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Work Life Balance Review 2006

A. Introduction

1. This review into Work Life Balance (WLB) initiatives is being carried out in

response to the commitment in the Social Partnership Agreement Sustaining

Progress, to consider widening access to family friendly initiatives (section

22.26, Modernisation of the Civil Service). This report explores the benefits and

burdens of family friendly policies and, in particular, WLB schemes from staff,

management and organisational perspectives. The main issues examined are a)

the implementation and effectiveness of the schemes, b) the uptake of the

schemes, and c) gender and grade factors. It is intended that this Report will be

circulated to Personnel Officers and the Staff Panel at General Council, and that

it will also be made available on the website of the Department of Finance to allother interested parties.

2. Flexible work placements have become central in the recruitment and retention

of talented staff, increasing equality of opportunity in the workplace and

optimising employer/employee resource management. As the Minister for

Enterprise, Trade and Employment, Mr. Micheál Martin, T.D. stated at the June

2005 National framework Committee for Work Life Balance seminar: “Work-

life balance is not just about limiting the number of hours spent at work. It is

also about giving people a degree of autonomy as to how their working time is

managed. Where agreed flexible working arrangements are in place, a win-win

situation can exist for employers and employees with tangible benefits for all”.

3.

There are many incentives for the usage of WLB policies - according to a 2002

National Development Plan Study, the level of family friendliness of the

workplace (as measured in terms of number of family friendly policies

available) was significantly correlated with the work satisfaction of fathers and

mothers. The benefits of such policies included employee satisfaction,

attracting/retaining employee productivity, reduced labour turnover, reduced

absenteeism and improved business results.

4.

This report explores the present WLB options and seeks to determine what

modifications are needed to ensure that WLB programmes are run to the highest

degree of efficiency and effectiveness for both the public and for public service

providers.

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B. What is Work Life Balance?

5. WLB policies help workers to combine employment with their family life,

caring responsibilities and personal and social life outside the work place. Theyinclude statutory entitlements such as maternity and adoptive leave, force

majeure, parental and carers leave, as well as non-statutory measures such as

flexible working arrangements, employee assistance schemes and childcare.

6. In the 1980s the Civil Service was amongst the first organisations in Ireland to

introduce family friendly work life policies such as flexitime, jobsharing and

career breaks. Term time leave was introduced as a pilot scheme in 1998. This

year also saw a statutory entitlement to Parental Leave established. June 2001

marked the Service-wide introduction of term time as well as the

commencement of worksharing schemes. Advancements in technology led tothe introduction of e-working into the Civil Service in 2001, which has now

been introduced on a pilot basis in a number of Departments and Offices.

7. The Government and the Social Partners, as part of the 1999 Programme for

Prosperity and Fairness, agreed that a National Framework Committee for

family friendly policies should be established. The objectives of the Committee

were to promote, implement and assess family friendly policies. This would help

to:

•

Create and develop a national code of practice and guidelines

• Identify any potential barriers and impediments to the provision of WLB

provisions

• Identify best practice guidelines and provide training

8. The recent Social Partnership Agreement offers further support to WLB policies

by stating that priority will be given to "putting in place enhanced policies to

support families in a changing society and in particular to ensure that policiesare designed to promote family formation and family life".

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C. Statutory Entitlements

9.

Ireland has a significant corpus of legislation which provides statutory

entitlements to all staff regardless of position, grade or Department.

The Employment Equality Acts 1998-2004 deal with employment equality in

Ireland. The Employment Equality Act (1998) offers protection against

workplace discrimination in relation to recruitment, training, dismissals and the

workplace environment. Discrimination in employment on any one of the

following nine grounds is illegal:

1) Gender

2) Marital Status

3)

Family Status

4)

Sexual Orientation

5) Religion

6) Age

7)

Disability

8) Race

9)

Membership of the Travelling Community

10. The Equality Authority was established in 1999 as an independent body under

the Employment Equality Act of 1998. The Authority works towards the

elimination of discrimination in employment, vocational training, advertising,

collective agreements, the provision of goods and services, and other

opportunities to which the public generally have access. Prior to 2000,

discrimination legislation was concerned primarily with workplace

discrimination. The Equal Status Act, 2000 moves the concept of the illegality

of discrimination beyond the workplace and into the public arena where peopleshop, buy services, obtain accommodation, and attend educational

establishments. The 2000 Act was amended by the Equal Status Act 2004.

Jointly these acts are known as the Equal Status Acts 2000-2004. These Acts

promote equality and prohibit certain kinds of discrimination, sexual harassment

and harassment on any one of the nine discriminatory grounds.

11. European Law has also made provisions to combat employment inequality.

Article 13 of the Amsterdam Treaty, in recognising the importance of combating

discrimination, grants the EU power to 'take appropriate action to combat

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discrimination based on sex, racial or ethnic origin, religion or belief, disability,

age or sexual orientation’.

12. There is also a body of National Employment Law that protects employee’s

rights and entitlements. These include:

The Organisation of Working Time Act, 1997

The Organisation of Working Time Act 1997 sets out statutory rights

for employees in respect of rest, maximum working time and holidays.

Carers Leave Act, 2001

Carer’s Leave facilitated by the Carers Leave Act, 2001 is temporary

unpaid leave to allow a person to provide full-time care and attention

for someone who is in need of such care. A maximum of 104 weeksCarer’s leave is allowed in respect of any one care recipient; the

minimum statutory entitlement is 13 weeks. A person may also have

an entitlement to Carer’s Benefit. Since the introduction of Carers

Leave in 2001, 3641 applicants have benefited from this scheme.

Maternity Protection (Amendment) Act, 2004

Arising from the recommendations of the Programme for Prosperity

and Fairness Working Group on the Review and Improvement of

Maternity Protection Legislation a number of improvements were

made in relation to Maternity Protection for women at work. The

Maternity Protection (Amendment) Act 2004 implemented the

outstanding agreed recommendations of the Maternity Protection

Review Group to allow expectant mothers to attend a complete set of

antenatal classes, an adjustment of working hours or breaks for breast

feeding mothers, termination of additional maternity leave in the event

of illness subject to the agreement of the employer, splitting the period

of maternity leave in the event of the hospitalisation of the child with

the agreement of the employer and absence from work on additional

maternity leave to count for employment rights (except remuneration

and superannuation benefits) such as seniority and annual leave.

Officers, who commence maternity, leave on or after March, 2006 areentitled to 22 weeks maternity leave and 12 weeks unpaid maternity

leave. Officers who commence maternity leave on or after 1 March,

2007 will be entitled to 26 weeks paid maternity leave and 16 weeks

unpaid maternity leave.

(Circulars 35/95, 9/2001 and 31/2006)

Adoptive Leave Act, 2005

Women who adopt and men who are sole male adopters are entitled to20 weeks paid leave rising to 24 weeks commencing on the 1st March

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D. Non-Statutory Policies and Schemes

13.

The detailed implementation of all WLB schemes is a matter for local

management in agreement with the Human Resources Section /Personnel

Officer. The actual implementation of WLB schemes varies between and within

Government Departments/Offices, depending on the particular operational

needs. While every effort is made to facilitate staff who wish to avail of

worksharing arrangements, managers must be satisfied that the granting of such

arrangements in any particular case will not adversely affect the operational

requirements of the Department/Office or the quality of the service being

provided. Family friendly arrangements require flexibility from management in

the organisation of work and from staff in meeting the business objectives of

Departments/Offices. Even where such flexibility is present, it may be

particularly difficult to accommodate applicants in offices where there are small

numbers of staff with consequential reduced flexibility to tailor tasks andworkloads.

There are a number of non-statutory initiatives which are in place in the Civil

Service which aim to assist employees WLB. These are outlined below:

Flexitime

14. Flexitime gives staff flexibility to vary their starting and finishing times.

Typically staff must be in work during the core times of 10am - 12.30pm and

2.30pm to 4pm. Depending on the Department; a person may start work between 8.00am and 10am and finish between 4pm and 7pm. Staff may build up

hours during a four week flexi period which can be taken as leave in a later

period. The operation of flexitime and the arrangements for its application are a

matter for each Department/Office.

Worksharing

15.

Worksharing allows staff to avail of an attendance pattern other than full-time.

Examples of such attendance patterns include: mornings only, afternoons only,

three days per week, four days per week, 9am to 3pm each day, week on/weekoff and three weeks out of four. Worksharing staff are paid on a pro rata basis,

so that for example, a member of staff who opts to work three days per week

will be paid 60% of the salary of a full-time member of staff. (Circular 31/2001)

It is not a specific requirement under the scheme to have a worksharing partner,

with complementing attendance or otherwise. However, it is acknowledged that

the operating needs of a Department / Office may, in many cases, make the

availability of a suitable partner, or other person(s) with a complementing

attendance, a prerequisite to granting a work sharing request.

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Term Time

16.

Term time allows people to take 8, 10 or 13 weeks unpaid leave from June until

the end of August to match their working arrangements to their children's

summer holidays. To be eligible, a member of staff must have a child or

children up to 18 years of age or be acting in loco parentis or be the primarycarer for a person with a disability who needs care on a continuing or frequent

basis. (Circular 7/2002)

Career Breaks

17.

A career break is a period of unpaid leave from work of between six months and

five years. In the Civil Service staff may take two career breaks during their

career. A career break may be allowed for domestic reasons, including child

care, education or travel abroad. A person on a career break may not take up

paid employment in Ireland. A career break of up to three years is available for purposes of self-employment. (Circular 18/98)

Other Special Leave Schemes

18.

Marriage Leave

Staff are allowed up to 5 days paid leave at the time of marriage

subject to an overall total of 26 days between annual leave andmarriage leave in a full year.

Bereavement Leave

Staff are allowed 3 or 5 days paid leave on the death of an immediate

relative (for definition of immediate relative, see section on ‘Force

Majeure’ leave above).

Paternity Leave

A father is entitled to three days special leave with pay on the birth or

adoption of his child. The leave may be taken up to four weeks afterthe birth of a child. In the case of adoption, the leave may be taken

within four weeks of the date of placement. (Circular 32/99)

Special leave for Domestic Circumstances

Unpaid leave to deal with domestic difficulties is also available. This

includes special leave without pay to care for an ill spouse or children

(up to 6 months); special leave without pay to travel abroad to visit an

ill relative (up to 2 months); and special leave without pay to deal with

other urgent domestic problems (up to 2 months).

(Circular 22/98 – Annex 1)

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Teleworking/e-working

19. In a teleworking arrangement the employee works from a home office for some

or all of the week. He or she maintains a presence in the office electronically via

computer, telephone, fax and e-mail. Many Departments and Offices are

implementing pilot e-working arrangements.

Civil Service Childcare Initiative

20. In Budget 2001, €12.7 million was allocated to provide crèches for children of

civil servants. An interim board has been established to manage this initiative.

At present there are two crèches in Dublin, in Mount Street and Marlborough

Street. Outside Dublin crèches have been opened in Ennis, Athlone, Sligo,

Backweston and Celbridge. The Department of Finance and the Office of PublicWorks are working on a number of proposals for further Civil Service crèches.

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Review of Operation of Statutory and Non-

Statutory Measures .

21. The information which is outlined in the chapter below relates to information on

the operation of WLB schemes which was gathered by the Department of

Finance, Equality Unit, via a questionnaire in May 2004. There were 29 replies

from Government Departments/Offices. The information which was collected

has been assembled under 12 general headings:

1). Formal Review of Overall Operation of Schemes

2). Individual Review of Schemes

3). Management of Arrangements in Place for Schemes

4). Grade Restrictions

5). Limitations on Schemes

6). Replacement of Staff on Schemes

7). Extending Access to Schemes

8). Policies/Mechanisms for Dealing with Requests for Schemes

9). Problems Identified

10). Partnership Committee

11). Positive Benefits Identified by Departments/Offices

12). Changes Advocated by Departments/Offices

1. Formal Review of Overall Operation of the Schemes

22.

Of the 29 respondents, 19 had not undertaken a formal review of WLB policies,

two had taken some measure of review and eight had taken formal reviews of

the work life balance. In those Departments/Offices where reviews were carried

out, the outcome appears to have been positive as additional worksharingoptions were introduced in some departments following the review. In the

Courts Service annual reviews of both worksharing and term time are

conducted to provide an overall picture of the potential impact for the

organisation. Other Departments/Offices carried out Business Impact Reviews

and Human Resource Reviews in order to assess the effect of WLB schemes.

The most comprehensive review reported was that of the Public Appointments

Service (PAS), which surveyed all staff in 2003 regarding WLB schemes, and

subsequently held interviews and focus groups to gain information and feed

back. The information received was then analysed in light of a literature review

and recommendations were made to improve the future provision of services.

Information was not provided on these recommendations.

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2. Individual Review of WLB Schemes

23. No formal reviews of individual working arrangements took place in many

Departments/Offices. In eight Departmental/Office divisions, reviews were

undertaken only when required, for example if an officer wanted to change awork pattern. Other Departments/Offices were more proactive with regard to

individual review. A number of the smaller offices actively review work

patterns at the end of the year to see if there have been any adverse effects on

business during the previous 12 months in the context of managing business

needs and staff aspirations. In practice, however, annual review of individual

working does not seem to be the norm.

3. Management of Arrangements in Place for Schemes

24.

Of the respondent Departments/Offices, 20 specified that they did not provideany WLB training to either staff or managers. The remaining Departments

/Offices offer differing degrees of training to staff and managers. A ‘Work

Options Unit’ has been developed in the personnel section of the Department of

Enterprise, Trade and Employment, which has responsibility for promoting and

administering the operation of WLB initiatives across that Department. Other

Departments/Offices rely on presentations relating to applications, pay,

implications for service and replacements, and leaflets and handbooks providing

information for staff about WLB. There has been some training given to

managers in certain Departments/Offices but this appears to be very limited.

Information days and induction training are the most popular way to advertise

WLB schemes to staff members but there does not seem to be much support

given to local/line managers to assist them in the management of WLB

arrangements.

4. Grade Restrictions

25. Many Departments/Offices have no grade restrictions in place. Other

Departments/Offices place limitations on grades accessing WLB arrangements

due to the operational needs of their section /unit and/or the limited scope for

cover for staff availing of schemes. Service staff may often be excluded from

schemes such as flexi-time for operational reasons. Where there are small

numbers in a location it may affect access to schemes.

26. In the Department of Foreign Affairs, staff serving in foreign embassies are not

eligible to apply for WLB arrangements as there is no scope to provide for

cover. The Legal Aid Board has highlighted the fact that due to the geographical

spread of its 30 offices across the country, and the variance in size of between 3

and 12 staff per office, it is not always possible to implement a fully operational

flexi-system.

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27. Many Departments/Offices have drawn attention to the fact that it can be

exceptionally hard to accommodate term time and worksharing for many

technical and professional grades. This is due to the limited numbers in these

grades and the lack of availability of suitable replacements.

28. A Department advised that specialised staff in the Information Technology area

are excluded from access to career breaks except for reasons of childcare. This

is to retain staff with specialised skills and expertise, often built up as a result of

expensive training and development programmes.

5. Limitations on Schemes

29. Smaller offices, as a whole, may find it harder to accommodate WLB initiatives.

Some Departments/Offices have less than 20 staff and this has a major effect onthe WLB schemes which can be effectively managed, in particular worksharing

schemes, which may be restricted or ruled out completely. Offices such as the

Legal Aid Board and Department of Communications, Marine and Natural

Resources have a large number of offices spread throughout the country. The

staffing levels of these offices can vary hugely. Therefore the opportunity for

many WLB schemes can be greatly reduced.

30. Some Departments/Offices claimed that saturation point in relation to work

sharing had been reached and that in future a cap may have to be placed upon

those who wish to avail of such schemes. This has been supported by assertions

that the number of WLB schemes is constantly increasing and that, coupled with

demands for expansion of existing schemes, a point will be reached in the near

future when there will no longer be capacity for extending or introducing new

WLB schemes.

31. A further issue was raised in relation to the influence of technology on the

availability of WLB: a small number of Departments/Offices have experienced

difficulties in the implementation of these schemes because the higher level of

staff numbers, coupled with the increased administrative burden, has had a

negative impact on the availability and efficacy of both server and software

capacity.

6. Replacement of Staff on Schemes

32. Recruitment: One of the most prevalent reasons for the limitation of access to

WLB schemes is a lack of suitably qualified replacement staff, especially in

relation to Professional and Technical staff. Departments/Offices have

commented that the recruitment process for these grades can be laborious and

the administration burdensome. Non replacement of staff availing of WLBarrangements and in particular the loss of experienced and specialised staff to

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atypical working arrangements is reported by some respondents as having had

the greatest negative impact on the day to day business of departments/offices .

33. Redeployment of staff: In many cases officers on maternity leave are not

replaced, as the cost of replacing a paid officer is too great a financial burden. Inrelation to staff availing of WLB arrangements in many Departments/Offices,

cover is only provided if they are on extended periods of WLB-related leave,

such as term time or career breaks. Often, due to the lack of suitable

replacement staff, the burden of the work falls to a more junior officer (who may

be asked to work in an official ‘acting-up’ capacity), or on the shoulders of other

staff within the unit, in addition to their general work load.

34. ‘Acting Up’: Many Departments/Offices either give acting up allowances to

staff performing duties at a higher level during the period of leave or recruittemporary replacement staff at entry level positions for the duration of the leave

of the officer that they are covering for. An interesting example of this arises in

the Courts Service, where staff who are ‘acting up’ build up credits towards

extra increments and extra leave should they subsequently be promoted to the

grade in which they are working in a temporary capacity. The majority of

offices deal with the accommodations required to facilitate WLB schemes at a

local level. Line managers often have responsibility for reorganising the

workload of division sections while staff are partaking of WLB leave. The

Department of Social and Family Affairs Business Impact Report found that the

majority of managers stated that operational efficiency is maintained by splitting

work sharing posts by both a task and attendance basis in response to local business needs, e.g. the rota system which is used in the Office of the Director

of Public Prosecutions to ensure that there is sufficient cover during business

hours. While every effort is made to accommodate applications, the business

needs of the divisions are paramount. The managers must make a business case

for replacement of staff far ahead of the commencement of leave, thus ensuring

that the replacement official overlaps with the official taking leave.

7. Extending Access to Schemes

35. Decentralisation: A small number of Departments/Offices have expressed

concern over the impact that decentralisation may have on their offices. As

experienced staff may decide to leave, the training and recruitment of new staff

to replace these experienced officers may impede any extension of WLB

schemes. The vast majority of Departments/Offices which responded (including

the Department of Agriculture and Food, which has already decentralised over

80% of its staff) felt that there would not be any difficulty in continuing WLB

schemes in a decentralised service. However, it is noted that there were very few

actual plans outlined for the continuation of these schemes.

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36. Management of schemes: The variety and combination of WLB practices can

create a management challenge: one Department, for example, cited the instance

of one of their offices in which 75% of staff are worksharers.

37.

Logistics: Also highlighted was the fact that if a number of people are working

different worksharing patterns, but are not working opposite each other, issues

may arise in relation to a lack of work space, furniture and computers.

8. Policies/Mechanisms for Dealing with Requests for Schemes

38. The majority of Departments/Offices did not have a formal policy in relation to

the dealing with requests from staff for WLB arrangements. Some Departments

/Offices deal with requests on an ad hoc basis while other Departments/Officeshave a more structured way of determining how to grant/refuse applications.

The majority of respondents to the survey stated that they would try, insofar as

possible, to accommodate the worksharing patterns of staff on promotion.

However, concessions from both staff and management would often be

necessary, including the possibility of the movement of staff to or from another

unit.

39. In some Departments/Offices, all applications are treated as a separate entity,

with others devolving responsibility to local offices where necessary. Managers

are advised to keep in mind the operational needs of the office when considering

conflicting requests. Managers can find the implementation of policies

challenging. They can have difficulty prioritising applications and may feel

pressured to approve applications for officers when similar applications have

been approved in the past.

40. Once again the Public Appointments Service described a comprehensive WLB

policy, which is agreed with the Partnership Committee. It outlines criteria to

decide on requests but emphasises the importance of the consideration of all

requests. In relation to their internal promotions, it is decided beforehandwhether a post is full time or not. If the advertised post is suitable for

worksharing, worksharers can apply and continue their worksharing pattern if

successful.

41. Departments/Offices stated that all requests are made in writing to the line

manager. Most Departments/Offices stated that written responses were always

given to requests. Where applications are refused, most respondents said that it

was done in writing with reasons given. One Department stated that this was

generally the case, but at times the reasons may be given orally to the employee.Another confirmed that reasons would be given in person. A number of

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respondents said that such a situation had never occurred but that responses

would be given in writing if the circumstance had changed. Most applications

for WLB schemes are collated centrally. Once worksharing is initiated staff are

seldom required by management to resume fulltime working hours. The

majority of Departments/Offices indicated that no request had been made to

worksharing staff to increase their working hours.

9. Problems Identified

42. General: The problems identified related to the particular circumstances of each

Department/Office. However it was generally considered that availing of a

number of schemes (statutory and/or non statutory) can lead to totally

ineffective presence in work: for example, officers availing of study schemes

combined with WLB schemes can be out of the office for much of the year.

Comments were received that a number of circulars are not clear on the impact

of some schemes, for example flexible working hours. This is perhaps best

summarised by one Department’s statement that the benefits of some of the

WLB arrangements ‘accrue to an individual but at the cost to staff remaining

and working the full time’. It appears that managers and full-time workers often

fail to see the advantages for themselves in colleagues availing of WLB

schemes. The Business Impact Consultation of the Department of Social and

Family Affairs pointed to problems arising where the work loads of either full-

time or worksharing staff are perceived as being too onerous and where work

sharing attendance patterns resulted in limitations on the annual leave taking

options of colleagues i.e. too many staff absent on Mondays and Fridays.

43.

Term Time: One respondent remarked that term time commitments can impact

on other staff wishing to avail of annual leave as it occurs during the Summer

period. This can be problematic on occasions.

44.

Career Breaks A specific difficulty with regard to career breaks has been

identified as staff returning from career breaks and wishing to be accommodated

in the same Office where they were previously employed; this is not always

possible as a result of the geographical location and size of offices.

45. Problems for staff availing of WLB policies: staff who change their working

pattern without informing the Human Resource Unit / Salary Unit can

experience problems later on with regard to pay and PRSI contributions. The

calculation of leave for people working atypical work patterns can be a very

time consuming matter, as can other administrative matters in relation to WLB

schemes. The Equality Unit are also aware that there have been problems inregard to annual leave for worksharers and leave in lieu of bank

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holidays/privilege days, and are currently addressing this issue. In relation to

promotions, there can be difficulties when a full time post becomes available

and the person who is next for consideration on the panel is a worksharer.

46.

Problems arise from the fact that there are currently no restrictions outlined in

the circulars on the uptake of more than one WLB scheme concurrently or in

direct succession. As observed by one Department, [a difficulty exists] “where

units are under pressure and managers get the impression that saying no leads to

a fundamental transgression of human rights. Senior managers need to be

advised at monthly meetings that WLB is not a divine right but a concession to

which the organisation will do its best to facilitate. Staff by extension needs to

be reminded of this too”.

10. Partnership Committees

47. With regard to WLB being on the Partnership Committee Agenda, thirteen

respondents stated that WLB is a permanent item on the Agenda for the

Partnership Committee, while seven stated that WLB issues were raised if

required. The other respondents did not have WLB schemes on their Agenda.

11. Positive Benefits Identified by Departments/Offices

48. The majority of Departments/Offices stated that the main positive contribution

of WLB schemes was the retention of good staff that might otherwise have to

resign, particularly with regard to those who are rearing families and those with

care responsibilities for relatives. In the broader context they contribute to a

happier work force and working environment, and in the context of society

generally allow some individuals to provide assistance (care to children

/relatives) or assist voluntary bodies in situations that might otherwise prove to

be a burden on the State.

49.

Many Departments/Offices also noted the improvement in the quality of the

lives of those who avail of WLB. This has a positive effect on the Departments

/Offices also, as a satisfied workforce contributes to an enhanced quality of

working life and improves morale. Staff members, who can manage the often

competing commitments of work life and family life effectively, are more likely

to be content and work performance is often high as a result.

50. WLB can make Civil Service employment very attractive for many people and

as such can result in the attraction and retention of knowledge, skills and

experience that might otherwise be lost. In a competitive labour market, the

availability of WLB policies has aided in the retention of staff who weigh up the

potentially higher wage rate in the private sector against the flexibility which

their public sector employment affords them. This has played a role in makingthe Civil Service an employer of choice for many people. Access to career

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F. Observations and Considerations

53.

Implementation of WLB schemes: The operation of WLB schemes is particular

to each Department/Office. The implementation of these schemes within

Departments/Offices is at the discretion of management, in light of the

operational needs of the Department/Office. Management has the final decision

on applications for participation in WLB schemes. It has to be recognised that

the purpose of these schemes is to assist staff to combine work and family

responsibilities, a stated priority of the Government.

54. Gender considerations: The research conducted into Gender Equality in the

Civil Service in 1999 identified two main factors which women reported as

disincentives to competing for promotion: the competition process itself anddifficulties in reconciling work and family commitments. The Equality Report

currently being finalised by the Department of Finance confirms that there is a

continued reluctance on the part of women to put themselves forward for

promotion. Access to WLB schemes has been identified as an important element

in encouraging women to seek advancement.

55. The burden of combining family and family responsibilities with work is largely

borne by women. The statistics on the uptake of WLB schemes highlight the

imbalance between men and women participating in the schemes. The figures

also show that the main reason women participate in the schemes is for childcare purposes whereas men who participate in the schemes do so for a variety of

reasons. There is evidence that women are having children later in their careers.

It is likely therefore that there will be a continuing demand for flexible working

patterns in the civil service at all levels, especially if the organisation wishes to

retain experienced and skilled staff. Also as our population ages there will be a

growing demand for flexible arrangements to care for elderly relatives. The

management of these schemes is going to be a major challenge for Departments/

Offices.

56. Access to WLB schemes is not exclusive to women and there appears to be

barriers to the uptake of the schemes by men. According to a 2002 study for the

National Development Plan 2000-2006, men who partake of WLB are viewed as

less serious about their career than those who are not, particularly in the opinion

of other men. This study was not specific to the Civil Service, but these findings

spotlight these attitudes which are likely to create a barrier to men taking up

these kinds of WLB arrangements. The statistics in the appendix bear this out.

The participants in all WLB schemes are predominantly women. This is an issue

which needs to be addressed by the Civil Service.

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Responsibilities of Departments/Offices

57. The operation of all the non-statutory schemes is subject to the principle that

the operational requirements of the Departments are not adversely affected. All

applications to participate in WLB schemes should be considered in the context

of the organisational needs of the Departments/Offices. Such organisationalneeds may make it necessary to limit the numbers who may participate in any of

the schemes, in particular worksharing which is the most burdensome

administratively. In line with Government Policy as set out in the National

Agreements, Departments/Offices should make all reasonable efforts to

accommodate requests from staff to participate in the schemes. In relation to

worksharing Circular 31/2001 states:

‘It is important that both management and those participating in the scheme

adopt a flexible approach to the operation of the scheme. Management

should endeavour to tailor tasks and workloads to allow for flexible

attendance patterns which accommodate the needs of the Civil Service withthe personal responsibilities or choices of those participating in the scheme’.

58. The challenge for the Departments and Offices is to adopt a strategic approach

to the management of WLB arrangements in the same way as other aspects of

their business and for a policy in relation to WLB to be included in the annual

Statements of Strategy.

59. The review has provided information on the approaches that are being taken to

the management of WLB schemes. Based on the information provided, a

number of proposals for consideration in relation to the management of WLB

schemes, are set out below:

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Proposals for Consideration

Formal Review

60. It is recommended that a formal review of WLB schemes be conducted annually

linked to the business plans for each Department/Office. Annual review is a veryeffective way of identifying the impact that WLB arrangements are having on

operational effectiveness. A review can help to assess whether there is scope for

new WLB schemes to be introduced or access widened. Assessing all WLB

practices together can help create a framework for managing WLB across a

Department/Office and to take into account the interaction between schemes.

Linking into the business plans puts the focus on the delivery of results and the

management of human resources in that context. Review of the management of

the schemes should take on board the perspective of staff who are not

participating in WLB schemes.

Section review of WLB Schemes, in particular Worksharing Schemes

61. Regular reviews by line managers of the WLB arrangements of staff, including

the worksharing patterns, as a risk assessment process, can provide early

warnings to management of possible impacts on the functioning of the sections

concerned. The signing of workshare contracts outlining the terms and

conditions of the position that will apply in the coming year, is an undertaking

by staff and management to ensure that the arrangement works. It may be

beneficial for all new worksharing agreements to be put in place for a specified

duration and to have this pattern reviewed annually.

Management and Staff WLB Training

62. The provision of training for managers and staff in relation to WLB is vital for

the efficient functioning of WLB schemes. Managers need to be given

information and training to support them in managing WLB arrangements.

There should be a Departmental or Office policy framework in relation to the

operation of the schemes and decisions of managers on applications for WLB

arrangements should be consistent with this policy. Manager and staff

handbooks detailing WLB information on benefits and implications are a useful

resource for managers and staff. Staff also need to be aware of the impact that

partaking in WLB schemes can have on their entitlements in areas such as

pensions, public holidays and annual leave. An annual WLB information day is

a good way of promoting the schemes and highlighting the benefits and

liabilities of such a system.

Decentralisation

63.

All Departments/Offices should formulate strategies to provide for the

continuation of WLB schemes in a decentralised service. Any difficulties that

Departments/Offices may perceive they will encounter should be highlighted toall staff decentralising. Departments and offices remaining in Dublin also

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formulate strategies in relation to the continuation of WLB schemes, where

possible, for incoming staff having regard to their business needs.

Provision for Cover for Staff on WLB Schemes

64.

Any accommodations that have to be made to cover staff on WLB leave shouldbe done at local level where possible in consultation with the central HR

function. It is imperative that local offices feel empowered over the running of

their own office and are able to organise their work in the manner that they feel

is most effective. The recruitment of temporary staff or the deployment of staff in

an acting up capacity for term time is widespread and is a suitable way to

address short term absences.

65. For career breaks and similar longer periods of leave, it would be preferable if

local managers made a business case for replacement staff to HR in advance of

the departure of staff and planned for a period of overlap with the replacement

staff.

66. In relation to offices that have a number of worksharing staff, and in particular

those involved in direct public service delivery, the use of a rota to ensure that

there are sufficient staff available during business hours may be beneficial in

guaranteeing service delivery. In taking on staff to provide cover, account must

be taken of the employment legislation in relation to fixed term and contract

workers.

67. The issue of non-replacement of staff on maternity leave on grounds of the

financial burden is a concern, particularly as many civil servants are now in

receipt of maternity benefit that is paid into the Departments and Offices. As the

period of paid maternity leave increases (26weeks paid and 16 weeks unpaid

leave from March 2007) so will the burden of extra work on existing staff if staff

are not replaced.

Reorganisation of Work

68.

The reorganisation of tasks is an integral element of effective WLB

arrangements. If the work tasks are not broken down in an effective manner,there may be unfair burdens placed upon staff working full-time and increased

stress for those managing unchanged workloads on reduced hours. The outcome

may be discontent among staff, both those participating in WLB initiatives and

those who are not.

Partnership Committee Agenda

69.

All Departments/Offices should consider including WLB schemes as a standing

issue on the Partnership Agenda. This would help to increase the Service-wide

knowledge of the schemes that are in place and to keep all staff updated ondevelopments.

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Worksharing on Promotion

70. All worksharing contracts should outline the Office/Departments policy on the

on continuation of worksharing on promotion. It should also be decided prior toadvertisement of the position whether it would be a suitable post for

worksharing. The provision of worksharing on promotion generally seems to be

accommodated if possible. However automatic worksharing on promotion can

be problematic from a business delivery perspective for some posts.

Policies and Mechanisms to Deal with Requests from Staff

71. There should be a Departmental or Office policy in relation to the operation of

the schemes and decisions of managers on applications for WLB arrangements

should be consistent with this policy. A balance needs to be struck betweendealing with situations on a case by case basis, thereby allowing local

discretion, and providing a central policy outlining considerations which should

be taken into account, such as the availability of staff to make up the shortfall in

numbers, the number of posts in any section / division or local office which

could be operated on the basis of not having opposites providing cover and the

suitability of some posts. Creating a policy framework through the Partnership

Committee may be helpful in producing agreed guidelines to be followed by all

sections. This would make the acceptance or rejection of applications more

transparent. It would be preferable if all applications and replies to applications

whether accepted or rejected were given in writing. This would improve

transparency and accountability in the process and provide records of all WLBarrangements in place.

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Role of the Department of Finance

Policy Network

72. It is proposed to set up a WLB Network to address policy issues and in

particular to address the issues set out below that were raised by Departments/Offices in the Review:

• production of guidelines in relation to domestic and force majeure leave

• options in relation to annualised working hours

• analysis of the impact on business delivery of the build up of flexi-leave

• return to work of those on career breaks – arrangements for deeming officers

who have resigned

• limiting the expansion of term time

• restricting staff to one form only of the main non-statutory WLB

arrangements or limiting the options available to people participating in WLB

schemes in a 12 month period.

• guidelines on the appropriate management of refusals to applications

• guidelines in relation to the most effective balance between worksharing and

full-time staff in terms of business delivery and staff morale

• grade restrictions.

Training

73. Department to consult with CMOD about the roll out of training for managers

on the operation of WLB schemes. In addition a one day seminar for Personnel

Officers and managers to be arranged on the management of WLB Schemes.

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Statistical Survey: Information and Appendices

In May 2006, The Equality Unit of the Department of Finance requested up-to-date

data from all Departments/Offices in relation to Worksharing, Term Time and Career

Breaks, as these schemes are perceived as having the greatest impact on the

management of business units. In total, requests for information were issued to 44

Departments/Offices. A general reminder was issued in June, requesting that data be

returned by 21st July 2006. Departments/Offices which had failed to respond by the

deadline were then contacted individually by telephone and email.

Responses from were received from 38 Departments /Offices.The data which follows

is based wholly on the information supplied in these 38 responses, but is considered to

be representative of the position across the Civil Service. Respondents to the

questionnaire were asked to answer a number of questions regarding levels of WLB

participation.

In relation to Work-sharing, Departments/Offices were asked the following questions:

1. As at the 31st of December 2005, how many employees were worksharing in

your department?

2.

For each of the work sharing patterns in operation in your department please

advise:

- the breakdown of gender of employees in each particular pattern

- the breakdown by grade of employees in each particular pattern

A summary of the data received is presented at Appendix A.

In relation to Term Time, Departments/Offices were asked the following questions:

1.

How many employees applied for Term Time in 2004 and in 2005?2. How many employees were granted Term Time in 2004 and in 2005?

3. What was the breakdown by gender of those granted Term Time in each year?

4.

What was the breakdown by grade of those granted Term Time each year?

A summary of the data received is presented at Appendix B.

In relation to Career Breaks, Departments/Offices were asked the following questions:

1. How many employees applied for a Career Break in 2004 and in 2005?

2.

How many employees were granted a Career Break in 2004 and in 2005?

3. For each of the Career Break applications in 2004 and 2005 in your

Department/Office please advise, broken down by gender and grade, the

purpose for which the Career Break was sought.

A summary of the data received is presented at Appendix C.

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APPENDIX A. Total Worksharing at 31/12/2005

Total Number across 38 Departments/Offices 5525

Total No. across Depts/Offices who provided Gender Breakdowns 5454

Total No. of Depts/Offices who provided Gender breakdowns 34

Number of Departments/Offices who had no Worksharing 3

Male %age of Gender Total*

304 5.57%

Female %age of Gender Total*

5150 94.43%Totals Across Departments/Offices who

provided Gender Breakdowns

Total Male Female %age of Total

CO 2525 102 2423 46.30%

EO 1174 53 1121 21.53%

SO 429 10 419 7.87%

HEO/AO 601 70 531 11.02%

AP 212 30 182 3.89%

PO 52 5 47 0.95%

OTHER 461 34 427 8.45%

Totals 5454 304 5150

*Statistical information based on these figures

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APPENDIX B Total Granted Termtime Options in 2005

Total Number across 37 Departments/Offices* 1464



Number of Departments/Offices who had no Termtime in 2004 7

Male %age of Gender Total

99 8.17%

Female %age of Gender Total

1113 91.83%Totals Across Departments/Offices who provided

Gender Breakdowns


CO 539 18 521 44.47%

EO 338 28 310 27.89%

SO 122 4 118 10.07%

HEO/AO 140 25 115 11.55%

AP 50 17 33 4.13%

PO 7 3 4 0.58%

OTHER 16 4 12 1.32%

Totals 1212 99 1113

* No figures are included from The Department of Arts, Sport & Tourism as no data in

relation to termtime was received from this Department

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Total Granted Termtime Options in 2004




Number of Departments/Offices who had no Termtime in 2004 9


147 12.66%



Gender Breakdowns


CO 502 15 487 43.2%

EO 302 32 270 26.01%

SO 108 2 106 9.30%

HEO/AO 172 64 108 14.81%

AP 49 23 26 4.22%

PO 7 3 4 0.608%

OTHER 21 8 13 1.81%

Totals 1161 147 1014

* No figures are included from The Department of Arts, Sport & Tourism as no data was

received in respect of termtime from this Department

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APPENDIX C. Total Granted Career Breaks in 2005




Number of Depts/Offices who had no Career Breaks in 2005 7


67 26.91%


182 73.09%

Totals Across Departments/Offices who provided

Gender Breakdowns


CO 147 30 117 59.0%

EO 52 19 33 20.88%

SO 5 2 3 2.01%

HEO/AO 10 3 7 4.02%

AP 8 3 5 3.21%

PO 1 0 1 0.40%

OTHER 26 10 16 10.44%

Totals 249 67 182

* No figures are included from The Irish Prisons Service as insufficient data was provided

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Total Granted Career Breaks in 2004




Number of Depts/Offices who had no Career Breaks in 2004 7


65 26.42%



Gender Breakdowns


CO 140 31 109 56.91%

EO 36 11 25 14.63%

SO 15 4 11 6.10%

HEO/AO 21 7 14 8.54%

AP 11 2 9 4.47%

PO 3 3 0 1.22%

OTHER 20 7 13 8.13%

Totals 246 65 181

* No figures are included from The Irish Prisons Service as insufficient data was

provided

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