Developing a Resilient HR Function in the French Public Service

Annex A. Case studies of public service responses to the three transitions in selected EU Member countries

The digital transition in Austria: Attracting specialised profiles

The digital transformation of public administration depends in part on its ability to recruit and retain qualified, specialised digital talent. In Austria, this transformation has highlighted the limitations of a human resources management system that has struggled to keep pace with rapid technological change. The Austrian case illustrates the challenges faced by many countries: attracting specialists in a competitive labour market, modernising job and competency frameworks, and offering adequate career prospects.

For two decades, the Austrian public administration has faced growing difficulties in attracting IT specialist profiles. This trend has resulted in a marked decline in the number and quality of applications for these positions, directly affecting the ability of administrations to fill positions that are essential for the development and maintenance of public digital systems. The problem became particularly acute around 2015, when there was on average only one applicant per vacancy.

Three main factors explain this relative loss of attractiveness. First, recruitment procedures and the precise calculation of salaries remained time-consuming, slowing down the hiring process. Second, salaries offered were on average EUR 1 000 lower than those in the private sector, reducing the competitiveness of the public sector. Finally, the career and job frameworks in use dated back to the 1990s and no longer corresponded to the realities of digital professions. These three factors combined made the public administration less attractive, despite the relevance of the missions and projects on offer.

The last of these factors, the mismatch between existing frameworks and reality, affected around 1,200 positions out of a total of 145 000. The high degree of job specialisation and the rigidity of career paths limited the ability to integrate emerging profiles. Insufficient mapping of jobs related to digital technologies made it more difficult to recruit specialists to meet constantly changing needs.

In 2022, the administration adopted new guidelines and a compensation plan for digital specialists. The aim was to accelerate recruitment, update job descriptions and improve pay transparency by including salaries in vacancy notices. This approach was intended to enhance the attractiveness of the public service and modernise the digital job management framework.

Digital jobs were reclassified into five categories and three levels for greater clarity and coherence. The categories include systems engineer, software engineer, DevOps and security specialist, IT generalist, and agile expert. The system comprises eight grades, which can correspond to junior, intermediate or senior job levels depending on the nature of the job. While grades determine base salary, levels define characteristics shared across the administration. Each job description specifies the missions, skills, tasks, recommended level of experience and associated responsibilities.

Infographic 1. Example of specialised digital job description in Austria: System Engineer

Source: Information provided by the Austrian Federal Chancellery.

In addition, remuneration is now structured to offer predictable progression linked to experience. Each position is associated with a salary scale defined by grade, with four steps reached after one, four and nine years of service. This salary scale limits the pay gap with the private sector to EUR 400 for the most senior IT employees. The system ensures clear and transparent progression while taking length of service into account.

Finally, the visibility of opportunities has been enhanced by the introduction of a single recruitment portal. This portal centralises job offers, specifies the profiles sought and displays salary information. By increasing the visibility of job offers, this type of practice contributes to strengthening the attractiveness of the public service. Promotions remain possible only through applications for higher-level position (intermediate or senior), which can promote internal mobility while clarifying career prospects.

A key element of this policy has been the appropriation of this framework and salary scale by all HR departments in administrations and ministries. This supports horizontal use of the framework and enables the effective structuring of a digital workstream within the Austrian public service.

The reform has already led to an increase in the number of applications and a reduction in the use of outsourcing. Job offers now receive an average of between five and seven applications, which makes it possible to meet needs while remaining flexible in the face of rapid developments in the IT field. A biennial evaluation aims to ensure that the guidelines remain up to date and that new jobs are added to better meet the needs of federal administrations.

The green transition in Italy: The Mille Esperti programme to attract specialised profiles into the public administration

The green transition requires public administrations to mobilise cutting-edge technical skills capable of meeting regulatory, technological and environmental requirements. Specialised engineers, environmental management experts, sustainable architects, statisticians and biologists are becoming essential to the planning, evaluation and implementation of complex projects, particularly in the context of National Recovery and Resilience Plans (NRRP). This is the case in Italy, where the attractiveness of the public service remains limited for such profiles. This is mainly due to strong competition from the private sector, particularly in terms of remuneration. In addition, regional disparities can exacerbate these recruitment difficulties, with some regions struggling to find experts in fields such as electronic engineering or biology, illustrating a persistent mismatch between public policy needs and the actual supply of skills in the labour market.

In response to these skills shortages, the Italian government launched the national Mille Esperti (“One Thousand Experts”) programme to strengthen implementation of the NRRP. The programme aims to temporarily recruit 1 000 experts in key disciplines to accelerate environmental assessments, licence issuing, public procurement and the monitoring of projects linked to the green transition. The initiative generated strong interest, with nearly 62 000 applications, notably due to remuneration levels above the national average. This rapid mobilisation helped to reduce certain administrative delays and to initiate the digitalisation and simplification of certain procedures. However, the temporary nature of the contracts raises questions about the sustainability of outcomes and the transfer of know-how to permanent teams.

HR departments played a dual role. On the one hand, they had to make strategic decisions that were critical to its success, influencing circulation of know-how, operational effectiveness and the speed of implementation. The allocation of experts was a key aspect. Approaches varied across different levels of government: some regions centralised skills within the regional administration, others opted for direct deployment to municipalities or adopted a hybrid model.

On the other hand, HR departments had to address challenges related to the diversity of recruited profiles. They had to seek to facilitate experts’ adaptation to the administrative culture, manage pay gaps between territories and organise spaces for collaboration with incumbent public servants. The most successful experiences show that structured support, combining mentoring, mutual learning and skills transfer, yields better long-term results than the immediate assignment of experts to urgent tasks, which meets short-term needs but hinders the long-term retention of skills.

The Lazio region, for example, used the Mille Esperti programme as a lever for strategic skills planning. From the outset, Lazio closely monitored recruited profiles, comparing anticipated needs with actual utilisation. This analysis revealed significant discrepancies: civil engineers, initially identified as the third recruitment priority, were ultimately the most sought-after in terms of number of days worked. This finding highlighted an underestimated structural need and made it possible to adjust priorities for future recruitment. Beyond operational performance, Lazio also used Mille Esperti as an HR experimentation laboratory, refining selection methods, testing onboarding models, and developing arguments to retain experts over the long-term, with a view to encouraging their entry into the public service. This approach shows that a one-off programme can serve as a springboard for the HR function to build a strategy for attracting and retaining rare talent.

The Mille Esperti experience offers several lessons for the HR function going forward. First, the HR function plays a key role not only in recruitment, but also in designing onboarding pathways and establishing bridges to permanent employment. Second, data from mission monitoring are invaluable for guiding workforce planning and anticipating emerging needs. Finally, sustainably addressing shortages in technical profiles requires considering a degree of alignment between public sector working conditions and those of the private sector, while also emphasising the societal impact of public service missions.

The managerial transition in Estonia: Leading and managing structural change

The ministerial reorganisation carried out in Estonia in 2023 illustrates a government’s capacity to implement major structural change with significant managerial consequences in a relatively short period of time. This reorganisation was driven by the emergence of the green transition and the need to reduce silos in policy design as national priorities, as well as by growing expectations regarding administrative agility and responsiveness to major cross-cutting issues.

In order to better address these priorities, five ministries were reorganised into two new institutions: the Ministry of Climate and the Ministry of Regional Affairs and Agriculture. The redistribution of responsibilities and staff affected around 700 jobs, representing nearly a quarter of all public servants across the ministries concerned. The reform took effect within three months, on 1 July 2023, imposing a tight schedule for a change of this magnitude. Furthermore, the process was driven primarily by a sense of political urgency rather than a detailed roadmap. As a result, the reorganisation was not subject to a preliminary impact assessment or a unified change management framework.

Beyond its effects on administrative structures, the reform also had a far-reaching impact on organisational culture and the experiences of public servants. Merging administrations with distinct administrative cultures and ways of working can, in the short to medium term, lead to a loss of bearings and, in some cases, reduced motivation. A sense of organisational belonging, which is an essential driver of engagement, can be undermined when the organisation rapidly changes its identity or mission. This is particularly significant in a relatively decentralised public employment management system where ministries have a high degree of autonomy.

In such a context, the role of HR professionals is critical. However, HR departments were mainly mobilised around administrative and technical tasks, such as supervising staff transfers (managing the transfer of public servants between ministries, despite a lack of preparation, sometimes incomplete data and the absence of reliable or harmonised HRISs), and co-ordinating administrative operations (resolving technical complications related to inconsistent identification codes, identifying past performance appraisals, updating employment contracts).

Other aspects could have been strengthened. For example, the establishment of an inter-ministerial HR working group demonstrated the value of cross-functional approaches, yet it remained ad hoc and insufficiently resourced. Furthermore, although some individual meetings with public servants took place, these initiatives were sporadic, uneven and insufficiently structured at the central level. As a result, support for employees, both psychological support and clarification of career prospects, was fragmented and reactive due to a lack of preparation, appropriate tools and sufficient resources.

The reform cannot be considered complete. The evaluation of the reorganisation indicates that, by the end of 2023, many public servants still perceived the process as ongoing, with several functions unclear and daily adjustments required. Challenges related to team integration, organisational identity and day-to-day operations persisted, showing that the effects of the reform are long-lasting. This unfinished nature highlights the importance of long-term support from all HR function stakeholders.

The lessons learned from this experience show that the success of structural transformation depends on close links between senior leadership, middle management and HR departments:

• First, leadership teams must have a clear vision that can guide action beyond organisational changes alone. They play a decisive role in bridging administrative cultures, maintaining constant dialogue in a context of uncertainty, and ensuring coherent action in a decentralised system. Their ability to combine strategic direction with human-centred support relies on strong change management and crisis communication skills.

• Second, middle managers, at the interface between strategy and operations, are essential for translating guidance into concrete actions and maintaining team engagement. Their position enables them to detect weak signals from the field, react quickly to obstacles and maintain motivation on a daily basis. However, their effectiveness depends on the support they receive, particularly in terms of change management training, internal communication and the sharing of tools. Without such reinforcement, they risk becoming a weak link between leadership and teams.

• Finally, HR departments must be recognised as strategic partners, not just technical ones. Their role was constrained by a lack of preparation and tools, confining them to reactive tasks. Better preparation for future reforms requires strengthening co-operation with leadership teams and middle management and establishing common systems to support public servants more effectively.

This reorganisation has enabled Estonia to better prepare for potential future reforms of a similar nature. Discussions are underway to establish a centralised change management system, strengthen support for middle managers and address cultural integration with the same rigour as structural reorganisation. These measures would help build a more resilient administration, better prepared to manage future transitions.

Developing HR practices in Ireland through the introduction of a framework for HR professionals

In Ireland, the modernisation of the HR function is seen as a strategic lever for improving public service performance, in line with the Better Public Services Transformation Strategy 2030. The government has entered into a partnership with the Chartered Institute of Personnel and Development (CIPD), the body responsible for developing HR professional standards and skills in the United Kingdom and Ireland. This initiative aims to strengthen HR practices across the public service by aligning HR policies and processes with professional standards and equipping HR professionals with the skills, behaviours and knowledge needed to meet the challenges of an ever-changing world of work. The ambition is to create a community of HR professionals capable of anticipating and steering transformation and workforce change and of setting an example across the public service.

This formal partnership between the Irish Department of Public Expenditure and the CIPD was launched in March 2024 and is ongoing. Its governance is based on a strategic committee responsible for guidance and an operational group responsible for implementation. The programme is structured around four complementary areas of work aimed at strengthening the HR function within the Irish public service: the People Impact Tool, the HR Policy Review, the People Standards Framework, and the CIPD Learning component.

People Impact Tool

The People Impact Tool is an online capability assessment tool that enables organisations to assess the employee experience within the HR function, its alignment with operational needs and its future readiness. The results provide a baseline assessment of HR capabilities, in line with HR professional standards as set out in the CIPD’s Profession Map.

In May 2024, the Irish public service rolled out the People Impact Tool as part of its initial work programme, with the objective of establishing an HR capability baseline and gaining critical insights into the sector’s strengths, challenges and strategic focus areas. The People Impact Tool was disseminated by the CIPD in the form of a short survey, to employees, line managers, top managers and HR teams in 24 government ministries/agencies. The results were analysed by the CIPD and recorded in a report published in June 2024.

The report highlighted several strengths of the HR function, including strong HR expertise, adaptability to change, positive HR engagement and communication within organisations, and robust training and development structures. The survey identified areas for development, including recruitment and human resources, workforce planning, digital transformation and workforce analytics. In addition, each department/organisation received a report detailing its individual results, with a comparison to the public service as a whole. The CIPD also collaborated with ministries on an in-depth analysis of organisational strengths, challenges and areas for development, with recommendations for the future.

Review of HR policies

In July 2024, the second area of work focused on a review of HR policies to assess the alignment of centralised HR policies in the public service to the changing workforce needs. The review examined the scope and nature of all public service HR policies (77) and assessed their relevance, format, accessibility, consistency, language and style. It identified inconsistencies in policy design, style and structure and made recommendations to incorporate flexibility, inclusivity and digital readiness into policy design. The review also highlighted the need to make policies more accessible by adopting an employee-centred approach, using clear language, avoiding jargon and improving consistency in style, length and format.

In January 2025, a public service HR policy working group was established to follow up on the review's recommendations. Key actions include developing an HR policy toolkit and template for to decision-makers, modernising existing HR policies, an AI tool for HR policy queries, and creating an HR practices platform to give HR teams and employees access to policies, tools and resources. This work is ongoing and is expected to be completed in mid-2026.

People Standards Framework

The third area of work was launched in September 2024. It focused on developing an HR standards framework for the Irish public service. This framework aims to harmonise HR practices across the public service and to define the skills, knowledge and behaviours required for HR professionals to succeed in their functions at all stages of their careers, from early career to strategic HR leadership.

Its development followed a multi-stage process from initial design to its official launch in May 2025, incorporating design phases, workshops, collective validation, sponsor reviews and CIPD approval. Each design and approval stage included 16 workshops, with 12 participants in each workshop, overseen by senior management sponsors from the senior public service. Twenty HR managers and 345 HR employees from 32 departments contributed to the development of the standards. These standards reflect the operational realities of HR in the Irish public service, with a strong emphasis on developing current and future strategic HR capabilities. The extensive consultation and broad participation of the entire public service HR community helped to ensure the framework’s legitimacy and prepare for its adoption.

The Framework is based on three pillars. The “Core Knowledge” pillar defines knowledge related to HR practice management, understanding organisational behaviour, data-driven practices, digital transformation and change management. The “Core Behaviours” pillar encompasses expected attitudes, such as ethical practice, professional courage, inclusion, and commitment to continuous learning. Finally, the “Specialist Knowledge” pillar describes nine areas of expertise, ranging from strategic talent management to organisational development, equality and inclusion, and employee engagement. Each of these areas offers opportunities for specialisation and career progression across four skill levels, enabling HR professionals to plan their careers while meeting the needs of administrations.

Infographic 2. Example of core knowledge from the People Standards Framework: Digital transformation and people

Source: CIPD and the Government of Ireland (2025), People Standards Framework.

The People Standards Framework is designed as a professional development tool that can be used by both HR professionals and managers during recruitment, onboarding, and performance appraisals. Although it has only recently been rolled out, it has strong potential to harmonise practices, clarify expectations, and strengthen professional recognition. Its success will depend on the ability to integrate it into management processes and regularly update it to reflect changes in the profession. It could thus become a key lever for positioning the HR function at the heart of the transformation of the Irish public service. The tool is currently being adapted and adopted across the Irish public service by local authorities, the health sector and the police.

Learning through the CIPD

The programme’s final area of work focuses on aims operationalising the People Standards Framework by providing access to relevant resources, and training and development opportunities, to support the development of HR skills and the career paths of HR professionals. In partnership with the CIPD, a public service knowledge platform was designed and launched on the CIPD website. It gives all HR professionals (approximately 1,400) access to various CIPD resources, such as short, self-directed training courses, research reports, learning libraries, HR fact sheets, accredited HR programmes and HR communities/networks in the public and private sectors.

CIPD-accredited training courses are also available to public service organisations through the Institute of Public Administration (IPA), which offers a foundation certificate in “people practice” and a diploma in HR management. An advanced diploma in strategic HR practice is currently being developed. The Irish Public Service HR Managers Network convenes quarterly, bringing together more than 150 HR managers to share best practices, present organisational case studies and identify challenges and opportunities to adapt HR practices to the changing evolving workforce needs.

This approach illustrates the extent to which the professionalisation of the HR function serves as a strategic lever for preparing the future of the public service. By aligning practices with recognised standards, investing in skills and strengthening the HR community, it provides the administration with the tools it needs to support the major transitions currently underway. The success of this initiative will depend on capacity to embed these standards over the long term, maintain their relevance amid rapid changes in the world of work, and firmly position HR professionals as key players in public service transformation.