OECD - Innovation Skills and Leadership in Brazil’s Public Sector
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OECD (2019), Innovation Skills and Leadership in Brazil's Public Sector: Towards a Senior Civil Service System , OECD Public Governance Reviews, OECD Publishing, Paris, https://doi.org/10.1787/ef660e75-en .
Governments need to innovate to better address ongoing and emergent policy challenges and provide effective public services. For this to happen, the public sector needs to have access to the right capabilities including leadership skills.
OECD countries are increasingly introducing specific senior civil service (SCS) systems that ensure leaders are capable of achieving results. This study establishes a new assessment framework for SCS systems, based on the 2019 OECD Recommendation on Public Service Leadership and Capability. The framework looks at three aspects as they relate to public sector innovation: a) the necessary leadership skills, b) the available supply of these skills through competency mapping and development, and c) the demand for these skills through appointment processes and accountability tools.
The study uses data collected through surveys and workshops to identify skills gaps that civil servants perceive in their leadership, and identifies a set of needed leadership competencies gathered in consultation with Brazilian civil servants. The study also identifies an imbalance in supply and demand, with most of the existing initiatives aimed at building supply. The study recommends actions to better co-ordinate these supply-side interventions and to develop demand-side interventions such as merit-based recruitment processes (which a recent presidential decree has now made possible).
This study was conducted in parallel with, and complements, the companion study The Innovation System of the Public Service of Brazil: An exploration of its past, present and future journey. Together, they are meant to help Brazil develop a stronger, more deliberate approach to leadership and innovation.
The study also contributes to a broader debate on public leadership competencies in public sector innovation, and the systems needed to appoint the most effective people and support them in achieving results.
This study was prepared by the OECD Directorate for Public Governance (GOV), under the leadership of its Director, Marcos Bonturi.
This report was drafted by Cristina Mendes and Kevin Richman under the supervision of, and with contributions from Daniel Gerson, lead of the Public Employment and Management project. Edwin Lau, head of the Public Expenditure and Budgeting division, provided strategic orientations. Valuable comments and input were provided by colleagues in the OECD Observatory for Public Sector Innovation (OPSI) Marco Daglio and Alex Roberts. OPSI former colleague Supriya Trivedi designed the leadership skills framework, and former colleague Matt Kerlogue designed the beta version of the innovation skills framework used in this report.
This study also benefited from the insights provided by two peer reviewers: Simon Claydon, UK Revenue and Customs, and Chair of the Public Employment and Management Working Party, and Roland Edwards, US Department of Homeland Security.
Draft versions of this report have been shared and discussed with members of the Public Employment and Management working party (PEM), the Public Governance Committee (PGC), and the OECDs Global Network of Schools of Government. The report benefits greatly from detailed input from the PEM, which provided data and many rich case studies that are highlighted throughout.
The study benefitted from the inputs, reflections and contributions of numerous Brazilian stakeholders, obtained through interviews, discussions, workshops and correspondence. This study would not have been possible without the commitment and support of the Escola nacional de administrao pblica (ENAP) and their open and committed staff and Presidency members. We are particularly thankful for the unique assistance in collecting data and information, organising the teams fact-finding missions and workshops in Brasilia and providing feedback throughout the development of the review. The team would like to thank in particular Francisco Gaetani, Aline Soares, Diogo Costa, Guilherme de Almeida, Paulo Marques, Fernando Filgueiras, Diana Coutinho, Regina Souza, Marizaura Cames, Pedro Vilela, Rafael Cedro, Luna Viana, Joo Guilherme Granja and Jeanne Lina.
The OECD also expresses its gratitude to the Ministry of Economy (Ministrio da Economia), then Ministry of Planning, Development and Management (Ministrio do Planejamento, Desenvolvimento e Gesto), for its cooperation and input, in particular Gleisson Rubin, Luis Felipe Monteiro, Wagner Lenhart, Joelson Velloso, Soraya Brando, Tito Froes, Luanna Roncaratti and Rodrigo Machado Molina.
Special thanks to Elisabeth Huggard and Javier Gonzalez for their administrative support and to Liv Gaunt for editorial assistance.
The Government of Brazil is currently tackling a core leadership challenge: improving civil service capability, productivity and innovation. This, in turn, requires a reconsideration of the skills and competencies needed in the senior ranks of public administrations, as well as an analysis of the mechanisms that reinforce these skills and competencies, and an evaluation of the incentives to innovate.
In Brazil, appointment criteria are neither systematic nor comprehensive, and often not based on technical or managerial standards for management positions. This presents risks for public innovation and, more broadly, for the quality of public policies. Initial steps have been taken to address this issue. A 2019 presidential decree establishes some minimum criteria for these positions and enables selection through merit-based processes.
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