwe and Vermaak‟s
theories. Below are the variables that will be used to analyze the HRM organizational change.
The components are interrelated.
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Analytical model
Leadership:
1. Responsibilities:
commitment,
ownership,
communicating the
vision, dealing with
resistance,
establishing a
powerful team .
2. Effectiveness of
leadership
Change strategies:
1. Characteristics:
making change
attractive, learning
approach, using a
plan, using power
to take political
interests into
account
2.Effectiveness of
strategies
Interventions :
1. Characteristics :
training and
development, listing
actions , motivation
events
2 Effectiveness of
interventions
Contribution of the Consultant:

Acting tactfully

Insights in Human
nature

Maneuver between
political obstacles

Ability to change the
organization

The influence of the
advisor on events
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3.Case description HRM project at the Ministry of Regional
Development
This paragraph elaborates on the HRM project deliverables, reasons to start the HRM project
its targets and the working relationship between the Ministry of Regional Development and
the PIU.
3.1 Project deliverables and reasons to implement the HRM project
This paragraph elaborates on the HRM project agreement between DLGP and Consultant
Bureau FIX. The reasons for starting up the project will also be addressed.
According to a task manager, the HRM consultant was hired to introduce an HRM system.
Due to the problems encountered, the initial plan had to be adjusted.
The project was implemented during 2006 and 2008. The agreement between the PIU and the
consultant contained the following:
1. “Developing an HRM vision.
2. Designing policy documents that consist of HRM procedures, instruments and the
structure.
3. Facilitating the mission /vision workshop and the communication with regard to HRM
on the departments.
4. Scanning the organizational culture and presenting the results
5. Providing training on change management, personal leadership and HRM concepts.
6. Implementing at least one pilot project with HRM.
7. Evaluating the HRM project to assess how HRM was working.
8. Organizing
a
seminar
to
inform
other
stakeholders
on
HRM
and
decentralization”(Bendt 2006: 7).
In order to implement the decentralization process, it was important to implement an
HRM organization change process. Project managers encountered obstacles, such as
encouraging people in districts to implement financial decentralization (Interview Project
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manager 2011). Furthermore the consultant mentioned that the ministry would not be able to
reach its strategic goals if HRM was not introduced (Bendt 2006:4). Therefore the project
was launched to improve the performance of employees at the Ministry of Regional
Development.
Several activities were planned but the consultant only succeeded in producing policy
documents, implementing a mission/ vision workshop in Wanica and a few other workshops.
Although organizational development and training constituted a large part of the plan, these
activities were not implemented ( Interview Project manager 2011).
3.2. The HRM project department targets
The personnel department at the head office was involved and the Commissariat in
the district Wanica. The HRM pilot project would be implemented in Wanica. The personnel
department at the head office is the heart of the ministry and responsible for preparing
personnel matters. This department is in contact with all the departments of the districts.
Therefore it was important to change the management system at the heart of the ministry.
Personnel departments in districts lack the authority to hire personnel, take final
decisions on promotions and dismissals. As such is the case, it is the personnel department at
the head office that receives instruction of the Director to make implementation orders on
personnel matters. The point of departure was that the HRM policy would not work in
districts if the heart of the organization, namely the personnel department at the headquarters
did not change its management system. The aforementioned reasons explain why the
personnel department had to be involved in the HRM project. Employees from this
department were involved in workshops, planning and policy making activities.
District commissioners are leaders of departments from Regional Development in the
districts. These departments have limited hiring authority. Only district administrators are
hired by the PIU in cooperation with the headquarters and the district. Districts are not
entitled to hire personnel to fill in other vacancies. According to a project manager the
ministry never adopted the idea to decentralize personnel matters. The latter project was
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implemented by a previous consultant. Noticeable is that the PIU focused on headquarters,
but planned to implement a pilot project in Wanica with limited authority.
3.3 The cooperation between the Ministry of Regional Development and the
PIU
The Ministry of Regional Development is a bureaucracy that contains a hierarchical
organizational structure4 (Ministry of Regional Development 2011). The management team
consists of the minister, directors and deputy directors. Formally the minister bears political
responsibility and the director the administrative responsibility. As such the PIU functions as
a work arm of the ministry (Ministry of Regional Development 2006). In the approved
organizational structure the Ministry of Regional Development is headed by two directors.
One director is the general manager and the other one is the Director of Agricultural
Development. During the HRM project the latter director was not yet appointed in this
position. After the implementation of the HRM project the ministry adjusted the structure by
including the Directorate that was previously mentioned.
“The Decentralization Local Government Strengthening Program is approved by the
Government of Suriname (GoS) and focuses on the strengthening of the local government.
The fundamental idea was improving democracy within the districts and establishing a
financial decentralization. Furthermore this program aimed at making laws to enable them to
manage their district by means of an independent financial policy. Institutional strengthening
is also part of this program. The funding is from the IDB “(Ministry of Regional
Development 2006: 6).
In 2001 a project unit called DLGP was established to implement the decentralization
program which consisted of a PIU under the supervision of Mr. Ahmadali who is currently
the director of the PIU and supervisor of several task managers who are responsible for
different components. Each manager has a counterpart, a civil servant at the Ministry of
Regional Development. The director of the PIU reports to the IDB and the director at the
4
See Annex 3
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Ministry of Regional Development 5. The HRM consultant FIX was hired and steered by the
PIU. The task manager responsible for the coordination of this consultancy, worked together
with a resource team that consisted of three employees working for the personnel department
at the headquarters and one district secretary from the district Wanica. During the maternity
leave of the PIU project manager, there was a temporary replacement. The role of the
management team at the headquarters was to take the lead and implement the change at the
headquarters. However, insufficient action was taken by this team to create followers. They
did not take enough responsibility. Therefore the plan with regard to changing the personnel
department into an HRM department failed.
5
See Annex 4
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3.4 Summary
The HRM project aimed at improving the performance at the Ministry of Regional
Development. The PIU is a work arm of the ministry and was the initiator of the project.
However it was the management team at the headquarters that had to take action in order the
make the change happen at the personnel department.
Furthermore the project targets were primarily the personnel department and the
district commissariat in Wanica.
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4 Research results
This chapter focuses on the key findings of the HRM change.
4.1 HRM change project
This chapter will elaborate on the impact of leadership, change strategies and
interventions on the HRM change.
In order to understand the case it is important to make it clear what the position is of the
interviewees. Mrs. Q and Mrs. U are from the PIU. Mrs. L and Mrs. G are members of the
resource team from the personnel department. Mrs. Y is also a member of the personnel
department. Mrs. K is a member of the management team at the headquarters.
4.2 How leadership affected the change
For the purpose of this paper the main focus will be on the leadership that was
demonstrated by the management team and PIU. The management team at the headquarters
was at that time in charge of the ministry including the personnel department. On the other
hand the PIU attracted and steered the consultant. Therefore it is important to include their
contribution in the analysis. In the opinion of the researcher they were responsible for
creating commitment and ownership before the implementation.
In practice several interpretations were encountered by the researcher with respect to
the need to change. According to the PIU the headquarters was responsible for
communicating the sense of urgency and vision. Urgent facts contain an inevitable reason to
implement the change. Project managers believed that a HRM system would contribute to
better outcomes for the decentralization process. These managers encountered motivation and
cooperation issues among civil servants in the decentralization process. However, the PIU
stated that decentralization was considered by the personnel department to be an issue of the
districts. Furthermore, the importance of new systems was not acknowledged by this
department. The personnel department also had doubts about chances for a successful HRM
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project and often referred to political interference. Employees of this department wanted
changes in the following areas: equality, better working conditions, codes of behavior and an
improved management system. Thus the PIU and the personnel department had different
starting points. Employees of the personnel department gave their own interpretation with
regard to the sense of urgency, because leaders at the headquarters failed to communicate the
need to change. According to the deputy director the need to change was not communicated
with the personnel. According to all interviewees the management team did not see the
change as a priority. If the reasons to change are not determined by those affected by the
change, the researcher does not consider it to be realistic to expect efforts in this regard. Mrs.
U was of the opinion that the change direction was not determined by the headquarters. This
manager emphasized that the need to change has to be based on a vision which was not
formulated by the headquarters. The researcher agrees with this view because the lack of a
vision is similar to taking action without having a purpose. Attempts to persuade the
personnel to accept the new route and plans were not applied.
Furthermore a resource team was established. The PIU requested representatives of
the ministry and hoped that the process would be implemented smoothly. This request was
based on what the PIU experienced in other projects where management teams were not
cooperating effectively. The resource team gave input to the consultant about issues at the
personnel department. Although the resource team had to mobilize the management team and
personnel to participate, they lacked decision-making power. Leaders failed to establish a
powerful team with clear cut tasks and responsibilities. This team was motivated to contribute
to the change but got the impression that the management team did not fully support the
change. Mrs. G said: without support of the management team there is no commitment
because they were not participating. The director and minister were often absent during
meetings. Deputy Directors participated but made it difficult for the resource team to create
and sustain followers. Mrs L. said: In the beginning the change process was going smooth.
Suddenly something influenced the process negatively and affected the energy of the people.
She is pondering …….Oh yes, new employees were recruited without having an appropriate
educational level. This strengthened the belief of the personnel department that leaders were
not taking the change seriously. This researcher thinks that the interviewee meant that
favoritism was observed by employees. A manager stated that the government provides
opportunities for politicians to hire supporters. Therefore it can be expected that high officials
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with political links will resist drastic changes such as introducing HRM. HRM includes using
clear procedures and a profile to hire personnel. Thus introducing HRM could result in giving
up power. According to Mrs. Q, the management team at the headquarters was not fully
against the change. Mrs. Q said: the importance of the change process was acknowledged, but
fundamental proposals of the consultant were rejected. Mrs. K wanted to hire employees on
the basis of a profile. Nevertheless it was admitted that job profiles were not used
consistently. This high official turned out to be interested in new appraisal methods. The
reasons for not adopting clear hiring procedures had obvious to do with hidden agendas. In
the opinion of the researcher HRM will only work if procedures are used consistently.
Moreover it is possible that double standards will also be applied in the use of other
instruments.
It was difficult for the resource team to motivate subordinates to participate due to the
attitude of top managers and the disbelief that there was a lack of political will to introduce
HRM. An antagonist Mrs. Y said: if top managers are not participating what do you expect
from subordinates? From the perspective of the researcher this person wanted to see
exemplary behavior of supervisors.
Furthermore there were tensions within the team. One of the members, Mrs. L said
that not everyone agreed with who was appointed as the coordinator. During the process one
of the members was asked not to participate any longer, because she was suspected of being
an antagonist of the change. This conflict was brought under the attention of the PIU.
According to project managers the PIU was constantly trying to solve problems and
issues that were in fact the responsibility of the headquarters. A top manager was of the
opinion that she also addressed some issues during the change. This manager said that she
called the head of the personnel department and showed empathy when people from his
department made fun of him after a workshop of the consultant. However she was of the
opinion that the consultant did not address the issue with the entire personnel department.
This gives the impression that the consultant was seen as the one that had to solve the
problem. This top manager mentioned that she was responsible for watching how the change
was going, providing documents with comments and checking if deliverables were achieved.
Since the personnel department was under her supervision removing road blocks also should
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have been a part of her responsibilities. When an antagonist of the personnel department did
not want to participate the PIU took action . Mrs. Y said: a folder was developed for me by a
representative of the PIU to promote my department. In the opinion of the researcher the PIU
tried to motivate employees but was not entitled to give orders. Motivating employees and
giving orders was in fact the responsibility of the leaders at the headquarters. However,
according to Mrs. U there was a lot of resistance but project managers attempted to maneuver
between all the tentacles in order to reach project targets. According to Mrs. K the consultant
was in contact with the PIU and not with the management team. From her point of view this
could have influenced the change negatively. However Mrs. K revealed that the management
team could have been more rigid to achieve results. The PIU was of the opinion that the
management team knew what was expected from them during the change. In the opinion of
the researcher the management team had to be coached by the consultant, but they had to be
willing and open to accept feedback.
Since the PIU initiated the change, creating commitment was their responsibility. A
feasibility study was not executed before the implementation process to assess if there was
enough support for the change. Mrs. U said that there was a lot of skepticism about the
feasibility of the HRM project. Instead of ensuring that there was enough support before the
HRM project started the focus was on creating commitment during the process. Political
interests were therefore most likely underestimated. According to Mrs. U the PIU was at that
time unaware of the organizational culture at the ministry and the political pitfalls and could
not respond in time to bent the straws. The UNDP (2006:24) emphasizes not to underestimate
cultural aspects during organizational changes. Another manager mentioned that she realized
afterwards that support for change can go beyond the commitment of a management team
within an organization. In this regard Mrs. Q made the following remark: If we want HRM we
need top managers to support ... No wait .We need the commitment of the president and the
political bigwigs because they decide who has to be recruited. According to a previous HRM
official who works for the Ministry of Justice and Police it is possible to implement HRM
without support of political parties and the president (Interview Police Commissioner 2011).
This official received support for HRM by means of data. Figures and facts were used to
convince high officials of the impact that poor performance had on strategic goals.
Furthermore Mrs. U was of the opinion that creating awareness among important
stakeholders was considered to be a better option to get support for the HRM change.
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When the project started it was formally approved by the director at the headquarters.
Mrs. Y. said: they supported the change with their mouths but not with their hearts. Weber
emphasizes that if managers do not support change they will not be able to work towards
influencing people (Trice & Beyer 1991). In practice insufficient efforts were made by the
headquarters to create followers. Documents were not provided with comments. This makes
it clear that there was a lack of commitment. Another example in this regard is the reaction of
the minister on the results that came out of the SWOT analysis. According to Mrs. Q the
minister focused on the weaknesses, but ignored the opportunities. In the opinion of the
researcher she got the impression that he was not willing to look for possibilities which is
also a form of poor commitment. According to Mrs. Q leaders at the headquarters resisted the
change because they disliked the mirrors that were presented by the consultant during a
workshop. She continued saying that the SWOT analysis 6 was not positive and therefore not
accepted by the management team at the headquarters. However Mrs. Q said: The consultant
did not make anything up but used the input of the personnel department that came out of a
workshop. The top managers reacted negatively and said that the components of the SWOT
were observable at other ministries and asked the consultant to be more specific. In the
opinion of the researcher this is not a valid argument to reject weaknesses. However
resistance can also occur if people are not convinced of the need to change. Although the
consultant mentioned that the ministry would not be able to achieve its strategic goals, this
was not supported with data. The information was apparently not convincing enough. In the
opinion of the researcher the consultant had to foresee resistance and could have asked the
PIU data on performance issues. It is unclear what the PIU did in this regard. In the opinion
of the researcher there is a possibility that the minister would have acted differently if the
performance data was visualized.
According to Mrs. Q, the HRM change started due to the fact that the government of
Suriname had an arrangement with the IDB. This arrangement emphasized that the
decentralization project had to be implemented without delays. Institutional strengthening
was also part of the decentralization program. Therefore HRM was considered by the PIU as
a priority of the government of Suriname. The researcher is of the opinion that this is not a
good basis to create ownership within a ministry. Furthermore Mrs. U mentioned that civil
6
An Analysis of Strengths Weaknesses Opportunities and Threats
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servants were not motivated to contribute to the decentralization program. Therefore HRM
was considered to be the solution. Although there were attempts to involve the headquarters
to contribute to designing the HRM consultancy project this failed. This means that neither
top managers nor personnel contributed to formulating the need to change. Therefore formal
leaders did not take enough responsibility to make the change process a success. During the
process the PIU attempted to create ownership, but this had no effect on important
stakeholders. A project manager mentioned that it seemed as if the change was imposed. In
the opinion of the researcher there was a lack of eagerness to participate, because the idea and
the content of the change were not invented by those affected by the change. Therefore
insufficient efforts were made to make HRM a success. The researcher is of the opinion that
the lack of commitment and ownership were decisive factors that created resistance.
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4.3 The support from the consultant to leaders during the implementation
process
The consultant mentioned in his report that he planned to provide a Change
management training to the ministry. However this goal was not achieved (Bendt 2006: 7).
This would have enabled leaders to deal with change issues in a better way. Furthermore the
consultant was steered by the PIU and not the headquarters. According to a member of the
management team, the consultant did not provide assistance in dealing with the change.
Moreover the steering role was in the hands of the PIU. Therefore the relationship with
leaders at the headquarters was not intensified. If the consultant had the opportunity to give
feedback, coaching and advice to these leaders it could have resulted in another outcome. The
contribution of the consultant with regard to providing support to leaders was not observed by
leaders.
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4.4 Change strategies
In this paragraph the colors of change framework will be applied to analyze change
strategies and interventions. An overview of this framework is presented on page 22 & 23.
According to Mrs.U, Consultancy Bureau FIX advised the PIU in initial meetings to
involve the personnel department at the headquarters. Only focusing on the district would not
work. It was necessary to discuss the new role of the headquarters and districts with regard to
an HRM system. Organizational development was advised because training and development
were required to make the HRM system work (Bendt 2006:3). The report of Consultancy
Bureau FIX mentioned that the first activity was to organize a seminar and meeting with the
personnel department (Bendt 2006:3). The starting point was that if people understood the
sense of urgency and had a view of the future situation this would contribute to a changed
behavior. With this statement the researcher got the impression that the consultant did not
take cultural aspects into account. This view changed due to the fact that a project manager
revealed that the point of departure of the PIU was that HRM was similar to establishing a
system. The consultant used this information to formulate action steps.
According to consultant FIX the initial plan was adjusted. He admitted that
organizational development had to be included in the plan or else HRM would not become a
success. This suggestion was approved by the PIU. Organizational development aimed at
developing employees and the organizational culture at the same time. According to Mrs. U
organizational development was planned but could not be implemented because the situation
that was encountered during the change process was too insecure and complex for such a
large project. Awareness was considered to be a better option to approach the change. The
researcher got the impression that this manager wanted to work on gaining support for the
change by making people aware of the importance of HRM. Due to cooperation issues that
were encountered it was obviously seen as a better option to implement series of training at
another time. Another striking point was that the consultant questioned the aspect of political
support for the change but did not take dealing with interests of important stakeholders into
account in his approach. Organizational development focuses on developing the culture of an
organization, but it is unclear about dealing with interests of important stakeholders during
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change. According to Tibosch et al.(1992) people focus on their own interests in an
organization. Caluwe and Vermaak stated that changing an organization requires dealing with
power issues and taking interests into account. This is in line with the yellow approach. In the
same report the advisor listed the factors that could create resistance in the case of the
ministry, but was unclear about dealing with those aspects (Bendt 2006:5). In the opinion of
the researcher the consultant acknowledged that (political) resistance had to be taken into
account. Yet the focus was mainly on training and development which is in line with the
green approach. Due to the fact that the consultant diagnosed cultural weaknesses within the
ministry he considered learning and developing the culture to be the best way to approach the
change. Developing the culture can contribute to improving the culture. However the strategy
was ineffective because dealing political interests, getting access to important stakeholders
and resistance were not clearly addressed by the consultant. Furthermore there is also a
possibility to approach the change by means of triggering important stakeholders to
participate which is in line with the red print thinking. Providing incentives is part of this
approach. In the opinion of the researcher the consultant could have planned to organize a
lunch and at the same time take the opportunity to get access to important stakeholders. The
consultant mainly focused on approaching the change through training and development.
Dealing with power issues, gaining access to stakeholders and making the change attractive
are also possible approaches. The researcher is of the opinion that the consultant did not
make use of all options of the Caluwe and Vermaak which could have improved the
effectiveness of the consultant.
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4.4.1 Effectiveness of interventions
In order to improve the effectiveness of the organizations the consultant planned
several activities. After analyzing the activities it became clear that there were two plans. The
first plan consisted of analyzing documents, holding a meeting with important representatives
at the ministry and one meeting with the personnel department namely “All noses in the same
direction from PZ to HRM” (Bendt 2006).
The second part focused on policy making, a pilot project of HRM in the district
Wanica and organizational development. The components of organizational development
were training activities, a capacity analyses, culture scan and formulating a mission and
vision. These activities where formulated by the consultant and approved by the PIU. It was
the intention to implement the plan in 150 days. All activities were summarized in a schedule
This is similar to the blue print approach of De Caluwe and Vermaak (2003). In other words
action steps were documented and checked in sequence. According to Mrs. Q the consultant
complied with arrangements in the terms of reference. From the researcher‟s perspective the
planning was too strict which gives the impression that the consultant expected the people to
behave rationally during the process. Mrs. L said: I had the impression that the consultant got
fed up with the unbending behavior of the personnel and expected another outcome. This is in
the opinion of the researcher in line with the lack of knowledge about human nature and
acknowledging that resistance is a natural process.
The combination of training and development is in accordance with the green print
approach of the authors De Caluwe and Vermaak. These activities were planned, but not
implemented due to the lack of support. From the researcher‟s point of view cultural
development takes time but was strictly planned. On the other hand important pitfalls were
most likely underestimated by the consultant. Organizing activities strictly is according to
Caluwe and Vermaak not being aware of the fact that not everyone is capable and willing to
participate. Although the consultant planned to implement a capacity analysis the researcher
got the impression that the aforementioned risks were not taken into account. Mrs. U was of
the opinion that the content of the project was too large. The researcher therefore believes
that projects have to be divided into smaller parts. As such is the case, the outcome of
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evaluations has to be used to organize future actions. The consultant approached the change
rationally by planning series of activities. This is in line with the blue print approach. The
way in which activities were planned did not give the impression that pitfalls such as the lack
of support and capacity problems were taken into account. Therefore the researcher considers
planning cultural development in 150 days to be unrealistic. Furthermore the consultant did
not take the opportunity to include activities that focused on making change attractive for
people by proving incentives to participate. This is in line with the red print thinking. In the
opinion of the researcher the consultant did focus on all possible options that constitute the
“Colors of Change framework”. Change can be complex and requires using a combination of
colors. Pitfalls also have to be taken into account. Although the researcher believes that
cultural development was required to implement the change activities cannot mainly focus on
this aspect if there is a lack of support of important stakeholders. Gaining support,
constituting coalitions and making the change attractive are considered to be better options of
dealing with the change. Cultural development was therefore less effective, because support
from important stakeholders at the ministry was required.
Moreover a member of the management team Mrs. K. mentioned that an important
workshop was organized by the consultant where decisions were taken to determine the
future steps to put HRM in place. Two high officials from the headquarters participated. The
outcome of the workshop would be documented and presented to the management team.
However it was unclear for the member of the management team what had happened to this
document. According to Mrs. Q the management team failed to provide documents of the
consultant with comments. From the researcher‟s perspective the intervention did not work,
because the consultant did not have the minister on his side. The minister and director did not
participate in this workshop. In addition Mrs. K revealed that political interests were at stake.
Mrs. K also mentioned that the Ministry of Home Affairs is in charge of establishing
personnel policies within the government and was making little progress with public sector
reform. While the HRM change was being implemented at the Ministry of Regional
Development, the Ministry of Home Affairs was responsible for implementing public sector
reform. Activities such as changing the personnel law were part of the public sector reform
process and were not completed. In the opinion of the researcher leaders are responsible for
policy making and have changes in their own hands. Therefore they are not necessarily
depended on other institutions to change the performance of their organization. However,
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Mrs. K admitted that there were indeed political concerns and that the consultant could not be
fully blamed for the poor implementation. In the opinion of the researcher the consultant
attempted to bring all noses in the same direction by asking the contribution of key persons.
This is in line with the yellow approach namely increasing the coalition. This intervention
had less effect since the consultant did not have the minister on his side. The minister was not
approached beforehand to look for feasible HRM options. However according to Wijnen et
al.(1996) there is a chance that people have blocked channels.
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4.4.1.1 How the consultant interacted with important stakeholders
Due to the actions of the consultant events did not always produce the desired
outcomes. In order to present a view of the effectiveness of actions that were undertaken by
the consultant a few cases will be presented. The consultant presented a diagnosis of the
organization to the management team at the Starzz Hotel. From the perspective of the
researcher the consultant wanted to convince the minister of the sense of urgency, but the
Minister did not react enthusiastically. Mrs. Y said did you see how the minister reacted at
Starzz Hotel? Subsequently the consultant gave an example of the impact the change would
have had which was obviously not accepted. A personal experience is that the consultant said
that the minister could only hire his nephew in the future if he complied with a job profile.
Obviously the consultant tried to increase the coalition by confronting the management team
with facts. However, this act was untactful because it was a sensitive issue to discuss in
public. As was stated previously by a high official political interests with regard to hiring
personnel influenced the change results. According to Wijnen it is important to work towards
a broad political network and build up good relationships during changes (Wijnen et al.
1996:133). This untactful behavior is in line with not having insights about human nature. In
addition the consultant did not attempt to maneuver among political obstacles. Mrs. Q said
after this meeting the change ended in a deadlock. According to Wijnen et al. (1996:133)
confrontation is an option. In the opinion of the researcher the situation was already unstable
due to cooperation issues. Therefore it was not the right way or moment for discussing the
case about the nephew. The consultant confronted people with facts, but neglected the fact
that political interests were also an issue. On the other hand it was generally clear that HRM
was not a priority of the management team because they were not taking the lead. Although
the consultant analyzed the organizational culture beforehand he was obviously unable to
deal with political interests. The intervention of the consultant was ineffective due to the fact
that it seemed as if he did not realize the impact his remark with regard to nepotism would
have.
Although the consultant analyzed the organizational culture beforehand he gave the
impression that he was unable to deal with the interests of important stakeholders. Instead of
looking for feasible solutions, which is in line with the yellow approach, the consultant
46
2011
created a distance between himself and important stakeholders. According to Mrs. U the
consultant FIX had a harsh line, looked down on people working for the public sector.
Furthermore Mrs. Q was of the opinion that the consultant was not flexible. Although the
consultant was approached several times to take political concerns into account this was
refused. This manager continued saying that a consultant can listen to political concerns
without throwing his expertise over board. In the opinion of the researcher this person is an
advocate of the yellow approach. Mrs. Q made the following remark: the consultant had to
change the organization but was not able to change his behavior. The impression was given
that the yellow approach which contains dealing with interests of important stakeholders was
considered to an effective way of dealing with support issues.
In the district of Wanica a mission-vision workshop was implemented. During this
event the consultant made some unpleasant remarks about the district commissariat. Mrs. K
mentioned that she was informed that the consultant had made shocking remarks about the
apparatus of this district commissioner. Although the consultant offered his apologies to the
district commissioner, the commissioner was still offended. From the perspective of the
researcher little effort was made by the consultant to get access to important stakeholders of
the ministry. Building trust and good relationships are considered to be important in creating
followers. Although there were lots of comments about the communication skills and
approach of the consultant this was not acknowledged by Mrs. Q as the decisive factor for the
failure of the HRM project. The lack of commitment of the top managers and the attitude of
employees were seen as important dilemmas. Although the workshop was an important event
the consultant created aversion which was not conducive for getting support from
stakeholders.
47
2011
4.5 Critical analysis of the HRM case
This paragraph will briefly address a metaphor about the political culture in the public
sector of Suriname and key findings of the HRM case.
Imagine that there is “a sea shipping world” that contains 17 ships. The 17 ships
represent the ministries in Suriname (Ministry of Home Affairs 2008:11). An attempt to bring
about a change within the sea world failed, namely public sector reform .The captains that are
appointed to manage these ships are nominated by political parties. These captains are part of
one alliance which contains several political parties with their own supporters and agenda.
Captains are appointed for a period of five years. There is a lack of transparency and clarity
about recruitment and promotion criteria (Bendt 2008: 12-13) . The captains want to prolong
their period on board and facilitate these staff members. Successive captains adopted this
habit. Supporters are seen as (potential) voters and can be protected by these captains. In
some cases subordinates may feel powerless to tackle poor performance. Enthusiastic
employees and leaders are inclined to get discouraged and start acting “laizes faire or
uninterested” (Bendt 2008:14). “The organizational culture influences the management and
leadership style (Bendt 2008). The aforementioned culture affects the changing ability at the
public sector.
The implementation of the HRM project provides evidence of the aforementioned
culture. According to the UNDP (2006) it is important that norms and values of organizations
are taken into account before implementing change. With this metaphor the researcher
explains that politics has an influence on the organizational culture within the public sector.
Furthermore the general view is that different governments in Suriname adopted the behavior
of hiring supporters without being critical about their qualifications and performance. In other
words politicians are seeking votes (Peters 2001) and desire to facilitate loyalist within the
public sector without being critical about job profiles and output. This influences the
personnel policy within the government. Leaders with political links are inclined to facilitate
their own pool of supporters and protect them. Therefore nepotism could have been an
obstacle for decision makers at the headquarters of the ministry to adopt HRM principles
during the HRM project. The impression was given that politicians wanted to protect their
48
2011
interests. Furthermore these cultural aspects were either underestimated are insufficiently
taken into account by the PIU and the consultant. According to Peters (2001: 63) trust in
political institutions and governments is declining due to suspicion with regard to the role of
corruption and favoritism in decision-making. However if the electorate is dissatisfied with
the performance of a certain government, they can decide not to vote for them during the next
elections (Cummings & Worley 2005).
Aforementioned analysis makes it clear that political interests also had an effect on
the HRM results.
Referring to the analytical model on page 28 which is based on theories of Kotter
Johannsmann, De Caluwe and Vermaak the findings with regard to leadership, strategies and
interventions were as follows:
1. Responsibilities of leaders are ensuring that there is commitment, creating ownership,
determining a sense of urgency, communicating the vision, dealing with resistance
and establish a powerful team. Leaders at the headquarters did not convince their
subordinates of the reasons to change and failed to establish a team with decision –
making power. The management team at the headquarters was suspected from
serving political interests by attracting loyalist. It appeared that they did not play an
active role in dealing with resistance and participated poorly during change activities.
These leaders also failed to determine and communicate an HRM vision. Furthermore
the PIU initiated the project and was mainly responsible for creating commitment and
ownership. The impression was given that the PIU underestimated the impact that
politics could have on the HRM project. Therefore it can be stated that this unit
insufficiently examined the organizational culture and possible pitfalls. The mistake
that was made by the PIU was to start the project without sufficient guarantees that
leaders at the headquarters would support the change. During the project they still did
not succeed in gaining enough support and input for proposals. Thus before and
during the project the leaders at the headquarters did not demonstrate commitment
and ownership. Leaders at the headquarters and the PIU were less effective with
regard to the aspect of leadership.
49
2.
2011
Elements in the model of the researcher with regard to strategies contain thinking
beforehand about how the change will be implemented. This includes making the
change attractive, organizing development interventions, using a plan and taking
power politics into account. The focus was mainly on developing the
organizational culture. Although the lack of political will was predicted the
strategy did not include dealing with this aspect. Therefore the strategy was
considered to be poor. Furthermore the consultant did not use all possible options
within the framework of De Caluwe and Vermaak. Therefore the approach was
considered to be too limited to deal with resistance and gaining support of
important stakeholders.
3. Components in the aforementioned analytical model with regard to interventions
addressed training and development, organizing encouraging activities, providing
incentives and using a plan. Events in the HRM case focused on implementing
training and development strictly but ignored pitfalls such as capacity issues and
support. Before the consultant had the opportunity to implement the training and
development plans the project ended. Therefore gaining support, constituting
coalitions, looking for feasible options and making the change attractive are
considered to be better options for dealing with the change. Planning cultural
development was not effective because support from important stakeholders at the
ministry was not yet achieved. Furthermore the process was not conducted by the
consultant in accordance with important standards. These are acting tactfully, insight
in human nature, maneuver between political obstacles and the ability to influence the
organization advantageous to change. During events the consultant did not
demonstrate attempts to get access to and support from these stakeholders. Therefore
it appeared that the expertise and behavior of the consultants were not conducive for
achieving results.
50
2011
5 Conclusions and Recommendations
This paragraph will address final conclusions and recommendations.
5.1 Conclusions
The central and research- questions were:
How did leadership, change strategies and interventions affect the HRM change project and
its outcome at the Ministry of Regional Development during the period 2006 and 2008?
The sub- research questions were the following:

How did leadership affect the implementation of the HRM change project at the
Ministry of Regional Development?

How did change strategies affect the implementation of the HRM change project at
the Ministry of Regional Development?

How did interventions used by consultant Bureau FIX affect the implementation of
the HRM change project at the Ministry of Regional Development?
The answers to the sub –research questions are:

The effect that leadership had on the change is that the leaders at the headquarters did
not take sufficient actions to achieve change results. The protection of political
concerns and the lack of commitment and ownership were observed during change. In
addition the support of the leaders at the headquarters was not examined firmly.
Although the PIU encountered commitment and ownership issues before the
implementation they preceded introducing HRM without the contribution of the
headquarters. The PIU failed to implement a solid study to determine support of
important stakeholders. Due to the lack of ownership and commitment the
51
2011
management team at the headquarters refrained from creating followers during the
change process.
Furthermore the consultant was not hired and steered by the
management team at the headquarters. Although this was the responsibility of the PIU
it influenced the commitment and ownership of managers at the headquarters. Leaders
of the PIU did not foresee that this construction would not yield success.

Secondly the strategies were considered to be too rational because they mainly
focused on developing the organizational culture but ignored dealing with power
issues. The learning approach is in line with the green print thinking. Although
political support and resistance were predicted this was not included in the change
approach. Therefore the yellow print thinking which takes the interests of important
stakeholders into account had to be included in the approach to the change.
Furthermore the consultant did not use all possible options to achieve positive results.
Making the change attractive namely the red print thinking was also not included.
Strategies were therefore insufficient in order to work towards positive results.

Thirdly interventions were a reflection of the change approach and also did focus on
gaining support and getting access to important stakeholders. They mainly focused on
training and development which is in line with the green print thinking. Before the
consultant had the opportunity to implement the training and development plans the
project ended. Therefore aspects such as gaining support, constituting coalitions and
making the change attractive were considered to be better options of dealing with the
change. Cultural development was not effective because support from important
stakeholders at the ministry was not yet achieved. Thus the yellow print thinking of
looking for feasible options for politicians had to be part of the plans. Furthermore
activities were planned to strictly which is in line with the blue printing and therefore
important pitfalls were most likely underestimated. The risk of the blue print thinking
is ignoring resistance. Furthermore making the change attractive for politicians
namely the red print thinking was also a possibility that could be included in the
planning of activities. In addition the consultant did not conduct the process in
accordance with important requirements that are attributed to these experts and even
created a distance between himself and important stakeholders. More importantly the
consultant did not have the minister on his side.
52
2011
Based on the aforementioned the answer to the central question is the following:
The contribution of leaders and the strategies and interventions of the consultant were
considered to be inadequate for the change and did not result in the desired change outcome.
Additionally it became clear that nepotism influenced the HRM project, because leaders at
the headquarters resisted remarks about that aspect and proposals that posed a threat to
political interests.
53
2011
5.2 Recommendations
Organizational change starts with recognition of leaders because they must carry out
the change. In order to prevent leadership issues at the headquarters it is important to analyze
if the leaders recognize the need to change. Furthermore it is important to determine if they
are enthusiastic to implement the change. If leaders demonstrate enthusiasm in preparing
and organizing the change, it will most likely lead to better outcomes. Therefore clear roles
and responsibilities have to be attributed to these leaders. Moreover the hiring and steering
role cannot be mainly in the hands of the PIU. Another suggestion is to analyze the
organizational culture firmly to prevent surprises with regard to nepotism and other cultural
aspects.
If the PIU initiates the HRM project it is important to set out a strategy to persuade
politicians through data with regard to the importance of HRM. Before the project starts the
consultant also has to determine feasible options for important stakeholders with political
links. A suggestion is to introduce exempted position for a limited group of loyalists.
Furthermore it is important to include an assessment in the hiring procedures of how the
consultant will deal with political commitment and resistance.
Moreover activities cannot be planned strictly without taking human nature into
account. Therefore it is important that interventions include dealing with resistance, support
issues and political obstacles.
In addition the consultant should prove his ability to maneuver between political
obstacles and act diplomatically. In order to determine the capabilities of the consultant
during the process it is preferable that a test phase is included in the plan. On the basis of
these outcomes further arrangements should be planned.
54
2011
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2011
Annex 1
List of persons that were interviewed
1.
2.
3.
4.
5.
6.
Task manager Civil participation
Task manager HRM and Finances
Deputy Director Regional Development
Employee of the personnel department/ HRM team member 1
Employee from the personnel department/ HRM team member 2
The Head of Personnel Care
7. Police Commissioner / former HRM manager from the Ministry of Justice and
Police
59
2011
Annex 2. List with questions
Mrs. Q and U
1. Waarvoor was u verantwoordelijk tijdens het veranderingsproces?
2. Is er vooraf een diagnose `m.b.t. de haalbaarheid van de implementatie van HRM
binnen de organisatie vastgesteld?
3. Was er draagvlak voor de invoering van HRM? Kunt u dat motiveren?
4. Wie van het ministerie van RO stond achter het plan HRM in te voeren?
5. Werd er op het ministerie actief geparticipeerd om de verandering te
bewerkstelligen?Kunt u het motiveren?
6. Werd deze verandering als noodzakelijk ervaren door het ministerie? Kunt u dat
motiveren?
7. Welke factoren hebben geleid tot de uitkomsten van het veranderingsproject?
8. Op welke wijze heeft weerstand tegen het verander initiatief zich gemanifesteerd?
Wat werd gezegd.
9. Wie was verantwoordelijk voor het doorvoeren van de verandering?
10. Wat was de rol van het team dat was ingesteld?
11. Waarop is gelet bij de samenstelling van het team?
12. Welke resultaten zijn tijdens de verandering geboekt?
13. Zijn er trainingen verzorgd om de verandering te leiden?
14. Waren er ook succes momenten? Zo ja zijn die gevierd?
15. Hoe werd omgegaan met bezorgdheden van medewerkers tijdens het
veranderingsproces?
16. Welke belemmeringen waren aanwezig om de verandering door te voeren?
17. Welke stappen zijn ondernomen om de belemmeringen weg te nemen?
18. Waren de medewerkers geïnspireerd om mee te gaan met de verandering? Kunt u dit
motiveren?
19. Welke rol hadden afdelingshoofden tijdens het proces?
20. De consultancy moest gaande weg worden bijgesteld waaraan heeft het gelegen?
21. Was u tevreden over het werk van de consultant? Kunt dit motiveren?
22. Welke lessen heeft u geleerd uit het verandertraject?.
23. Welke interventies zouden gepleegd moeten worden om een dergelijke verandering
succesvol te doen plaatsvinden.
60
2011
HRM Verandering
Mrs. L and G( members of the resource team en medewerkers van de afdeling
personeelszaken
1. Waar was u voor verantwoordelijk tijdens de verandering?
2. Waarom was de verandering noodzakelijk?
3.
4.
5.
6.
Was er draagvlak om HRM in te voeren op het ministerie? ?Kunt u dit uitleggen?
Hoe heeft u de communicatie met de consultant ervaren ?
Was u tevreden over het werk van de consultant? Kunt u dit motiveren?
Kunt u vertellen hoe directie en personeel hebben geparticipeerd tijdens het
veranderingsproces?
7. Vond u de veranderboodschap motiverend ? Kunt u dat uitleggen ?
8. Welke voordelen zou die verandering voor u hebben?
9. Hoe verliep het veranderingsproces? Wat ging goed en wat ging verkeerd?
10. Welke factoren zijn van invloed geweest op het mislukken van de verandering?
11. Was er weerstand tegen de verandering? Zo ja hoe is er met deze weerstand
aangepakt?
12. Wat was de algemene opvatting over de verandering? Wat werd er oa gezegd?
13. Hoe vaak werd de veranderboodschap gecommuniceerd met de medewerkers?
14. Welke bijdrage heeft u geleverd aan de verandering?
15. Tegen welke belemmeringen liep u aan in het team tijdens het
veranderingsproces?
16. Geloofde u in de verandering? Kunt u het motiveren?
17. Wat was de rol van afdelingshoofden tijdens dit proces?
18. Wie was verantwoordelijk voor het doorvoeren van de verandering?
19. Waarvoor was het team dat was ingesteld verantwoordelijk?
20. Heeft het team successen geboekt. Waaraan heeft het gelegen?
21. Hoe heeft u de samenwerking binnen het team ervaren? Waarom
22. Welke interventies waren volgens u nodig om deze verandering door te voeren?
61
2011
HRM Verandering
Vragen Mrs. K (een Onderdirecteur)
1. Stond de directie achter de verandering? Waarom wel en waarom niet?
2. Wie had de leiding over het doorvoeren van de HRM verandering?
3. Welke taken waren toebedeeld aan de leiding tijdens het veranderingsproces?
4. Welke acties zijn door de leiding ondernomen om verandering door te voeren?
5. Aan welke activiteiten heeft u deel genomen?
6. Welke factoren hebben geleid tot de uitkomsten van het veranderings project?
7. Was de directie betrokken bij het nadenken over de richting van de verandering?
8. Wat is uw mening over de wijze waarop de consultant de verandering heeft geleid?
9. Waaraan heeft het gelegen dat de verandering geen succes is geworden?
10. Wat voor voordelen zou de verandering met zich mee brengen?
11. Had de leiding behoefte om HRM in te voeren? Waarom wel of waarom niet?
12. Wie was verantwoordelijk voor het aangegeven van de verandernoodzaak?
13. Wie was verantwoordelijk voor het omgaan met weerstand?
14. Waaraan heeft het gelegen dat de HRM verandering van Bendt niet is gelukt?
15. Hoe was het contact tussen de directie en de consultant?
16. Wie heeft de inhoud van het veranderingsproces vastgesteld?
17. Wist de directie wat van ze werd verwacht tijdens de verandering?
18. Waren er bezwaren tegen de verandering?
19. Welke bezwaren waren er ?
20. Zijn de knelpunten bespreekbaar gemaakt?
21. Was er weerstand tegen de verandering vanuit de directie ?
22. Was er weerstand vanuit het personeel tegen de verandering?
23. Hoe is daarmee omgegaan?
62
2011
HRM Verandering
Mrs. Y ( een tegenstander en medewerker van personeelszaken
1. Wat was uw rol tijdens het veranderingsproces?
2. Welk voordelen zou de veranderingen met zich mee brengen?
3. Hoe heeft u geparticipeerd tijdens de verandering? Kunt u dit motiveren?
4. Geloofde u in de verandering? Kunt u dit motiveren
5. Welke factoren hebben geleid tot de uitkomsten van het veranderingsproject?
6. Er was een team ingesteld tijdens het proces? Wat was de rol het team?
7. Wat vond u van het team? Motiveer?
8. Wat werd in de wandelgangen gezegd over de verandering?
9. Stond de directie achter de verandering?
10. Welke maatregelen zouden getroffen moeten worden om veranderingen vlot te
doen verlopen ?
63
2011
Politie Commissaris / Oud HRM functionaris
1.
2.
3.
4.
Welke ervaringen heeft u met HRM in de publieke sector
Hoe heeft u HRM kunnen introduceren op uw departement?
Wat is het resultaat geweest?
Hoe werkt het nu?
64
2011
Annex 3
Organizational structure Ministry of Regional Development
Source policy document 2011-2016
65
2011
Annex 4
Organizational structure Project Implementation Unit of DLGP
66
DLGP-II-Project Unit
2011
Permanent
Secretary
Permanent
Secretary
Managing Director
MRD
MOF
Bas Project
Ahmadali
Deputy PS
Implementation
Unit
MRD
Task Managers
TF-MRD
IDB
Project Implementation Unit (PIU)
Supporting
Unit
FA &
Proc
Head
Thesauri
TFMOF
Civil Work &
CTU
Capital Investment
Office
Mgr
Martin
Blenman
Planning,
Budget
& Fin, Adm
Mahender
Pershad
Citizen
Participation
Iris Gilliad
ICT, WAN, LAN, egvt
DIU
CP
ICT
Syst
Mgr
Riaz Ahmadali
Districts
Project Mgr
Project Mgr
Project Mgr
Project Mgr
Project Mgr
Martin
Certified
Districts
Mahender
New Pilot
Districts
Bas
New Pilot
District
Iris
New Pilot
District
Riaz
ICT-Projects
Nickerie,
Wanica,
Para, Comm,
Mar
Stage L-1, L-2
Stage L-2
Stage L-2
Coronie,
Sar’ca, Br’do
Sipaliwini
Paramaribo
Service
windows
NE and SW
Connectivity’s:
(5)
(3)
Atjoni
(1)
Stoelmanseiland
(1)
Chinesie Kondre
Nationwide
District-LAN
Apoera
Nation-WAN
Explanatory Notes: the concept of the organzational structure of PIU for the remaining implementation period.
MD is responsible for the overall Management of The Program DLGP-2009-2014 and for the management of Sipaliwini as
Project, including all components in coop with the Task Managers and the DMT.
67
Task Managers are responsible for the implementation of their components in all 10 districts and for the management of
one or more districts as a Project, including all components in cooperation with the Task Managers, and the DMT’s
The Operations take place in close cooperation with the IDB and MRD

MPA IV Master of Public Administration in Governance 2009

Transcription

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