5.0 Human Resources

The people that work in municipal governments are essential for the delivery of programs and services and day-to-day operations.

In recent years, some municipal governments have experienced difficulties in attracting and retaining qualified personnel to work in key positions such as the LGA, Finance or Public Works. Some reasons for this include ongoing changes in the NWT economy, increasing responsibilities for municipal governments, a shortage of qualified workers and a general inability of municipal governments to provide competitive wage and benefits packages (compared to government and industry).

In light of these challenges, MACA developed the Community Government Human Resources Development System (CGHRDS) to help assist community governments. Much of the information in this section has been summarized from the CGHRDS Manual (which is available on MACA’s website).

The LGA is hired by Council and reports to Council. All other community government staff are hired by, and report to, the LGA or another staff member as delegated by the LGA. This is illustrated in the organizational chart below:

Most municipal governments are responsible for a wide range of programs and services. As a result, the LGA is required to manage a wide variety of professional, semi-skilled and entry-level employees. Key LGA duties include hiring, orientation, developing work plans and budgets, supervising and supporting staff, disciplinary matters and terminations.

To ensure that a municipal government has the qualified staff it needs, the Council and LGA should:

• develop and implement a Human Resources Plan,
• follow good practices for attracting and retaining staff and
• adopt suitable human resource policies.

Given the competitive job market that exists in the NWT, human resource planning is essential for attracting and keeping good staff (all municipalities were required to have approved Human Resource Plans by March 31, 2010 under the terms of the Gas Tax Agreement).

Human resource planning involves taking a look at current staff capacity, determining future staffing needs and taking steps to ensure that the municipal government’s staffing needs (i.e. capacity, required skills, knowledge, attitude, etc.) can be met.

Human resource planning is not done in isolation. A municipal government’s staffing needs are closely linked to the programs and services it already delivers as well any plans it may have to take on new program or service responsibilities.

The LGA should be the lead person in developing the Human Resource Plan but will need to receive input on the plan from the Council, other senior managers and staff.

A Human Resources Plan (HR Plan Template) should be tailored to the specific needs of the municipal government. While there is no particular format for writing an HR Plan, typical elements usually include:

• the municipal government’s Vision and Mission Statements,
• key principles and values that employees are expected to follow,
• a summary of the current programs and services delivered by the municipal government and any new programs or services planned for the future,
• an analysis that identifies various factors (changes in funding, changes in priorities, changes in technology, needed skill sets etc) that may impact on the municipal government’s current and future human resource needs,
• an organizational chart that shows current and future staffing requirements, and,
• a work plan outlining the strategies and actions that the community government will take to address any identified issues or gaps. These could include capacity, skill sets, training needs, succession planning etc.

More information on the process of human resource planning is available in chapter 2 of the CGHRDS Manual.

Community governments need qualified employees to carry out all the different activities that occur within a community. Individuals interested in working in municipal governments can obtain more information here. (Jobs in Community Government)

There are a number of best practices that a municipal government should follow to maximize its ability to attract and keep qualified staff. These include:

Effective and meaningful job descriptions are essential. A job description is the “blueprint” that specifies what needs to be done and the type of person needed for the job. Job descriptions also provide the basis for several other aspects of a human resource management system including recruitment and selection, performance evaluation and training and development.

Examples of job descriptions for more than 90 different jobs are available. Chapter 3 of the CGHRDS Manual provides step-by-step instructions for developing a job description.

The LGA (or other senior managers) should also review job descriptions every few years to keep them up to date and incorporate any changes that may have occurred in job duties or the training needed to perform a job.

A typical municipal government spends 25 to 35 per cent of its annual operating budget on staff salaries and benefits. While this is a very significant portion of the overall budget, it is important that municipal governments offer a competitive pay and benefits package. Competitive salaries or wages is one of the most effective tools that a municipal government has to attract and keep qualified staff.

A municipal government should have detailed policies and procedures for pay administration (Jean Marie River First Nation Administration & Personnel Policy) including salary and wage rates, other allowances, overtime, pay periods and deductions.

Benefits are very important to most employees and can help the municipal government attract and retain employees. Examples of the different types of benefits that some municipal governments (and other types of employers) may support include:

• Extended health care insurance(s)
• Pension plan
• Dental plan
• Disability insurance
• Clothing allowance
• Medical travel assistance
• Northern living allowance
• Staff housing

Hiring the right person for the job is extremely important. This means hiring someone that has the necessary qualifications and that fits well with the culture of the municipal government and the community. It is also very important that a municipal government hires its staff in accordance with established bylaws, policies and procedures to avoid accusations of discrimination or favoritism.

Whenever possible, it is recommended that the LGA use job competitions to fill vacant positions. Typically a job competition takes about 4 to 8 weeks to complete but helps to ensure that the municipal government is hiring the most suitable and qualified candidate available.

With an up-to-date job description in hand, the process usually involves the following steps:

• Step 1 – Create a competition file
• Step 2 – Form a selection committee
• Step 3 – Establish the selection criteria
• Step 4 – Advertise the position
• Step 5 – Screen the applicants
• Step 6 – Interview candidates
• Step 7 – Complete reference checks, including criminal records checks
• Step 8 – Make an offer and contact unsuccessful candidates
• Step 9 – Provide the successful candidate with an appointment letter

Chapter 5 of the CGHRDS Manual covers all the details involved in recruitment and selection.

Providing an effective orientation for a new employee assists with staff retention, builds employee commitment and helps the individual become familiar with their new job and the workplace. Effective staff orientation is a gradual process that can take several weeks up to six months.

Basic orientation activities should include:

• introductions to other staff,
• familiarization with the office or workplace,
• explaining the purpose and structure of the organization,
• explaining basic rules and procedures (particularly health and safety) and
• providing job-specific information such as expectations, work plans, challenges etc.

Chapter 6 of the CGHRDS Manual provides more suggestions on what should be covered in an orientation process.

Performance management and evaluation are related processes for letting an employee know what he/she is doing well and what areas need improvement. Both processes should be conducted on an annual basis.

Performance management involves setting clear expectations for employees and providing frequent feedback on their performance. Performance expectations come directly from the job or work environment and should be consistent with the information in the employee’s job description. Having employees create and follow work plans is one way to make sure the employee knows what they are expected to do in their job.

Employee behaviour is another aspect of performance. Employees should be aware of, and follow, key employment policies such as a code of conduct and understand what the consequences are if they do not perform their duties or are engaging in inappropriate behaviour. Employee behaviour that does not meet expectations or is in violation of the code of conduct should be addressed immediately by the LGA using a progressive discipline system. More information on how to manage employee behaviour is available in Chapter 9 of the CGHRDS Manual.

The purpose of performance evaluation is to let employees know what they are doing well and what areas need improvement. This type of evaluation is usually done once or twice a year.

The suggested steps for a performance evaluation include:

• Define performance expectations. Employees need to know what they are being rated on.

• Evaluate the employee’s performance. Both the supervisor and the employee should complete an evaluation separately then meet to discuss the results.

• Meet to discuss the employee’s performance. The supervisor should have documented evidence on what the employee is doing well and what needs improvement. In turn, the employee should be encouraged to provide input on their performance by explaining their self-appraisal. A key outcome of the meeting should be the establishment of clear goals and objectives for the employee for the next year.

• Finalize the evaluation. Both the supervisor and the employee should sign the appraisal and a copy should be placed on the employee’s file. The employee should also be given a chance to provide written comments on the appraisal, particularly if he/she does not agree with it.

More information on performance evaluation is available in Chapter 7 of the CGHRDS Manual. Copies of performance evaluation forms for more than 90 positions are also available on the MACA web site.

Ongoing training and development of employees is necessary to make sure they have the knowledge and skills needed to do their current jobs and to prepare them to take on more challenging jobs in the future.

Training and development can be achieved in several ways, including:

• Workshops – training that lasts for a few hours or days
• Courses – a series of studies or lectures
• Conferences – a formal meeting on a specific topic or issue
• Distance learning – courses completed via the Internet or correspondence
• On the job – learning practical skills or knowledge in the actual work environment using the tools and equipment necessary for the position
• Mentoring – learning directly from an experienced individual
• Practicum – a post-secondary course in which a student is supervised while gaining work experience in their field of study

The LGA, the supervisor and the employee should work together to determine an employee’s training needs and select the form of training that best suits the employee and is cost-effective for the municipal government. Training needs are often identified during the performance evaluation process.

More information on training and development is available in Chapter 8 of the CGHRDS Manual.

Dispute resolution is important for maintaining a professional, fair and safe work environment for all employees. It is also important to have an established process for dealing with grievances and complaints in case something should arise. If there is a collective bargaining agreement in place, the process for dispute resolution may be spelled out in the agreement.

The first option for resolving a disagreement between the municipal government and an employee is to meet and discuss the situation. This should involve the LGA, the supervisor and the employee. Most disputes can be resolved through discussion.

If a dispute cannot be resolved through discussions, it may lead to the filing of a grievance. A grievance is a written statement of dissatisfaction (prepared either by the employee, management or the union) that summarizes the situation involved in the context of relevant employment terms, policies, regulations, Collective Agreement provisions etc. and seeks some type of remedial action.

A grievance arbitration process involves the use of an independent person who, acting under the authority of both parties, hears both sides of the dispute and issues a written award or finding that is binding on both parties.

More information on dispute resolution processes is available in Chapter 10 of the CGHRDS Manual.

People leave work for a number of reasons; sometimes termination is planned and sometimes it is not. It is important for a municipal government to be prepared for terminations as the consequences can have a major impact on its ability to deliver programs and services and take care of its business.

There are many reasons why employees are terminated, including:

• dismissal with cause,
• rejection of probation,
• layoffs,
• medical termination,
• resignation,
• retirement or
• death.

If a municipal government has wrongful dismissal insurance coverage, it must first obtain a legal opinion supporting the proposed termination before it proceeds.

It is important to conduct an exit interview with a terminating employee to obtain information on what the municipal government is doing well and what or where it needs to improve.

Details on each of these situations and the steps that the LGA should follow are provided in Chapter 11 of the CGHRDS Manual. For further information, refer to the NWT and Nunavut Termination Guide and these tools, templates and policies. (Terminations).

Personnel records are official records of an employee’s employment relationship with an organization. For administrative and legal reasons, a file should be set up and maintained for each employee throughout their employment with a municipal government. The LGA should designate a staff member (often the Finance Officer) to maintain the records.

The personnel file should contain all original documents related to an employee’s hire, employment and termination. Examples of what should be placed on an employee’s file include the letter of offer, paperwork related to payroll and benefits, performance expectations, performance appraisals, training and development information, disciplinary letters, letters of commendation, forms and paperwork related to termination etc.

Chapter 12 of the CGHRDS Manual has additional information on the creation and management of personnel records.

Human resource policies are vital for any organization. These policies outline the terms and conditions of employment relating to pay, hours of work, employee benefits and other general working conditions. Such policies are important so that employees know how to conduct themselves, what benefits they are entitled to and how the municipal government operates. HR policies also assist the LGA and other managers by defining areas of authority and describing how different situations should be handled.

Community governments are encouraged to have a human resource policy or bylaw (Jean Marie River First Nation Admin & Personnel Ft. Simpson Employee). The policy or bylaw should:

• outline the terms of employment,
• establish the remuneration and benefits of employees,
• establish hours of work and terms of employment,
• provide for the manner of appointment, promotion, discipline and dismissal of employees and officers and
• on behalf of the municipal corporation, enter into collective or other agreements with employees.

Municipalities that are Designated Authorities do not have bylaw making authority. They can only provide their direction through an employment policy or a policy adopting a union agreement.

More information on human resource policies is available in Chapter 13 of the CGHRDS Manual, and a sample policies and procedures manual can be accessed at: http://www.nwtac.com/icsp/policies-procedures-manual/

In some NWT communities, the staff that work for municipal governments are members of a union. As such, the terms and conditions of employment (and other related matters) for staff are spelled out in a collective agreement between the union and the municipal government.

In these instances, the LGA must be very familiar with the collective agreement and ensure that all the provisions in the agreement are respected and followed at all times.

Some of the basic terms or issues that the LGA should be aware of include:

Collective Bargaining – a collective agreement is effective for a certain period of time after which it must be renewed. Collective bargaining refers to the direct negotiations that occur between the union and the municipal government in order to determine the wages, hours and other conditions of employment that should be included in a new collective agreement. Typically, this process occurs every few years.

Mediation – if labour negotiations on a new collective agreement become bogged down or acrimonious, the parties may decide to enlist the participation of a third party to assist them in trying to reach an agreement.

Strike – this refers to a decision by employees to cease work, usually as a result of employee grievances or in an attempt to put pressure on the employer during the collective bargaining process.

Wages, Benefits, Policies and Procedures – when a collective agreement exists, it specifies all the employment terms that apply to both the employees and the municipal government as the employer. In this instance, the municipal government needs only to pass a bylaw that adopts the collective agreement.

Job Descriptions – if a job description is being re-written, the draft job description may need to be reviewed by a union representative before being approved by Council.

Discipline and Termination – the LGA needs to be familiar with, and follow, the procedures outlined in the Collective Agreement related to the discipline and/or termination of an employee.