Staff
Personalbericht
The Austrian
Das
PersonalFederal
des
Bundes
Civil
Service
20152015
Datenand
Facts
undfigures
Fakten
Imprint
Owner, publisher and editor:
Federal Chancellery of Austria, Directorate General III
Hohenstaufengasse 3, 1010 Wien (Vienna)
Authors: Renate Gabmayer, Melanie Strantz, Florian Dohnal
Compilation: Gabriela Kleinrath
Text and overall coordination: Section III/7/a HR-Controlling
Translation: Andrea Steiner (www.norrisandsteiner.at)
Vienna, 2015
Photo credits: Andy Wenzel / BKA (Cover, S. 2), HBF (S.3)
Cover Layout: BKA | ARGE Grafik
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The Austrian Federal
Civil Service 2015
Facts and figures
Vienna, 2015
Preface
Dear readers
In 2014 the staff of the Federal Civil Service once again ensured
that the tasks of public administration were handled efficiently.
As every year, this publication provides a clear overview of the
Austrian Federal Civil Service and its composition in terms of
various parameters. In fact, it has become an indispensable source
of information when it comes to exploring trends and changes in
this particular employment sector. But the time after the end of
employees’ working lives, too, is increasingly becoming a focus
of interest, not least in the context of budgeting. The Retirement
Monitoring Report for civil servants, which was first presented
this year, shows that the retirement age of Federal civil servants
Sonja Steßl
has risen and the number of new retirements has gone down.
Retirement monitoring promotes the convergence of the actual and statutory retirement ages,
an aim which the Federal Civil Service continues to pursue.
Among the staff members who have excelled in the past year, our remuneration experts deserve
special mention. Their challenge was to implement a new remuneration system while allaying
staff members’ initial concern about this change. Complex models of calculation ensured that
no disadvantages arose in the end, in particular with regard to employees’ lifetime earnings.
In the face of a clear requirement to implement the relevant judgment by the European Court
of Justice, it was important to continue paying public servants fairly for their work.
Moreover, as the world of work is in constant flux (in the Civil Service just as much as elsewhere),
the new job satisfaction survey provides important insights into how Federal Civil Service staff
see and evaluate the working conditions created by their employer. Based on the results of this
survey, conclusions can be drawn as to which areas would benefit from optimising measures.
After all, job satisfaction is an indicator of the extent to which employer and employees can
operate on an equal footing to achieve joint aims.
Thank you for your excellent work during the past year.
Yours sincerely
State Secretary Sonja Steßl
Preface
Dear readers
The mission of Directorate General III (Civil Service and Public Administration Innovation) is to ensure up-to-date human
resource management in the interests of a motivated, competent
staff. The facts and figures presented in this publication will give
you a comprehensive overview of HR management in the Federal
Civil Service and how it has developed during the 2014 / 2015
period.
A key factor in this context is the continually rising number of
retirements, which presents great challenges for personnel managers. The Retirement Monitoring Report for the Federal Civil
Service, which was published for the first time this year, provides
Angelika Flatz
a wealth of data and information on this issue, creating transparency, on the one hand, and highlighting areas where there is a need for action, on the other.
In addition to introducing a new method of determining seniority for the purposes of salary
classification, this year’s amendments to Civil Service employment regulations focused on
changing the so-called “Daddy Month” for fathers of newborn babies into a “Baby Month”
in order to extend access to early parental leave to same-sex couples and adoptive parents.
The staff survey conducted in March 2015 confirmed the high degree of acceptance for the
working conditions in the Federal Civil Service: despite the necessary budgetary consolidation
measures, satisfaction in the areas of health promotion and leadership has increased, while it
has largely remained constant in the other areas, compared to 2011. Despite these good results
we will make use of the data gained to identify potential for further improvements and take
appropriate measures, as we did following the last survey.
2015 has seen the tenth anniversary of our Cross-Mentoring Programme supporting careerminded women in the Federal Civil Service. The programme facilitates the targeted exchange
of experience and further development of leadership skills.
I hope this yearbook awakens your interest and provides impulses for your day-to-day work.
Director General Angelika Flatz
Head of the DG for the Civil Service and Public Administration Innovation
Table of contents
Table of contents
1
Public administration in Austria ....................................................... 5
1.1 Austria’s territorial entities: the Federation, Länder and municipalities ...................5
1.2 An international definition of public administration: the general government
sector according to ESA........................................................................................7
1.2.1 The central government sub-sector according to ESA ...........................................9
1.2.2 The general government sector as a whole ...........................................................9
1.2.3 The size of government sectors by international comparison .................................9
1.2.4 Public administration in the context of public expenditure..................................... 11
1.2.4.1
1.2.4.2
What is the cost of public administration?
The government sector’s personnel expenditure by function
1.3 Civil Service incomes in comparison to the private sector....................................14
2
The organisational structure of the Federal Civil Service ........... 16
2.1 Ministries and their subordinate bodies ...............................................................16
2.2 Agencies .............................................................................................................19
3
Occupational groups in the Federal Civil Service ........................ 22
3.1 Administrative service .........................................................................................23
3.2 Teachers .............................................................................................................26
3.3 Law enforcement ................................................................................................28
3.4 Military ................................................................................................................30
3.5 Judges and public prosecutors ............................................................................31
4
Traineeships, internships and apprenticeships in the Federal
Civil Service ..................................................................................... 34
4.1 Public administration traineeships .......................................................................34
4.2 Court internships .................................................................................................35
4.3 Teaching practice and induction phase................................................................35
4.4 Apprentices .........................................................................................................36
1
Table of contents
5
The staff of the Federal Civil Service ............................................. 37
5.1 The development of staffing levels ......................................................................37
5.1.1 Development of staffing levels in the different occupational groups ......................39
5.2 Levels of qualification ..........................................................................................42
5.3 Types of employment relationship .......................................................................44
5.3.1 Federal Civil Service staff by type of employment relationship in FTE ..................44
5.3.2 Recent policy on civil service appointments .........................................................46
5.4 The age structure of Federal Civil Service staff ...................................................47
5.4.1 Changes in the age structure since 1995.............................................................48
5.4.2 Age structure by type of employment relationship ................................................50
5.4.3 Age structure by occupational group ...................................................................50
5.4.4 Demographic analysis based on levels of qualification .........................................51
5.5 Part-time employment in the Federal Civil Service ..............................................52
5.6 Women and men.................................................................................................53
5.6.1 The proportion of women in the Federal Civil Service over time ...........................54
5.6.2 High qualification levels by sex............................................................................56
5.6.3 Part-time work by sex .........................................................................................56
5.6.4 Women in management - Gender auditing ..........................................................57
5.6.5 Measures for the promotion of women ................................................................59
5.6.5.1
5.6.5.2
5.6.5.3
5.6.5.4
Parental leave for mothers and fathers
Early parental leave (“Baby Month”)
Teleworking
10 years of Cross-Mentoring in the Federal Civil Service
5.6.6 Income differences between women and men as defined by Section 6a,
Federal Equal Treatment Act ...............................................................................62
5.6.6.1
Income differences in the Federal Civil Service
5.6.7 Median incomes by occupational group ...............................................................67
5.7 Lost working time ................................................................................................67
5.8 Retired civil servants ...........................................................................................70
5.9 New retirements ..................................................................................................71
5.9.1 Types of retirement .............................................................................................71
5.9.2 Number of retirements and retirement age ..........................................................71
5.9.3 The development of retirement figures in the Federal Civil Service ......................72
2
Table of contents
6
Human resource management in the Federal Civil Service......... 75
6.1 The organisation of human resource management .............................................75
6.2 Employment and pay regulations ........................................................................76
6.2.1 Preventing corruption, fostering integrity ..............................................................78
6.2.2 Cooperation in international programmes ............................................................78
6.3 Retirement regulations ........................................................................................78
6.3.1 Calculation of pensions .......................................................................................78
6.3.2 The financing of pensions ...................................................................................79
6.3.3 Retirement age ...................................................................................................79
6.4 The Staffing Plan and FTE targets ......................................................................80
6.4.1 The Staffing Plan and Budget law reform.............................................................81
6.4.2 People with disabilities ........................................................................................82
6.5 Evaluation of posts ..............................................................................................83
6.6 Human resource auditing ....................................................................................83
6.7 An attractive employer ........................................................................................85
6.8 Staff development ...............................................................................................86
6.8.1 Initial and further training .....................................................................................86
6.8.1.1
6.8.1.2
Institutions providing initial and further training
Federal Academy of Public Administration
6.8.2 Survey of Federal Civil Service staff ....................................................................88
6.8.3 The appraisal interview as a key management tool..............................................89
6.9 Health and safety at work: evaluating mental stress factors.................................90
6.10 Karriere Öffentlicher Dienst www.jobboerse.gv.at ................................................90
6.11 Mobility ...............................................................................................................91
6.11.1 Mobility management by the Federal Chancellery................................................91
6.11.2 Computer-based testing and modern personnel selection....................................91
6.11.3 The Federal Chancellery’s EU JOB Information Service ......................................92
6.11.4 Internships ..........................................................................................................93
6.12 Knowledge management as a core issue for innovative and future-oriented
organisations ......................................................................................................93
6.12.1 Developing guidelines for knowledge retention following staff changes ................94
6.13 HR platforms of the Federal Civil Service ............................................................94
6.13.1 The Civil Service Website ...................................................................................94
6.13.2 Conference of HR Heads ....................................................................................95
3
Table of contents
6.13.3 Expert conferences of the Länder........................................................................95
7
Performance management in public administration .................... 96
7.1 Performance management and regulatory impact assessment – a combined
approach.............................................................................................................96
7.2 Outcome orientation in the Federal Budget and the implementation of
regulatory impact assessment – initial experience ...............................................96
7.3 Performance management: a new challenge for managers .................................97
7.4 The Federal Performance Management Office – coordinating across
Ministries.............................................................................................................98
7.5 Public administration competitions: networking – exchanging know-how –
learning from each other .....................................................................................99
8
Technical annex ............................................................................. 101
8.1 Reference period ..............................................................................................101
8.2 Database ..........................................................................................................101
8.3 Unit of measurement .........................................................................................101
8.4 The definition of “management position” as used in Chapter 5.6.4 ....................102
8.5 Gross annual income as defined by Section 6a, B-GlBG ...................................102
8.6 Gender pay gap ................................................................................................103
8.7 Median income .................................................................................................103
8.8 Classification of posts .......................................................................................103
8.9 Sources of data and information........................................................................103
9
List of abbreviations ...................................................................... 105
10 List of figures ................................................................................. 106
11 List of tables ................................................................................... 108
4
Public administration in Austria
1
Public administration in Austria
1.1 Austria’s territorial entities: the Federation, Länder and
municipalities
The majority of public services in Austria are provided by the staff of the country’s so-called
territorial entities, i.e. by the employees of Federal, Land (i.e. Regional) or municipal
authorities. Collectively, these are commonly referred to as “public administration”. However,
there is no clear line dividing public administration as such from the agencies that have been
hived off from all levels of public administration in recent years, or from the various companies,
institutions, funds, etc. which have been charged with the provision of public services, as some
of these bodies can still be seen as belonging to the public sector.
Table 1 Staffing levels of Austria’s territorial entities
Entity
Staffing level
Federation
130,992
Länder
139,452
Municipalities
74,667
Total
345,111
Staffing levels in full-time equivalents, excluding agencies and other hived-off bodies. Data for the Federation last
updated on 31 December 2014; Länder data in 2013; data for the municipalities in 2014.
Sources: Federation – Federal Civil Service Management Information System;
Länder – Regions’ own data, based on the Austrian Stability Pact, excluding Regional hospitals; municipalities – Statistik
Austria
Major tasks carried out by the Federal Civil Service include the areas of internal and external
security, education (i.e. the Federal schools), fiscal matters, and the judiciary. In 2014, the
Federal Civil Service had a staff of 130,992 full-time equivalents (FTE). In addition to these,
6,937 Federal civil servants were working in agencies and other hived-off institutions, and
another 14,218 were working in the successor companies of the Austrian Post Office.
Furthermore, another 139,500 staff were employed by Austria’s nine Länder (i.e. Regions), and
approximately 74,700 employees were working for the country’s 2,101 municipalities
(excluding Vienna, which is also a Land; figures from October 2015). An additional 89,300 1 or
so were employed in the hospitals of the Länder, and approximately 10,000 more in various
other hived-off entities at the Regional and local levels.
1
44,300 of these were working in hospitals that were still formally part of Land government structures (i.e. those
in Lower Austria and in Vienna), and 45,000 again in hived-off hospitals.
5
Public administration in Austria
1.1.1 Staffing levels of the Länder
The major government bodies operating at the Länder level include the Regional Government
Authorities (Ämter der Landesregierungen), District Authorities (Bezirkshauptmannschaften),
construction and agricultural authorities, road maintenance departments and, in some cases,
the nursing care sector.
Government staffing differs considerably across the nine Länder, both in terms of
organisational structures and the volume of tasks carried out. Kindergarten teachers and their
assistants are a case in point: in Lower Austria these are partly included in the staff of the Land
government, where they constitute a major group of employees; in other Regions they are
municipal rather than Land employees and thus not counted towards the respective Land’s
staffing levels. The same is true of music school teachers and nursing care staff.
A special group of Land employees is that of Land teachers. At approximately 65,600 FTE they
are one of the largest groups within the public sector. While they are employees of the Länder
and thus included in the staffing levels mentioned above, the associated costs are largely
borne by the Federation as part of the annual revenue-sharing exercise. Land teachers are
employed at primary schools, lower secondary schools (i.e. Hauptschulen and Neue
Mittelschulen), as well as vocational schools for apprentices and for the agriculture and forestry
sector. The extent to which personnel costs are refunded by the Federation is 100% for primary
and secondary school teachers and 50% for vocational school teachers.
The staff of Länder hospitals, which account for 89,300 FTE, are a special case with regard to
their classification and are therefore not included in the staffing levels set out in Table 1. Even
though hospital staff are predominantly Land employees in all nine Regions, the hospitals
where they work have attained different levels of autonomy from the respective Land
governments, a transformation which was subject to legislation passed in the different Länder.
With two exceptions (i.e. Vienna and Lower Austria), Länder hospitals are to be counted
among the hived-off institutions. Another approximately 10,000 Länder staff work for other
types of hived-off entities.
6
Public administration in Austria
Table 2 Employees of the Länder
(without hived-off institutions)
Staffing levels
Total
BGLD
KTN
STMK
TIROL
VLBG
SLBG
OÖ
NÖ
2
WIEN
Land
administration
73,863
1,739
3,479
6,715
3,905
1,497
2,394
8,474
16,379
29,282
Land teachers
64,915
2,239
4,628
8,857
5,874
3,625
4,377
12,198
12,199
10,919
138,778
3,978
8,106
15,572
9,779
5,121
6,771
20,672
28,578
40,201
44,263
0
0
0
0
0
0
0
16,715
27,548
183,041
3,978
8,106
15,572
9,779
5,121
6,771
20,672
45,293
67,749
74,303
1,404
4,513
6,703
5,051
2,016
3,913
10,379
14,078
26,245
108,738
2,574
3,593
8,868
4,728
3,105
2,858
10,292
31,215
41,504
OÖ
NÖ
TOTAL
Land hospitals
(not hived off)
TOTAL
Civil servants
Private-law
employees
Table 3 Employees of the Länder
(working in hived-off institutions)
Staffing levels
Land employees in
hived-off hospitals
Land employees in
other hived-off
institutions
TOTAL
Total
BGLD
KTN
STMK
TIROL
VLBG
SLBG
3
WIEN
44,987
1,643
6,362
14528
6,397
3,239
4,625
8,193
0
0
9,996
109
154
267
30
47
154
419
369
8,447
54,983
1,752
6,516
14,795
6,427
3,285
4,779
8,612
369
8,447
6,250
16
128
150
10
5
90
542
84
5,225
48,733
1,737
6,388
14,645
6,417
3,280
4,689
8,070
284
3,222
Civil servants
Private-law
employees
Staffing levels are expressed as full-time equivalents, without apprentices or trainees
Private-law employees and employees subject to collective agreements.
According to the Vienna Municipal Authority, the umbrella organisation of Vienna’s hospitals (Wiener Krankenanstaltenverbund) does not have legal
personality in its own right but is a special type of municipal institution. The staff working at these hospitals are therefore not to be counted towards the
hived-off sector. The situation in Lower Austria is similar.
Differences in totals are due to rounding.
Further details on agencies and other hived-off entities at the Federal level are available in
Chapter 2.2.
1.2 An international definition of public administration: the
general government sector according to ESA
As mentioned in Chapter 1.1, the task of providing public services has increasingly been
transferred, over the last few years, from government authorities to separate entities
established under public or private law. While some of these entities act in a private-sector
2
3
Burgenland, Kärnten, Styria, Tyrol, Vorarlberg, Salzburg, Upper Austria, Lower Austria, Vienna
Burgenland, Kärnten, Styria, Tyrol, Vorarlberg, Salzburg, Upper Austria, Lower Austria, Vienna
7
Public administration in Austria
context, many others still operate predominantly on behalf of the state and are funded by
territorial authorities by way of – usually capped – contributions.
Based on a definition of the public sector as that part of the economy which produces public
goods, the number of public-sector employers can be said to have grown as a result of the
creation of agencies and other bodies which have been spun off from all levels public
administration.
Therefore, any definition of the term “public servant” which exclusively relies on the existence
of an employment relationship with a territorial authority (i.e. Federal, Regional or local
government) will fail to cover all of the people who are involved in providing public services
today. However, if the concept of “public administration” is to be defined in broader terms,
specific criteria are required to determine which institutions are to be counted as belonging to
the public sector.
An internationally recognised delimitation of this sector which, being laid down in EU law, is
binding on Austria, is provided by the “European system of national and regional accounts”,
ESA for short. This lays down criteria for determining whether a particular entity – and thus also
its staff – is to be classified in the so-called “general government sector”, primarily based on
functional and economic criteria. In addition to territorial authorities, this definition also includes
those institutions which are in any way subject to an – albeit small – measure of government
control, as well as being “non-market producers” based on the prices they charge for their
services, generating sales that cover less than 50% of their production costs.
In addition to government authorities at different territorial levels, Austria’s “general government
sector” thus includes the social security funds, the various Chambers representing organised
interests, as well as approximately 400 other institutions which have their own legal personality
(as public or private limited companies, associations, institutes, universities, universities of
applied sciences (Fachhochschulen), funds or federations). Some of these institutions used to
be organisational units of territorial authorities and have acquired legal personality as a result
of being hived off from these authorities, while others were set up specially to fulfil certain
public tasks. Depending on what type of territorial authority primarily funds and controls these
institutions, they are assigned under the ESA system to so-called sub-sectors, namely “central
government” (i.e. the Federation), “state government” (i.e. the Länder), “local government” (i.e.
the municipalities), or social security funds.
Last year the system of classification was changed from ESA95, which had been in force until
then, to ESA 2010. As of September 2014 this new system has been mandatory for all EU
member states.
Under the new classification system of ESA 2010, 22 public hospitals and three major public
transport enterprises (ÖBB Personen, ÖBB Infrastruktur and Wiener Linien, i.e. two companies
of the Austrian Railways, and Vienna’s public transport provider) are to be included in the
general government sector.
8
Public administration in Austria
1.2.1 The central government sub-sector according to ESA
As some of the hived-off and newly established agencies are characterised by a high degree of
independence, there is no central record of their personnel data. However, a first step towards
ascertaining the staffing level of the central government sub-sector (i.e. the Federal level of
government) was undertaken in a study by Statistik Austria carried out in 2006. In addition to
the territorial entity of the Federation itself, the Federal sub-sector is defined in this study as
comprising another 153 entities, including 43 universities and universities of applied sciences
(Fachhochschulen), 13 Chambers at Federal level, as well as numerous Federal funds and
other hived-off entities. Nearly all of these employ their own staff, adding up to a total of
approximately 50,400 FTE in 2006. Added to the Federation’s 130,992 FTE, this means that
the overall staffing level of the central government sub-sector as defined by ESA is
approximately 181,400 FTE.
1.2.2 The general government sector as a whole
Regarding the entire “general government sector” according to ESA 2010, estimates are
available from both Statistik Austria and the OECD. For 2014, these amount to approximately
572,000 FTE (Statistik Austria). Based on these estimates, which are available for all of its
member states, the OECD is able to make international comparisons.
Due to the fact that the government sector is delimited by means of economic and functional
characteristics, the data can be assumed to be comparable as entities are assigned to the
government sector regardless of whether they have been set up under public or private law.
Although Austria‘s general government sector as defined by ESA comprises more than the staff
of the country’s territorial authorities, it is still small by international comparison.
1.2.3 The size of government sectors by international comparison
Due to the difference in size between states, a comparison of government sector staffing levels
in absolute terms would not be meaningful. Larger states, which obviously employ larger
numbers of public servants, would inevitably figure at the top of the scale in a comparison of
this kind.
The size of government sectors is therefore expressed in relative terms, i.e. as a proportion of
total employment. The most recent available OECD data on this subject are from 2013 (OECD,
Government at a Glance 2011). The comparison is based on the definition of the general
government sector according to ESA95 (see Chapter 1.2). A comparison of the European
OECD member states, as well as Russian Federation, South Africa and Brazil, is shown in
Table 4 and Diagram 1. The proportion of Austria’s total employment accounted for by
government sector employees was 10.7% in 2011 and thus below the 15.5% average for the
OECD members.
9
Public administration in Austria
Table 4 Government sector employees as a proportion of total employment, 2011
Country
Employees (%)
Country
Norway
30.5%
Czech Republic
12.9%
Denmark
29.9%
Netherlands
12.4%
Sweden
26.0%
Portugal
11.5%
Finland
22.8%
Austria
10.7%
France
21.9%
Turkey
10.7%
Hungary
20.1%
Germany
10.6%
Estonia
19.4%
New Zealand
9.7%
United Kingdom
18.3%
Poland
9.7%
Luxemburg
17.8%
Switzerland
9.7%
Canada
17.7%
Chile
9.1%
Belgien
17.3%
Mexico
9.0%
Ireland
16.4%
Greece
7.9%
Israel
16.4%
Japan
6.7%
Slovenia
16.0%
Korea
6.5%
Australia
15.7%
EU members (weighted)
15.5%
United States
14.4%
Russian Federation
17.7%
Italy
13.7%
Brazil
10.6%
Spain
13.1%
South Africa
9.0%
Slovak Republic
13.0%
Ukraine
Source: Government at a Glance 2013 - © OECD 2013; ILO
10
Employees (%)
5.5
Public administration in Austria
Figure 1 Government sector employees as a proportion of total employment, 2011
%
35
30
25
20
15
10
2011
Russia
Brazil
South Africa
Ukraine
0
Norway
Denmark
Sweden
Finland
France
Hungary
Estonia
United Kingdom
Luxembourg
Canada
Belgium
Ireland
Israel
Slovenia
Australia
OECD members…
USA
Italy
Spain
Slovakia
Czech Republic
Netherlands
Portugal
Austria
Turkey
Germany
New Zealand
Poland
Switzerland
Chile
Mexico
Greece
Japan
Korea
5
2001
Source: OECD
1.2.4 Public administration in the context of public expenditure
Austria’s total public expenditure in 2014 amounted to € 171.9 billion, which is equivalent to
52.1% of GDP. Diagram 2 shows what this amount was spent on.
Figure 2 Structure of public expenditure, 2014
Source: Statistik Austria
4
4
http://www.statistik.gv.at/web_de/static/struktur_der_einnahmen_und_ausgaben_des_staates_konsolidiert_jahr
esdaten_019897.xlsx (30 July 2015)
11
Public administration in Austria
Transfers to private households accounted for roughly half of overall public expenditure
(44.6%). This category comprises social benefits in cash and in kind. Key examples of the
former include pensions, family benefit, unemployment benefit, parental leave and long-term
care allowance. The term “social benefits in kind” refers to goods and services purchased by
government agencies and passed on to private households free of charge, or against a flat-rate
contribution towards their cost. This category includes medical services, medicines,
kindergarten, as well as free travel and school books for schoolchildren, among other things.
Under the heading of “transfers to market producers”, 6.7% of overall public expenditure goes
to enterprises, e.g. in the form of subsidies for agriculture, trade and industry.
“Other expenditure” (15.2% of the total) consists of the interest paid on public debt, gross
investment, and transfers to EU institutions, for example.
Based on ESA 2010, Statistik Austria has retroactively adjusted the relevant projections for the
past few years.
1.2.4.1 What is the cost of public administration?
The types of expenditure which are of interest in connection with government sector
employees are to be found in the category of “Staff and non-staff operating costs”, which
accounts for 33.5% of total public expenditure, or € 58 billion in absolute terms. The category of
“Staff and non-staff operating costs” comprises:
operating costs (12.4% of total public expenditure or € 21.3 billion);
compensation of employees (20.2% of total public expenditure or € 34.8 billion for 574,000
staff, € 13.8 billion of which can be attributed to the Federal level, € 10.5 billion to the Regional
level, € 8.6 billion to the municipal level, and € 1.9 billion to social security funds);
tax payments (0.9% of total public expenditure or € 1.6 billion).
“Operating costs” include all other outlay which is required to maintain government operations;
it includes items such as electricity, office equipment, cleaning supplies and rents.
The term “compensation of employees” here refers to the amount of money spent on the
remuneration of government sector employees. In addition to the cost of the 130,992 staff
(FTE) employed by the Federal Civil Service, which amounts to € 8.5 billion (equivalent to
4.9% of total public expenditure, or 2.6% of GDP), this amount includes the salaries of other
entities attributed to the Federal sub-sector, as well as the associated pension payments.
Finally the state, too, can be liable to pay tax, e.g. in the shape of production and import taxes,
as well as income and property taxes, all of which together amount to 0.9% of total state
expenditure.
12
Public administration in Austria
1.2.4.2 The government sector’s personnel expenditure by function
Modern welfare states, a category which can be said to include Austria as well as the other
European states, are characterised by the fact that they take on a great number of tasks. In
addition to justice and internal and external security, the services provided include education,
public health, pensions, environmental protection, transport and infrastructure, as well as social
services, among many others. Typically, these are areas in which the socially desired level of
service is, for various reasons, not expected to be adequately and comprehensively provided
by private markets.
In developed countries which are essentially market economies, the tasks carried out by
government tend to be quite similar, at least as far as European states are concerned. A
systematic breakdown of these tasks is provided by COFOG, the Classification of the
Functions of Government. This is a system for categorising government tasks along functional
lines in the context of national accounts, which basically sets out certain flows (of expenditure)
according to their purpose.
As shown in the previous chapter, the compensation of employees (which is the term used in
national accounts to refer to expenditure arising from the employment of personnel) accounts
for € 34,8 billion in Austria, or 20.2% of total public expenditure. A breakdown according to the
COFOG system of classification exists for this category of expenditure, too. Irrespective of
slight differences in salary levels among the different functional groups, this classification of
staff expenditure provides useful insights regarding the kinds of government tasks that are
particularly labour-intensive.
Figure 3 Compensation of employees in the government sector by function, 2013
30.5%
23.4%
15.4%
11.6%
Source: Statistik Austria. Data for 2014 were not yet available at the time of publication.
13
Social protection
Education
Recreation, culture
and religion
4.0%
Health
0.2%
Housing and
community
amentities
Economic affairs
Public order and
safety
Defence
3.7%
2.3%
0.6%
Environmental
protection
8.3%
General public
services
45%
40%
35%
30%
25%
20%
15%
10%
5%
0%
Public administration in Austria
Of the € 34.8 billion in compensation for employees paid within Austria’s government sector in
2013, education accounts for 30.5%. This shows that a considerable part of the staff paid from
public budgets are employed in schools, universities and other institutions of higher education,
or in institutions administrating these educational institutions.
About 15% of the total, compensation of employees in the “General public services” category
comes to approximately half of the amount spent in “Education”. General public services are to
be found at all levels of government, basically comprising all those government functions that
cannot be assigned to any other COFOG category. Tax administration and foreign affairs are
examples of these types of tasks at the Federal level.
The category of “Public order and safety” (8.3%) almost exclusively comprises Federal
authorities, particularly in the areas of the judiciary and the police.
In interpreting the above data it should be taken into account that services in some of the
COFOG categories are not exclusively rendered by the state but also by private entities, whose
personnel costs are not included in the diagram. A detailed breakdown of all entities making up
the government sector is to be found on the Statistik Austria website www.statistik.gv.at at
“Wirtschaft → Öffentliche Finanzen, Steuern → Öffentliche Finanzen → Öffentlicher Sektor”.
1.3 Civil Service incomes in comparison to the private sector
A comparison between the incomes of different groups of people is meaningful if these groups
do not differ with regard to any of the factors that influence pay levels. The risk of producing
misleading results is particularly high when comparing the private and public sectors, due to
the differences in their respective staff structures.
The key factors influencing levels of pay are age, level of qualification, as well as the proportion
of part-time work and of employment for part of the year (e.g. due to seasonal work or change
of employment).
Meaningful comparisons are to be found in a report on the income of Austria’s population
broken down by industry, occupational group and function, which is drawn up by Statistik
Austria on behalf of the Austrian Court of Audit. This report is published every two years as
required by law (Article 1 Section 8, Income Limitation Act (Bezügebegrenzungsgesetz)).
Median incomes are calculated on the basis of income tax data; the current data relate to the
year 2013.
The following income comparisons, which were taken from the above-mentioned report, are
specifically characterised by the fact that they exclusively relate to full-time workers employed
year-round. This eliminates two major obstacles to the meaningful comparison of incomes,
namely different proportions of part-time work and employment for part of the year. However,
differences in qualification levels and age are not taken into consideration. In interpreting the
data, particular attention must therefore be paid to these differences: the proportion of staff with
high levels of qualification (i.e. university graduates and persons having completed upper
secondary school) is relatively high in the Federal Civil Service at 49.6% (vs. 33.6% in the
14
Public administration in Austria
private sector); and the average age of Federal Civil Service staff is over seven years higher
than that of private-sector employees.
Table 5 Median gross annual incomes, 2013
Total
Men
Women
Blue collar workers
€ 30,775
€ 32,736
€ 22,725
White collar workers
€ 44,317
€ 52,401
€ 34,607
Public servants
€ 44,770
€ 46,982
€ 42,476
Source: Austrian Court of Audit
Table 6 Mean gross annual incomes, 2013
Total
Men
Women
Blue collar workers
€ 31,486
€ 33,495
€ 23,662
White collar workers
€ 53,650
€ 62,621
€ 40,069
Public servants
€ 49,761
€ 52,959
€ 46,142
Source: Statistik Austria
Austria’s public servants (i.e. the staff of Federal, Land and municipal authorities) earn more
than white collar workers in the private sector in terms of median income, and they earn less
than these in terms of the arithmetic mean (see Table 5 and Table 6). This appears to be due to
higher pay in the lower income brackets and small differences in the higher ones. 5 On the other
hand, top salaries in the private sector are particularly high, which raises the arithmetic mean.
The breakdown by sex shows that men working in public administration earn less than male
white collar workers in the private sector, while women employed in public administration earn
considerably more than their counterparts in the private sector (i.e. female white collar
workers). The Federal Civil Service is an important role model for other employers when it
comes to equal treatment of women and men, and supporting women in the workplace – a fact
which is reflected in the salaries it pays, among other things. Further information on this subject
is available in Chapter 5.6., under “Women and men”.
5
Cf. Income Report by the Austrian Court of Audit, abridges version,p.6
15
The organisational structure of the Federal Civil Service
2
The organisational structure of the Federal
Civil Service
The tasks of the Federal level of government are carried out by the Federal Ministries and their
subordinate bodies, which together form the institutional structure underpinning the respective
ministerial portfolios.
Public bodies which, due to their monitoring function vis-a-vis other institutions, or their role as
supreme courts of law, enjoy a special level of autonomy and independence, are subsumed
under the heading of “supreme state organs”. These include the Office of the Federal
President, the Parliamentary Administration, the Constitutional Court, the Supreme
Administrative Court, the Ombudsman Board and the Court of Audit. While these authorities
form part of the Federal Civil Service, they do not fit into the structure of Ministries and
subordinate bodies outlined above.
Powers and tasks are allocated to the individual Ministries primarily along the lines of policy
areas. This is laid down in the Federal Ministries Act (Bundesministeriengesetz), which also
regulates the organisational structure of individual Ministries, as well as the principles
governing the assignment of tasks within these. As is the case in any major organisation,
ministerial portfolios are subject to periodic restructuring, most recently under the 2014
amendment to the Federal Ministries Act.
2.1 Ministries and their subordinate bodies
The tasks assigned to the different Ministries show different degrees of labour intensity. While
Youth and Family, for example, has a staff of only 104, the Ministry of Education and Women
has 44,466 employees (as at 31 December 2014), most of them teachers and school
administration staff. These differences result from the way in which the provision of public
services is organised in Austria. Thus the considerable difference in staffing levels in the
example given above arises from the fact that a large proportion of the country’s teachers are
Federal employees, while health services, such as the operation of hospitals, are largely
provided by hospital operating companies within the spheres of competence of the Länder.
In addition to education, a large proportion of Federal Civil Service employees work in the
areas of internal (24%) and external security (16%). All in all, approximately three quarters of
all Federal Civil Service staff are employed within the areas of education and security.
16
The organisational structure of the Federal Civil Service
Figure 4 Distribution of staff among Federal Ministries, 2014
The proportion of Federal Civil Service staff working in the Ministries themselves is very low at
7.4%. Acting as interfaces between public administration and politics, the Ministries are in
charge of planning the realisation of government projects, placing them in an appropriate
institutional framework and coordinating their implementation.
The majority of all Federal Ministry staff (91.7%), however, are employed in the Ministries’
numerous subordinate bodies, which are charged with the operational implementation of the
tasks of the Federal Civil Service.
Finally, the staff of the so-called supreme state organs account for 0.9% of all Federal Civil
Service employees.
17
The organisational structure of the Federal Civil Service
Table 7 Distribution of staff among Federal Ministries as at 31 December 2014
Ministry
Total
Supreme state organs
1,115
Federal Chancellery
Staff
working in
headquarter
s
Staff
working in
subordinate
bodies
1,411
893
518
31,902
2,260
29,641
1,142
550
592
Ministry of Justice
11,107
223
10,884
Ministry of Defence and Sport
21,217
910
20,307
Ministry of Finance
10,525
701
9,823
1,519
539
981
Ministry of Health
344
344
Ministry of Family and Youth
104
91
13
44,466
597
43,869
2,812
1,104
1,709
835
596
240
2,494
837
1,656
130,992
9,645
121,347
Ministry of the Interior
Ministry for European and International Affairs
Ministry of Labour, Social Affairs and Consumer
Protection
Ministry of Education and Women's Affairs
Ministry of Science, Research and Economy
Ministry of Transport, Innovation and Technology
Ministry of Agriculture, Forestry, Environment and
Water Management
Total
The Federal Ministries themselves (i.e. the “headquarters”) are responsible for strategically
planning, steering and coordinating all activities of the Federal Civil Service.
In addition, the Federal Ministries are entrusted with managing a range of legal subject
matters, depending on their specific spheres of competence. This task primarily consists in the
drafting of legislation, usually along lines defined by the Federal Government. In cooperation
with experts in the respective field, draft legislation is thus generated which is eventually
adopted, or rejected, in Parliament.
Another important task carried out by the staff of Ministry headquarters consists in advising
politicians and supporting them in their decision-making, specifically by presenting different
possible approaches to a given issue, as well as their respective effects. This requires
comprehensive studies and analyses, as well as input from staff members with appropriate
expert know-how.
The bodies subordinate to the Federal Ministries, on the other hand, are responsible for
implementing laws and regulations, as well as providing a range of services, such as the
teaching of schoolchildren, the collection and administration of taxes, the training of recruits in
the Austrian Armed Forces, as well as the work done by the police and the judiciary, the
representation of Austria abroad, and numerous other tasks.
18
The organisational structure of the Federal Civil Service
It is the direct contact between citizens and public administration which happens at the level of
subordinate bodies that determines how the Federal Civil Service is perceived by its target
group. This is why these bodies’ degree of service orientation and the quality of service they
deliver are periodically subject to reform initiatives. Current information on the subject of public
administration innovation and reform is available online on our website
www.oeffentlicherdienst.gv.at under “Verwaltungsinnovation”.
Finally, Federal civil servants are also employed by various agencies, i.e. organisations (such
as institutes, public and private limited companies, etc.) established under private or public law
which have been entrusted with tasks that were formerly carried out directly by Federal
authorities and institutions. These employees are dealt with separately in the following chapter
and are not included in the staffing numbers given in Table 1, Diagram 4 and Table 7. This is
because the relevant personnel costs are largely refunded to the Federation by the respective
agencies.
2.2 Agencies
Agencies are entities under private or public law which have been set up outside the structures
of public administration to provide public services formerly rendered by Civil Service bodies
themselves.
The motivations for outsourcing services in this manner include considerations of investment or
financial policy with a view to avoiding budgetary constraints, the advantages of limited liability,
avoiding certain restrictions with regard to jurisdiction, as well as tax advantages. Base funding
for agencies and other hived-off entities is usually provided by the Federation in the form of
capped contributions.
When a Federal office or institution is thus hived off, any staff it employed under private-law
contracts become employees of the newly created institution. In other words, these staff
members then have a new employer. Civil servants in the narrower sense (i.e. those appointed
under public law), on the other hand, formally remain employees of the Federal Civil Service
while working for the agency in question.
19
The organisational structure of the Federal Civil Service
Table 8 Civil Servants working in agencies as at 31 December 2014 (in FTE)
Ministry
Agency
In FTE
Federal Chancellery
Bundesanstalt Statistik Austria (Statistics Austria)
Bundestheaterholding GmbH (Federal Theatres
Holding Company)
Cultural Affairs (Federal Museums, Austrian National
Library)
116
38
103
Federal Ministry for Europe,
Integration and Foreign
Affairs
Austrian Development Agency GmbH
Federal Ministry of Justice
Neustart (an association replacing the former Probation
Service)
Federal Ministry of Defence
and Sport
Amt der Bundessporteinrichtungen (Federal Sports
Facilities Office)
6
Federal Ministry of Finance
Bundesrechenzentrum GmbH (Austrian Federal
Computing Centre)
5
Österreichische Postsparkassen AG (Austrian Postal
Savings Bank)
Finanzmarktaufsichtsbehörde (Financial Market
Authority)
18
Buchhaltungsagentur (Federal Accounting Agency)
258
BundesbeschaffungsGmbH (Federal Procurement
Agency)
1
Arbeitsmarktservice (Public Employment Service)
IEF Service GmbH (Insolvency Payment Fund)
Bundesinstitut für Bildungsforschung, Innovation und
Entwicklung (Federal Institute for Education Research,
Innovation and Development of the Austrian School
System)
Federal Ministry of Science,
Research and Economy
Public universities
39
761
47
7
4,419
Österreichische Bibliothekenverbund und Service
GmbH (Austrian Library Network and Service
Company)
3
Schönbrunner Tiergarten GmbH (Schönbrunn Zoo)
6
Immobilienmanagementgesellschaft des Bundes mbH
(Federal Real Estate Company)
Federal Ministry of
Agriculture, Forestry,
Environment and Water
Management
306
10
Federal Ministry of Education
and Womens´s Affairs
Federal Ministry of Transport,
Innovation and Technology
38
Münze Österreich (The Austrian Mint)
Bundespensionsamt (Federal Pensions Office)
Federal Ministry of Labour,
Social Affairs and Consumer
Protection
2
208
ÖFPZ Arsenal GmbH (Arsenal Research)
22
via donau Österreichische Wasserstraßen GmbH
(Austrian Waterways)
58
Spanische Hofreitschule - Bundesgestüt Piber (Spanish
Riding School – Federal Stud Piber)
14
Umweltbundesamt GmbH (Austrian Federal
Environmental Agency)
57
20
The organisational structure of the Federal Civil Service
Ministry
Agency
In FTE
Landwirtschaftliche Bundesversuchswirtschaften
GmbH (Austrian Federal Research Farms)
Bundesforschungs- u. Ausbildungszentrum f. Wald,
Naturgefahren und Landschaft (Federal Research and
Training Centre for Forests, Natural Hazards and
Landscape)
Österreichische Agentur für Gesundheit und
Ernährungssicherheit GmbH (Austrian Agency for
Health and Food Safety)
Total
1
82
313
6,937
Successor companies of the Austrian Post Office
Total (including the successor companies of the Austrian Post Office)
21
14,218
21,154
Occupational groups in the Federal Civil Service
3
Occupational groups in the Federal Civil
Service
Public administration at the Federal level covers a wide range of diverse tasks, giving rise to a
great variety of job profiles which can, in turn, be categorised in several occupational groups.
Even though the image of the civil servant may still be strongly informed by the traditional
concept of the administrative officer, a large part of the work of the Federal Civil Service is not
done in offices but in schools, courts, police stations, military institutions, as well as in manifold
contexts “in the field”.
Just over one third of all Federal Civil Service staff belong to the administrative service, which
comprises a wide range of occupational profiles. By far the majority of staff members, however,
are to be found in the other major occupational groups, such as law enforcement or teaching.
The military, i.e. uniformed military personnel, as well as the group of judges and public
prosecutors, also account for a considerable proportion of all staff.
This shows that Federal Civil Service staff are anything but homogeneous as a group.
Accordingly, the members of these occupational groups represent diverse educational
backgrounds and are expected to fulfil a wide range of different of requirements. For example,
many of these occupations require a university degree; many employees are exposed to
physical stress resulting from irregular work rhythms, outdoor working, night work, etc. Nearly
all jobs in the Federal Civil Service require specialised training, which is available in the form of
in-service training and further training, building on qualifications gained at school or university.
This multitude of job profiles and qualification requirements is reflected in different
remuneration schemes, which largely coincide with the different occupational groups.
Table 9 Occupational groups in the Federal Civil Service
Occupational group
in FTE
in percent
Administrative service
44,654
34.1%
Teachers
39,034
29.8%
Law enforcement
30,200
23.1%
Military
13,675
10.4%
2,909
2.2%
Nurses
213
0.2%
School inspectors
260
0.2%
48
0.0%
Judges and public prosecutors
Others
Total
130,992
22
Occupational groups in the Federal Civil Service
In principle, Federal employees can be assigned to seven different groups. Several small
groups, such as land valuation experts, school physicians, inspectors of the must weight in
wine-making and the musicians of the Vienna Court Orchestra, are subsumed under the
category of “others”.
The members of the individual occupational groups differ not only regarding the nature of the
work they do. On the contrary: the proportion of civil servants (as opposed to private-law
employees), the women-men ratio, the proportion of part-time employees, average age,
income levels and other indicators are also of interest in this context.
On the following pages the main occupational groups are therefore characterised by means of
human resource indicators; furthermore, the key elements of their tasks are outlined and their
income levels (i.e. their mean gross incomes) are given.
Figure 5 Occupational groups in the Federal Civil Service
Administrative service
44,654
Teachers
39,034
Law enforcement
30,200
Military
Judges and public prosecutors
13,675
2,909
3.1 Administrative service
Comprising 44,654 staff members, the administrative service is the largest and, at the same
time, the most diverse occupational group within the Federal Civil Service. The range of job
profiles in this group is wide and varied. In simple terms, it could be said that all Federal Civil
Service staff whose job profiles do not fit in with that of any of the other occupational groups
belong to the administrative service. The occupations comprised in this group range from those
of legal experts, desk officers and system administrators to personnel development, surveying,
vehicle repair work and cleaning services. A high degree of specialisation in particular policy
areas and subject matters is a typical characteristic of members of the administrative service.
This occupational group is also highly differentiated with regard to the levels of hierarchy it
comprises, ranging from clerical staff to directors-general.
23
Occupational groups in the Federal Civil Service
Table 10 Administrative service
Total
Men
Women
44,654
22,379
22,275
47.0
48.5
45.7
Proportion of civil servants**
46.1%
57.3%
34.8%
Proportion of part-time staff**
17.5%
2.8%
30.6%
Proportion of women**
52.9%
Number of staff as at 31 Dec. 2014*
Average age**
* in FTE
** on a per-capita basis
Although a comprehensive list of all the different job profiles covered by the administrative
service would go beyond the scope of this study, a rough categorisation according to the
institutions they work in will provide an insight into the range of activities carried out by
administrative personnel.
Just under 8,900 members of the administrative service work in the Federal Ministries, i.e. in
the “headquarters“, where public administration activity is steered and coordinated. Their work
covers a wide range of tasks carried out by legal, business administration and budget experts,
economists, psychologists, personnel managers, experts in various specialised areas, as well
as support staff and many others.
The remaining 35,800 staff members serve in one of the so-called supreme state organs, or in
the numerous, larger or smaller subordinate bodies belonging to the Ministries. In these offices
a wide range of services is provided directly to the citizens, from handling applications to giving
advice in connection with specific individual problems.
The group of subordinate institutions with the greatest number of personnel (i.e. 8,900) are the
customs and tax offices. Their staff includes tax officers and tax auditors, to name just a few
examples. In addition to administrative and auditing tasks in the area of taxes and customs
duties, their main responsibilities include advising citizens on matters of taxation.
Military administration is another major sector within the administrative service category. The
6,500 staff members employed in this area work in the various military institutions, be it as
clerical staff, desk officers, technical personnel (such as engineers responsible for the
maintenance of special military vehicles), manual workers and cleaning staff.
3,000 administrative staff are employed in the area of internal security. They are responsible for
carrying out tasks which arise in connection with police work but are not reserved for specially
trained law enforcement officers. They are mainly assigned to the Directorates for Public
Security, as well as police headquarters at Land, municipal and district level.
Another 3,900 administrative staff work in Austria’s schools, their main tasks being the day-today running and organisation of these schools, i.e. all those activities required in order to
ensure the schools’ functioning – with the exception of the actual teaching.
24
Occupational groups in the Federal Civil Service
The diplomatic and administrative staff posted to the 100 Austrian representations worldwide
number approximately 600. Their tasks include, in particular, looking after Austrians who
permanently reside abroad and assisting those citizens who are temporarily staying in other
countries as tourists or on business and require help in an emergency. Further consular
activities include the issue of visas.
Figure 6 Distribution of administrative staff
Fewer than half of all administrative staff (46.1%) are employed under public law (i.e. they are
civil servants). The proportion of women in this group is higher than average at 52.9%, and the
percentage of employees who have opted for part-time work is also relatively high.
Table 11 Income quartiles in the administrative service, 2014
25%
50%
75%
earn less than
€ 26,877
€ 35,862
€ 52,639
One quarter of administrative staff earn less than € 26,877 per year, while the median annual
income in this group is € 35,862. Incomes in the top quartile lie above € 52,639.
25
Occupational groups in the Federal Civil Service
Table 12 Income quartiles for retired administrative staff, 2014
Number of (civil service) pensions
paid
27,102
25%
50%
75%
of pensions are lower than
€ 27,777
€ 34,707
€ 49,194
In line with the size of the administrative service group, the retired members of this group
account for the largest part of all retired Federal Civil Service staff. One half of retired
administrative staff receive pensions of € 27,777 to € 49,194, while the pensions of one quarter
each lie below and above these amounts, respectively. The current average retirement age in
this occupational group is 61.1 years.
3.2 Teachers
Federal teaching staff are employed at secondary academic schools, secondary technical and
vocational schools and colleges, as well as University Colleges of Teacher Education.
Table 13 Teachers
Total
Men
Women
39,034
16,284
22,749
47.0
48.2
46.1
Proportion of civil servants**
27.5%
30.2%
25.5%
Proportion of part-time staff**
31.8%
21.9%
38.7%
Proportion of women**
59.4%
Staffing level as at 31 Dec. 2014*
Average age**
* in FTE
** on a per-capita basis
The occupational group of teachers comprises 39,034 full time equivalents. They teach more
than 516,200 pupils and students (2013/14 school year) at almost 2,000 schools 6.
Approximately 6,800 Federal teachers (FTE) are teaching at private schools under an in-kind
subsidy scheme for these schools. 99% of all teachers fall within the sphere of competence of
the Ministry of Education. The 12 secondary schools and colleges for agriculture and forestry,
as well as the Agricultural and Environmental Teacher Training College (Hochschule für Agrarund Umweltpädagogik), which together employ approximately 1% of all Federal teachers, fall
within the sphere of competence of the Federal Ministry of Agriculture, Forestry, Environment
and Water Management.
In addition to Federal teachers, there are about twice as many teachers of the Länder teaching
at primary schools, lower secondary schools, special needs schools, pre-vocational schools, as
well as technical and vocational schools for apprentices. While these teachers are employed
6
This figure is based on the number of school types, including the so-called New Secondary Schools (Neue
Mittelschulen), rather than school locations (i.e. there may be several school types under one roof in a particular
location).
26
Occupational groups in the Federal Civil Service
by the Länder, the associated personnel costs are borne by the Federation under the public
revenue sharing scheme.
28% of all teachers are civil servants, while the remaining 72% are employed on the basis of
private-law contracts. Teachers are one of those occupational groups in which a contractbased model of employment exists as an alternative to being a civil servant appointed under
public law. As a result of the current freeze on awarding civil servant status to teachers, the
proportion of civil servants among this occupational group is steadily declining. The relatively
high average age results, on the one hand, from the fact that most Federal teachers are well
above the age of 20 by the time they finish their university studies and enter the teaching
profession and, on the other hand, from the fact that a high proportion of teachers currently
belong to the higher age groups.
At 59.4% the proportion of women among teachers is the highest of all occupational groups. It
is safe to assume that this is connected to the proportion of part-time employees, which is high
at 31.8%; however, the percentage of male teachers working part-time is also above average
at 21.9%.
Table 14 Income quartiles for teachers, 2014
25%
50%
75%
earn less than
€ 32,109
€ 51,143
€ 68,905
The high proportion of part-time workers is to be taken into account when considering the
median income of teachers. One quarter of all teachers earn less than € 32,109, while those in
the top quartile earn more than € 68,905. The incomes of the remaining half of the
occupational group fall between these two levels; the median income for the occupational
group is € 51,143.
Table 15 Income quartiles for retired teachers, 2014
Number of (civil service) pensions
paid
17,768
25%
50%
75%
of pensions are lower than
€ 47,314
€ 56,638
€ 64,621
17,768 retired teachers are drawing their pensions from the Federal Civil Service, due to the
fact that they are civil servants. The median pension amounts to € 56,638. Half the pensions
are between € 47,314 and € 64,621, with 25% below and 25% above this range, respectively.
The average retirement age for teachers is 62.2 years, representing a slight increase
compared to the previous year (61.3 years).
27
Occupational groups in the Federal Civil Service
3.3 Law enforcement
The number of law enforcement staff is 30,200 FTE, including just under 3,100 prison guards
in addition to police officers.
The key responsibilities of the police include combating and preventing crime, as well as
various tasks in the area of road safety. One of the main objectives of the police is to be in a
position to provide professional, on-location assistance as quickly as possible in the case of
imminent danger.
A career in law enforcement requires a type of training which is not available in “civilian”
schools. Even though most law enforcement officers have gained some kind of civilian
qualifications (e.g. an apprenticeship or an upper secondary school-leaving certificate), they
receive their actual police training at specialised Federal training institutions.
Law enforcement officers receive their basic training, which lasts 24 months, at one of ten
training centres spread throughout the country. In order to be admitted to the training course,
candidates must pass an entrance exam, which tests their personal as well as their
professional aptitude. In addition to operations training, which prepares participants for
concrete police tasks, key elements of the course include comprehensive legal and personal
skills training.
For the duration of their training, trainee law enforcement offers enter into a contractual
employment relationship with the Federation, i.e. they are not civil servants in the full sense of
the word yet.
In order to allow young officers to broaden their knowledge and experience after completing
their training, transfers during the first two years of an officer’s career were made easier in
2008. These transfers, which are possible within the respective Land, represent a form of
extended practical training which is intended to familiarise officers with a wide variety of
professional challenges and situations.
Important yet smaller groups within the law enforcement category include highly specialised
officers such as those serving in bomb disposal and mine-clearing squads, or in the “Cobra”
flying squad, a specialised unit which is deployed in particularly high-risk situations. In this
context WEGA (Wiener Einsatzgruppe Alarmabteilung), a Vienna-based flying squad, should
also be mentioned. Among other things, this unit provides country-wide assistance in
operations which are classified in advance as potentially confrontational, thus requiring the
intervention of specially trained and equipped units.
The majority of law enforcement officers are employed by the Ministry of the Interior, while the
approximately 3,100 prison guards, whose main task is to maintain order and security in
prisons, belong to the Ministry of Justice. The prison guards’ field of responsibility also includes
looking after prisoners and occupying them with a view to facilitating rehabilitation and keeping
the recidivism rate at a minimum.
28
Occupational groups in the Federal Civil Service
Table 16 Law enforcement
Total
Men
Women
30,200
26,204
3,995
43.0
44.4
34.0
Proportion of civil servants**
93.9%
94.9%
87.4%
Proportion of part-time staff**
4.6%
1.9%
21.4%
Number of staff as at 31 Dec. 2014*
Average age**
Proportion of women**
14,2%
* in FTE
** on a per-capita basis
The average age of law enforcement officers is 43.0 years. The proportion of women is 14.2%,
i.e. it has increased compared to the previous year (13.7%). In the law enforcement category in
particular, the proportion of women has risen substantially, more than doubling within the last
decade.
The proportion of part-time staff in this occupational group continues to be low at 4.6%. One
reason for this is the comparatively high percentage of men, in combination with the fact that
men choose the option of working part-time more rarely than women.
Table 17 Income quartiles in law enforcement, 2014
25%
50%
75%
earn less than
€ 40,922
€ 48,759
€ 56,302
The median gross annual income for law enforcement officers is € 48,759. Like the incomes of
all Federal Civil Service staff, those of law enforcement officers consist of a base salary, as well
as various allowances and bonuses. In contrast to other occupational groups, allowances and
bonuses account for a particularly high proportion of the earnings of law enforcement officers.
This is due to weekend and night duty, a high amount of overtime, as well as the specific
dangers and hardships associated with the work of law enforcement officers.
Table 18 Income quartiles for retired law enforcement staff, 2014
25%
Number of pensions paid
15,253
50%
75%
of pensions are lower than
€ 32,019
€ 36,692
€ 41,773
There were 15,253 retired law enforcement officers in 2014. Their median gross annual income
was € 36,692. At 58.0 years, the average retirement age for members of this occupational
group lies below the Federal Civil Service average as many law enforcement officers take early
retirement as a result of occupational disability. However, the proportion of officers pensioned
off due to disability has decreased from 69% to 39% since 2005. This development has
29
Occupational groups in the Federal Civil Service
contributed to the rise in the retirement age for law enforcement officers of 3.7 years which was
registered during the same period.
3.4 Military
The Federation’s 13,675 military staff (FTE) fulfil various functions in the field of security, such
as assisting in policing Austria‘s borders where necessary, providing surveillance and control of
Austria’s airspace, and carrying out disaster relief operations, for instance after floods or
avalanches. 1,064 soldiers (as at December 2014) are deployed in peacekeeping missions on
a mandate from the United Nations.
Based on the proposals presented by the Armed Forces Reform Commission, further steps
were taken in 2006 in order to prepare the Austrian Armed Forces, with regard to both
personnel and structures, for its new focus on international crisis management. Tasks in the
context of international crisis management are primarily carried out by so-called “FIOP” (Forces
for International Operations). Among the FIOP, High Readiness Units are characterised by their
particularly short response time, i.e. they must be ready for deployment to crisis areas within a
few days.
Some members of High Readiness Units are employed by the Federal Civil Service on the
basis of private-law contracts, an exceptional arrangement as members of the military
occupational group are usually civil servants. This employment option has been available since
2003, based on a special three-year contract, with the option of renewal. In addition to their
high degree of readiness, the soldiers serving in these units are characterised by the special
training required for deployment abroad. These high requirements are reflected in a special
remuneration scheme. 1.101 High Readiness Unit personnel were employed on a contract
basis as at 31 December 2014.
Table 19 Military
Total
Men
Women
13,675
13,491
256
42.5
42.8
32.0
Proportion of civil servants**
90.4%
90.5%
86.3%
Proportion of part-time staff**
1.0%
0.9%
8.0%
Proportion of women**
1.9%
Number of staff as at 31 Dec. 2014*
Average age**
* in FTE
** on a per-capita basis
At 42.5 years, the average age in the military category is relatively low compared to other
occupational groups, a difference which is due, among other things, to the fact that most staff
join the military immediately after their compulsory military service.
30
Occupational groups in the Federal Civil Service
Career planning is of high importance in this occupational group. Depending on their respective
career paths, the members of this group are expected to attend the NCO Academy (for noncommissioned officers) or the Theresian Military Academy (for commissioned officers). Even
though the proportions of women and part-time employees in the military are still low, both
have been rising since military careers were opened up to women in April 1998.
Table 20 Income quartiles for the military, 2014
25%
50%
75%
earn less than
€ 34,012
€ 40,830
€ 49,121
25% of military staff earn less than € 34,012, while another 25% earn more € 49,121. The
annual incomes of the remaining 50% lie between these two levels. The median income for this
occupational group is € 40,830.
Table 21 Income quartiles for retired military staff, 2014
Number of (civil service) pensions
paid
4,462
25%
50%
75%
of pensions are lower than
€ 33,901
€ 37,138
€ 43,793
25% of all pensioners in the military occupational group receive pensions of less than € 33,901,
while the pensions of another 25% lie above € 43,793. At 60.2 years, the average retirement
age for this occupational group is below the Federal average, having decreased by 0.1 years in
comparison to the previous year (60.1 years).
3.5 Judges and public prosecutors
This occupational group, which comprises two different job profiles, accounts for a total of
2,909 Federal Civil Service staff (FTE).
The task of judges is the administration of justice, i.e. adjudicating in legal disputes under civil
law, as well as in criminal matters. Unlike most other Federal Civil Service staff, judges are not
subject to instructions. In order to guarantee their independence and to prevent any undue
influence on their decisions, they are also not subject to transfer or removal from office.
Public prosecutors are responsible for representing the public interest in proceedings under
criminal law, i.e. first and foremost bringing charges and representing the prosecution in
criminal trials. Public prosecutors are subject to instructions under a system which is regulated
in detail by law.
31
Occupational groups in the Federal Civil Service
Table 22 Judges and public prosecutors
Total
Men
Women
2,909
1,446
1,463
45.2
47.4
43.1
Proportion of civil servants**
100.0%
100.0%
100,0%
Proportion of part-time staff**
10.2%
1.3%
18.4%
Proportion of women**
52.2%
Number of staff as at 31 Dec. 2014*
Average age**
* in FTE
** on a per-capita basis
In this occupational group there is no alternative to entering into an employment relationship
under public law. In other words, all judges and public prosecutors are civil servants. Their
average age is 45.2 years. The proportion of women is 52.2%, making this occupational group
one of those with an almost balanced proportion of men and women, along with the categories
of teachers and the administrative service.
The central importance accorded to ensuring a high standard of quality in the judiciary is
expressed in the high level of qualification required of its members, the strict selection
procedures they have to undergo, but also the above-average level of income they earn. A
fundamental prerequisite for entering this occupational group either as a judge or as a
prosecutor is the completion of a law degree.
As at 31 December 2014, 84.4% of all judges and public prosecutors were employed by the
Federal Ministry of Justice, 2.3% by the Supreme Administrative Court, 5.7% by the Federal
Administrative Court and 7.6% by the Federal Fiscal Court.
The Federal Administrative Court hears complaints against decisions in matters falling within
the jurisdiction of Federal authorities throughout Austria, with the exception of matters coming
under the jurisdiction of the Federal Fiscal Court, which also took up operations on 1 January
2014. In addition, both courts are competent to rule on complaints against direct orders or
coercive action, as well as failure on the part of an authority to render a timely decision.
Table 23 Income quartiles for judges and public prosecutors, 2014
25%
50%
75%
earn less than
€ 54,854
€ 79,597
€ 95,808
The income levels of judges and public prosecutors differ considerably over the course of their
careers. While one quarter of this occupational group earn less than € 54,854 the incomes of
the top quartile are above € 95,808.
32
Occupational groups in the Federal Civil Service
Table 24 Income quartiles for retired judges and public prosecutors, 2014
25%
Number of pensions paid
1,166
50%
75%
of pensions are lower than
€ 73,733
€ 80,114
€ 92,141
25% of the 1,166 retired judges and public prosecutors receive pensions of less than € 73,733,
while the pensions of those within the top quartile lie above € 92,141. The retirement age of the
members of this occupational group has risen noticeably compared to the previous year (62.4
years) and is currently at 63.0 years, making it the highest among all occupational groups
within the Federal Civil Service.
33
Traineeships, internships and apprenticeships in the Federal Civil Service
4
Traineeships, internships and
apprenticeships in the Federal Civil Service
All Federal Civil Service staff undergo some form of internal training in order to ensure the best
possible preparation for the specific tasks awaiting them in public administration. This includes
schemes such as the initial training to be attended over the first few years of a career in the
administrative service, as well as e.g. the basic training programme for law enforcement
officers provided by the police training centres. What these training schemes have in common
is the fact that they all prepare staff members for their tasks in the Federal Civil Service, and
that employees attend them as part of their employment relationship.
In addition to those mentioned above, the Federal Civil Service also provides training
opportunities which are not exclusively tailored to people working in public administration but
provide qualifications for employment in the private sector, too. Undergoing such training
therefore does not form part of an employment relationship. The range of this kind of training
opportunities provided by the Federal Civil Service includes administrative traineeships, court
internships for law graduates, teaching practice for secondary school teachers, as well as
many different types of apprenticeships. Trainees, interns and apprentices in the Federal Civil
Service receive different levels of pay depending on the type of training they are undergoing.
4.1 Public administration traineeships
Traineeships in the Federal Civil Service were established as early as 2004. This arrangement
allows trainees to deepen and widen the education or training they have received by gaining
practical experience in an appropriate area of public administration. These traineeships are
intended to form an interface between a trainee’s previous education or training and their future
employment, be it in the Federal Civil Service or elsewhere. Traineeships are available for
persons who, in addition to completing compulsory schooling, have finished secondary
technical or vocational school or college, secondary academic school, or an apprenticeship, or
have graduated from university or other institutions of higher education; the duration of
traineeships is limited to one year. Depending on their level of qualification, public
administration trainees receive a training allowance amounting to the monthly pay of a privatelaw employee undergoing initial training, i.e. Level 1 of the appropriate pay scale. During the
first three months of a traineeship, the allowance paid is half that amount. The only
precondition for an institution of the Federal Civil Service to take on administrative trainees is
the availability of the required funds in the budget. 607 administrative trainees were working in
the Federal Civil Service as at 31 December 2014. 69% of these trainees were women, and
305 were graduates of universities or other institutions of higher education. Since 1 January
2012 unpaid traineeships in the Federal Civil Service have been prohibited under Section 36e,
VBG.
34
Traineeships, internships and apprenticeships in the Federal Civil Service
4.2 Court internships
A court internship – or a “year at court”, as it is colloquially known – is intended to provide law
graduates with an opportunity to continue their legal education by working at a court of law,
thus deepening their legal knowledge and putting it to the test of practice. The training is
designed in such a way as to give interns the most comprehensive possible insight into the
work of the judiciary and the working of courts and various associated institutions. In the
interest of providing a broad overview of the judicial system, the training comprises civil as well
as criminal law matters.
Court interns receive a remuneration of € 1,035 a month for their work.
Law graduates are legally entitled to do a court internship, and most of them make use of this
opportunity as there are very few employers who do not require this practical training of
candidates for jobs in the legal profession.
It is while undergoing their court internship that law graduates may apply to be admitted to the
judicial training programme. Trainee judges are required to attend a specially designed course,
which 757 persons were doing at the end of 2014. 453 of these judicial trainees were women,
304 were men, bringing the proportion of women among trainee judges to 59.8%.
4.3 Teaching practice and induction phase
Up until now, trainee teachers of general education subjects at upper secondary schools and
academic secondary schools (upper and lower levels) have been required to complete a period
of so-called teaching practice. This aims to introduce graduates to the practical side of teaching
and to give them an opportunity to show their suitability for their chosen profession.
The teaching practice programme comprises two main elements: participation in a training
course at a teacher training college and on-the-job training at a school. In addition to teaching,
the latter includes observing the teaching of others, substituting for temporarily absent teachers
and participation in school events. Finally, trainee teachers have to assess and grade pupils’
performance under the supervision of an experienced teacher.
Trainee teachers receive a monthly training allowance of € 1,154.39. At the end of 2014, 1,163
trainee teachers (71.4% of them women) were employed at federal schools.
On 1 September 2015 the new employment regulations for teachers entered into force. These
will continue to apply to new entrants on an optional basis until the end of the 2018/19 school
year. From the beginning of the 2019/20 school year, all new entrants will be subject to the new
system. Under the new rules, graduates of teacher training programmes for the schools in
question are now offered immediate employment as teachers instead of teaching practice.
During the first twelve months of their employment, new entrants undergo an induction phase
accompanied by a mentor. During the induction phase, teachers are required to cooperate with
their mentors and to act in accordance with their instructions, to observe the teaching of others
and to attend induction sessions at a teacher training college or university. Admission to this
35
Traineeships, internships and apprenticeships in the Federal Civil Service
induction phase is contingent on an employment relationship and thus, on the availability of
(part of) an established post; however, it does not depend on any particular teaching load. The
old teaching practice scheme will expire on 31 August 2019.
4.4 Apprentices
The Federal Ministries and their subordinate bodies, as well as the various agencies, support
the training of apprentices with a view to facilitating young people’s smooth entry to the world of
work by providing them with appropriate qualifications and ensuring the best possible
prospects for them.
Efforts in the area of apprenticeship training have been stepped up considerably since
September 2004. The objective defined at the time, namely to raise the number of
apprenticeship places within Federal Civil Service institutions and associated agencies by
creating 800 additional training opportunities of this kind, had been achieved by 2005. As a
result of consistently continuing this approach, 3,670 apprentices are currently (i.e. as at
December 2014) being trained by the Federal Civil Service and its agencies. The number of
apprentices receiving their training in the Federal Civil Service in December 2014 was
precisely 1,427. At the same time the total number of trainees in Federal agencies was 2,243.
In selecting the occupational areas in which to offer apprenticeship training, and in designing
the relevant training programmes, particular attention was paid to ensuring good prospects on
the labour market for apprentices who have completed their training. In fact, employability in
different areas of business was a key criterion in this context. Thus, in addition to the “classic”
qualification of administrative assistant, young people are increasingly gaining technical
qualifications in areas including information technology, metal working, aviation technology and
surveying, to name just a few examples. Besides these occupations, apprenticeship training is
also available in traditional fields such as cabinet making or dressmaking/tailoring, as well as in
rarer ones such as dairy processing or viticulture and winemaking. All in all, young people are
serving apprenticeships in 53 different fields in the Federal Civil Service.
A number of specific measures are intended to ensure that Federal Civil Service apprentices
will find suitable employment opportunities in the private sector, too. These measures include
job rotation schemes, both within and outside the institution where the respective
apprenticeship is being served, as well as measures that go beyond vocational training as
such, e.g. support in preparing for the Vocational Matriculation Exam (Berufsreifeprüfung),
which combines an upper secondary school leaving certificate with vocational qualifications.
36
The staff of the Federal Civil Service
5
The staff of the Federal Civil Service
5.1 The development of staffing levels
The total staffing of the Federal Civil Service has been significantly reduced since 1997.
Figure 7 Staffing levels 1997 to 2014
The rise from 2013 to 2014 is due to the integration into the Federal Civil Service of civil
servants formerly employed by Post AG and A1 Telekom AG (i.e. successor companies of the
former national post and telecommunication provider), an increase in the numbers of law
enforcement officers and teachers, the creation of the new administrative court system, as well
as the establishment of the Federal Office for Immigration and Asylum.
37
The staff of the Federal Civil Service
Table 25 Changes in staffing levels, 1999 to 2014
This total comprises
Year
Staffing
level in FTE
as at 31
December
Changes compared
to previous year
(total)
staffing level
changes in the
Federal Civil
Service
staffing level
changes in
hived-off
entities
1999
166,491
2000
162,561
-3,930
-2,582
-1,349
2001
158,897
-3,664
-2,755
-909
2002
155,173
-3,724
-2,265
-1,459
2003
150,135
-5,038
-4,844
-193
2004
132,756
-17,379
1,286
-18,665
2005
133,287
531
1,221
-690
2006
133,312
25
103
-78
2007 7
132,731
-581
-56
-116
2008
132,784
53
63
-11
2009
132,908
124
124
2010
132,804
-104
-104
2011
132,357
-447
-447
2012
131,183
-1,174
-1,174
2013
129,873
-1,310
-1,310
2014
130,992
1,119
1,119
-35,499
-11,621
-23,469
-21.3%
-7.0%
-14.1%
Changes between
1999 and 2014
Since 1999, staffing levels in the Federal Civil Service have shrunk by a total of 35,499
employees. This was in part due to the creation of agencies and other separate entities (23,469) and in part to a reduction in the staffing levels of entities that had not been hived off (11,621).
In order to achieve the desired staff reduction, target levels have been defined for each
Ministry. In addition, human resource auditing has been set up as an accompanying measure
to monitor the implementation of these targets and to facilitate early intervention in the case of
any undesired developments. The target staffing levels were defined in terms of the number of
full time equivalents to be achieved by 31 December of a given year. Beyond this, no further
restrictions applied, allowing the Ministries the greatest possible freedom for their own, internal
HR management.
7
Difference due to a change in the method of counting apprentices and local staff in foreign locations: -410 FTE
(i.e.-0.2%)
38
The staff of the Federal Civil Service
5.1.1 Development of staffing levels in the different occupational groups
As part of the budgetary consolidation policy of the last few years, a number of priorities have
been set in HR management. The following sections discuss the effects of the associated
control measures on staffing levels within the key occupational groups.
The changes in staffing levels described below relate to the Federal Civil Service; savings
resulting from hiving off entities and transforming them into agencies are not taken into
account.
Administrative service
The administrative service has been the most strongly affected by staff cuts. 17.6% of all posts
that have fallen vacant since 1999 have not been filled, resulting in cuts equivalent to
approximately 9,500 FTE. In other words, every sixth job has been eliminated.
This development has been facilitated by reforming government tasks, implementing leaner
processes, and increased use of new information technologies.
Figure 8 Development of staffing levels in the administrative service
54.000
52.000
50.000
48.000
46.000
44.000
42.000
40.000
The diagram shows a marked decrease in 2003 as a result of an early retirement scheme (with
pension reductions) for staff aged 55 or over, which was introduced under the Law establishing
a social plan for Federal Civil Service staff (Bundesbediensteten-Sozialplangesetz – BBSozPG). This scheme, which was open to all occupational groups, was only available in 2003.
The rise from 2013 to 2014 is due to the integration into the Federal Civil Service of civil
servants formerly employed by Post AG and A1 Telekom AG.
Military service
The military service, too, has been affected by downsizing measures in recent years. 16.6% of
all posts that have fallen vacant since 1999 have not been filled, resulting in staff cuts to the
extent of 2,713 FTE.
39
The staff of the Federal Civil Service
Command and administrative structures have been adjusted in line with the Armed Forces
2010 (Bundesheer 2010) report and the 2002 Reorganisation Scheme (Reorganisation 2002).
Particular attention was paid in this context to setting the strengths of formations and units in
accordance with international standards, as well as developments in the areas of technology
and equipment. Streamlining underlying organisational structures for the benefit of operational
structures was a key objective in this context.
Figure 9 Development of staffing levels in the military service
17.000
16.500
16.000
15.500
15.000
14.500
14.000
13.500
13.000
12.500
12.000
Law enforcement
Law enforcement staff are employed as police officers by the Ministry of the Interior, and as
prison guards by the Ministry of Justice.
Prior to the merger of law enforcement bodies in 2003, just under 2,000 law enforcement
officers were working for the Ministry of Finance. In 2004 approximately 1,100 former customs
guards were transferred to the Ministry of the Interior following the abolition of this service in
the Ministry of Finance. The remaining ex-customs guards were integrated into the
administrative service.
The following diagram shows the development of law enforcement staff in the police and the
prison service over time. In order to avoid any distortion in interpreting these figures, the data
relating to the customs guards in the Ministry of Finance (i.e. pre-dating the merger) have been
excluded here, i.e. these staff members have not been counted as law enforcement officers.
Staffing levels in law enforcement (i.e. police and prison guards) have risen by 1.3%, or 395
FTE, since 1999.
40
The staff of the Federal Civil Service
Figure 10 Development of staffing levels in law enforcement
30.500
30.000
29.500
29.000
28.500
28.000
27.500
27.000
26.500
26.000
25.500
The sharp drop of 1,200 FTE in 2003 is due to reduction targets being met, as well as the
uptake of the social plan under the BB-SozPG. Staffing levels rose again following the transfer
of the former customs guards from the Ministry of Finance. A linear increase to the extent of
1,000 police officers is being implemented over the 2009 to 2013 period. Another 151
additional law enforcement officers were employed in 2014.
Teachers
Teachers are primarily employed in the schools operated by the Ministry of Education and by
the Ministry of Agriculture and Forestry.
At the time of the hiving-off of the public universities, almost 1,000 Federal teaching staff were
working at the universities and art academies. The diagram below shows the development of
staffing levels among school teachers without their colleagues teaching at the hived-off
universities, thus ensuring a comparable database.
Compared to 1999, the number of Federal school teachers at work in Austria’s classrooms has
risen by 8.7%, or approximately 3,119 FTE. Various measures have contributed to this
development, including the following: a reduction in the maximum number of pupils per class, a
fall in the drop-out rate, increased availability of after-school day-care in the schools, lower
thresholds for splitting classes for foreign language teaching, the introduction of Neue
Mittelschule (a new type of secondary school with more teachers per class), and a rise in the
number of pupils, in particular at technical and vocational colleges.
41
The staff of the Federal Civil Service
Figure 11 Development of staffing levels among school teachers
40.000
39.000
38.000
37.000
36.000
35.000
34.000
33.000
32.000
Judges, prosecutors and trainee judges
By far the largest part of this occupational group (i.e. 84.4%) are employed at the courts and
public prosecutor’s offices operated by the Ministry of Justice. In addition to these, judges are
working at the Supreme Administrative Court, the Federal Administrative Court and the Federal
Fiscal Court.
Compared to 1999 this occupational group has grown by 25.6%, or 594 FTE, reasons are the
foundation of the Asylum Court in 2008 as well as the foundation of the Federal Administrative
Court and the Federal Fiscal Court in 2014 (+ 95.3 FTE). Furthermore, increased emphasis
has been placed on combating white-collar crime and corruption, which necessitated a further
rise in staff numbers within this occupational group.
Figure 12 Development of staffing levels among judges, prosecutors and trainee judges
2.600
2.500
2.400
2.300
2.200
2.100
2.000
5.2 Levels of qualification
Education, training and further training are accorded a high level of importance in the Federal
Civil Service. As a matter of general principle, civil servants must thus show a specific level of
42
The staff of the Federal Civil Service
qualification in order to be eligible for any particular post. All staff undergo some form of initial
or basic training provided by the employer; in addition, further, in-service training is also seen
as an important element of personnel development by the Federal Civil Service.
Figure 13 Levels of qualification (as reflected in the corresponding pay schemes)
The percentages given in Diagram 13 have been derived from the different pay schemes that
staff members are assigned to. As a rule, these pay schemes reflect the highest level of
qualification attained by the respective staff member, an exception being the law enforcement
group. In this group, the principle of eligibility based on the level of qualification attained is of
secondary importance as the specific training required for careers in this occupational group is
only available at the relevant Federal Civil Service training centres. So far it has been possible
for law enforcement officers to qualify for classification in any pay scheme by way of internal
training, regardless of the level of qualification achieved before embarking on a career in law
enforcement. This is why law enforcement officers are listed separately here as “nonassignable”.
In the last few years recruitment policy has developed in such a way that one third of all new
law enforcement personnel gained upper secondary school-leaving certificates before being
recruited. It can therefore be assumed that the proportion of Federal Civil Service staff with this
particular level of qualification lies above the 16.9% shown in the above diagram.
The main reason for the high proportion of university graduates in the Federal Civil Service
(32.6%) is to be found in the composition of certain occupational groups: judges and public
prosecutors, as well as most Federal teachers, hold university degrees. Due to its size, it is the
group of teachers in particular that has a strong influence on the overall level of qualification
within the Federal Civil Service. Furthermore, the Federal Ministries have a great need for
experts in their respective policy areas, as well as for legal experts, as the drafting of legislation
43
The staff of the Federal Civil Service
is a key task of Ministry staff. Generally it can be said that the prevailing trend towards
restricting the activities of public administration to its core areas of responsibility has entailed
the outsourcing of many operative activities which tend not to require as high a level of
qualification. Another reason for the high proportion of graduates within the Federal Civil
Service is the fact that typical frontline services requiring a lot of skilled personnel and support
staff fall within the sphere of competence of Land (i.e. Regional) and local authorities.
Finally, there are certain areas of Federal competence which tend to be rather labour intensive,
where only the decision-making powers lie with the responsible Federal Ministry while the
operative side, i.e. the implementation of policies, is delegated to private entities.
Table 26 Proportion of university graduates
Year
Federal Civil
Service
Private sector
1998
29.2%
4.0%
2000
30.6%
4.7%
2005
28.9%
7.9%
2010
31.5%
10.4%
2011
31.8%
10.6%
2012
32.2%
11.7%
2013
32.6%
12.6%
2014
32.6%
13.7%
Source of private sector data: Statistik Austria
The proportion of university graduates has risen steadily over the last few years. This trend
was only interrupted in 2004, when the state-owned universities were hived off, with the result
that the entire group of university teaching staff has not been included in the relevant Federal
Civil Service statistics since that year. The 2.4% in the private sector in 2004 is due to the fact
that the graduates of universities of applied sciences (Fachhochschulen) have been counted
as university graduates since that year.
5.3 Types of employment relationship
5.3.1 Federal Civil Service staff by type of employment relationship in FTE
There are basically two types of employment relationship in the Federal Civil Service, governed
by public and private law, respectively. Of these, employment under public law (i.e. the status
of being a “civil servant” in the narrower sense) is still predominant, although the number of civil
servants has been going down for a number of years now. This type of employment
relationship is based upon a sovereign act of the state (i.e. the appointment of the civil servant)
44
The staff of the Federal Civil Service
and only expires upon his/her death (or resignation or dismissal). Private law employment
relationships, on the other hand, are based on a contract of employment like those in the
private sector, and end upon the employee’s retirement (or resignation or dismissal).
Owing to the restrictive policy on appointing civil servants under public law and to the freeze on
awarding this status during the last few years, the number of civil servants among Federal Civil
Service staff is steadily decreasing. The measures taken to reduce the number of civil servants
are aimed at those occupational groups in which employment on the basis of private-law
contracts is possible as an alternative to appointment under public law. These occupational
groups are the administrative service, as well as teachers and nurses.
Figure 14 Proportion of civil servants by occupational group
As a result of the freeze on public-law appointments, retired civil servants are being replaced –
to the extent that their replacement is required – by private-law employees in those
occupational groups where this alternative mode of employment is possible. For this reason
divergent trends can be observed between civil servants and private-law employees. Despite a
slight increase in private-law employment relationships, the number of employment
relationships governed by public law has markedly decreased, leading to a reduction in overall
staffing levels. The reduction in the numbers of both civil servants and private-law employees
in 2004 resulted from the hiving-off of the universities in that year.
45
The staff of the Federal Civil Service
Table 27 Federal Civil Service staff by type of employment relationship*
Year
Civil servants
Private-law
employees
Total number of
staff
2003
99,427
50,708
150,135
2004
90,058
42,698
132,756
2005
89,207
44,080
133,287
2006
88,218
45,094
133,312
2007
86,571
46,160
132,731
2008
85,231
47,553
132,784
2009
83,539
49,369
132,908
2010
81,312
51,492
132,804
2011
79,574
52,783
132,357
2012
77,447
53,736
131,183
2013
75,053
54,820
129,873
2014
75,201
55,791
130,992
*in FTE
The restrictive policy on appointing civil servants is also reflected in the distribution of civil
servants among the different age groups, i.e. the proportion of civil servants is markedly lower
in the younger age groups. This proportion is approximately 73% in the over-50 group, while it
is only approximately 42% in the under-40 group.
Table 27 shows the distribution of staff according to type of employment relationship in full time
equivalents. Expressed on a per-capita basis (i.e. based on the number of employment
relationships), the proportion of civil servants (as opposed to private-law employees) within the
Federal Civil Service is 57.4%.
5.3.2 Recent policy on civil service appointments
In 1997 the first measures were launched which were aimed at stopping the rise in the
proportion of civil servants in those occupational groups where private-law employment is a
possible alternative. It was in November 2003 that an effective stop to public-law appointments
was imposed for the first time, a measure which is still in force for an indefinite period of time.
As the appointment of civil servants has not been possible in those occupational groups where
alternative forms of employment exist (i.e. the administrative service, teachers and nurses), the
total number of civil servants is steadily decreasing.
At the end of 2014, there were 76,952 civil servants working within the Federal Civil Service
itself. Another 6,985 were working in institutions that had been hived off from the Civil Service
46
The staff of the Federal Civil Service
(excluding the successor companies of the Austrian Post Office). These figures have not been
converted to FTE, i.e. they relate to the number of employment relationships.
The 76,952 civil servants mentioned above are equivalent to a proportion of 54.9% of all staff
working within the Federal Civil Service. This represents a decrease of 0.3 percentage points
compared to the previous year.
The combined effect of these measures on the number of civil servants is evident: while there
were 119,178 civil servants working for the Federal Civil Service and the institutions that were
hived off from it (excluding the successor companies of the Austrian Post Office), this number
has since shrunk to 83,937.
5.4 The age structure of Federal Civil Service staff
The average age of Federal Civil Service staff is 45.6 years, an indicator which is very high in
comparison with the private sector; there the average age is 37.9, i.e. significantly lower.
Figure 15 The age structure of the Federal Civil Service in 1995 and 2014, and of all
Austrian employees in 2014
100%
90%
22.2%
80%
24.1%
41.7%
70%
60%
40.7%
38.9%
50%
≥ 50
36-49
40%
≤ 35
37.7%
30%
20%
10%
0%
37.1%
37.0%
20.6%
Federal Civil Service 1995 Federal Civil Service 2014
Austria 2014
The comparison of broad age groups among Federal Civil Service staff on the one hand and all
Austrian employees on the other shows that the current proportion of the younger generation
(i.e. ≤ 35) is fairly low in the Civil Service at 21%. The distribution of age groups among all
Austrian employees, by contrast, shows that over one-third of these fall within the 35-or-under
segment. At the same time the proportion of staff aged 50 or above is clearly higher at 42% in
the Civil Service than it is among all employees, at 24%.
47
The staff of the Federal Civil Service
The age structure in 1995, on the other hand, shows a distribution which is almost identical to
that currently prevailing among all Austrian employees. A comparison of the figures for the
Federal Civil Service in 1995 and 2014 clearly shows the shift in the age structure.
By 2027 approximately 53% of its present personnel will leave the Federal Civil Service, which
means that a considerable volume of retirements is to be expected over the next few years,
owing to the present age distribution.
5.4.1 Changes in the age structure since 1995
Between 1995 and 2014 the average age of Federal Civil Service staff rose from 40.5 to 45.6
years. Apart from a temporary drop in 2004, which was due to the hiving-off of the public
universities, this rise was continuous. In parallel to this trend, the proportion of staff in the “45plus” age group rose from 35% to 59%. The increase in average age can be observed in male
as well as female staff.
Age
Figure 16 Average age of Federal Civil Service staff
47,0
46,5
46,0
45,5
45,0
44,5
44,0
43,5
43,0
42,5
42,0
41,5
41,0
40,5
40,0
39,5
39,0
38,5
38,0
Men and women
Men
Women
Year
This rise in average age is the result of a fundamental change in the age structure of Federal
Civil Service staff, which is best explained graphically.
48
The staff of the Federal Civil Service
Figure 17 Age structures for 1995 and 2014
The younger age groups, such as that of the under-30s, are only about half as large now as
they were in 1995, which is a direct consequence of the low level of recruitment over the last
few years. In 1995 the largest age groups were those aged 32 to 34. These staff members are
51 to 53 years old today and still make up the largest age group within the Federal Civil
Service.
In addition to this, the actual retirement age rose by 4.5 years compared to 1995. Finally, due
to efforts to raise the level of qualification required of new entrants to the Federal Civil Service,
these tend to be older today than they were in the past.
The changing age structure of the Federal Civil Service will present a major challenge to
personnel management. It is in the area of personnel development in particular that a number
of questions arise in this context: How can older staff members’ motivation and ability to
perform be maintained? What training measures are required to enable staff members who
received their training a long time ago to handle the rapidly changing technologies they need at
work on a daily basis? How to design working time and work organisation so as to meet the
changed needs of older staff members?
Due to the large number of staff currently making up the older age groups, there will be a high
volume of retirements over the next few years. This will affect different occupational groups
within the Federal Civil Service to different extents. The age structures of law enforcement, the
military service and the group of judges, prosecutors and trainee judges can be said to be
balanced. However, action will be needed with regard to school teachers, as well as in large
49
The staff of the Federal Civil Service
parts of the administrative service. In strongly affected groups such as these an increased
need for recruitment is to be expected. How well the Civil Service does in future in recruiting
highly qualified new staff will strongly depend on its attractiveness as an employer, as well as
on the professionalism of its recruitment efforts.
5.4.2 Age structure by type of employment relationship
The age structures of civil servants and private-law employees also differ considerably. This
mainly results from the stop to appointing new civil servants in occupational groups where
employment on the basis of private-law contracts is a possible alternative to employment under
public law. As a consequence, civil servants are still in the majority in the over-45 age group,
while private-law employees predominate in the younger age groups.
Figure 18 Age structure by type of employment relationship, 2014
4000
Number of staff
3500
3000
2500
2000
1500
1000
500
0
Age
Civil servants
Privat-law employees
5.4.3 Age structure by occupational group
The different occupational groups within the Federal Civil Service are affected by demographic
change to different extents. High numbers of retirements are to be expected primarily among
school teachers and in large parts of the administrative service (in particular in the areas of
health, transport and economic affairs, as well school administration). The age structure of the
judiciary (including public prosecutors), the military and law enforcement bodies, on the other
hand, is sustainable.
50
The staff of the Federal Civil Service
Figure 19 Age structure by occupational group
Teachers
47.0
Administrative service
47.0
Judges and public prosecutors
45.2
Law enforcement
43.0
Military service
42.5
For further details, please see our publication “Handlungsfeld Demografie im
Personalmanagement” (“Demographic Challenges in HR Management”, in German), which is
available on our homepage at www.oeffentlicherdienst.gv.at under “Publikationen”.
5.4.4 Demographic analysis based on levels of qualification
A more in-depth analysis mainly focuses on the following two groups:
•
≤ 35: staff aged 35 years and under, who are currently in the first third of their
professional careers. This group of people who have been active for 10 to 15 years
represent an organisation’s future potential.
•
≥ 50: staff aged 50 and over, who have reached the final third of their professional
careers. These people will presumably retire within the next 10 to 15 years.
In order to identify possible future bottlenecks at the different levels of qualification, these two
groups are further differentiated in the discussion below. Additional information relevant to
identifying those areas where further action is needed is provided in Chapter 5.1 (Levels of
qualification). The qualification levels shown below have been derived from the different pay
schemes that staff members are assigned to. As a rule, these pay schemes reflect the highest
level of qualification attained by the respective staff member. This is different for the law
enforcement group, where specialised internal training is more important in moving up the
career ladder than previously obtained qualifications. For this reason, law enforcement is
treated separately here.
The percentage of staff with high qualification levels is very high in the Federal Civil Service
(33% university graduates and 17% persons with upper secondary school leaving certificates).
One reason for this is the fact that a university degree is a prerequisite to entering certain
occupational groups, such as that of judges and prosecutors, and a large part of the teachers’
group. Approximately one-quarter of all staff hold posts requiring intermediate vocational
qualifications, while a mere 2% do support work for which compulsory schooling is sufficient.
51
The staff of the Federal Civil Service
Figure 20 Age groups broken down by qualification levels – Federal Civil Service 2014
University graduates
16%
37%
47%
Persons with upper secondary school leaving certificate
17%
38%
45%
Persons having completed technical or vocational school or
appretenticeships
19%
40%
15%
Persons having completed compulsory schooling only
35%
51%
31%
Law enforcement officers
0%
41%
10%
20%
39%
30%
≤ 35
40%
50%
36-49
30%
60%
70%
80%
90% 100%
≥ 50
The demographic analysis based on levels of qualification shows that the greatest number of
retirements are to be expected within the groups of university graduates and staff having
completed upper secondary schooling, owing to the size of these groups. A large proportion of
these are aged 50 or above, i.e. they will reach retirement age within the next few years. This
contrasts with the relatively low number of young people among university graduates and those
holding upper secondary school certificates.
In view of the considerable time required to gain a university education and the highly specific
know-how to be acquired by way of initial training, increased effort and forward planning are
called for with regard to these particular staff segments.
5.5 Part-time employment in the Federal Civil Service
27.7% of all employees in Austria (including government sector employees) work part-time
(2014 average). By comparison, part-time work in the Federal Civil Service is relatively low.
After increasing until 2004 and decreasing slightly in 2006, the proportion of part-time workers
reached 17.4% in 2014, the highest level so far. At 29.4%, private-law employees work parttime far more frequently than civil servants.
52
The staff of the Federal Civil Service
Figure 21 Part-time work by type of employment relationship
Proportion of part-time workers
35%
30%
25%
20%
15%
10%
5%
0%
Year
Federal Civil Service staff
Civil servants
Privat-law employees in the Federal Civil Service
Privat sector workers
The working time of private-law employees can be set at any level at all while no working time
arrangements below the level of 50% are possible in the case of civil servants. As an exception
to this rule, however, civil servants can arrange to reduce their working time below this level for
the time period during which they are entitled to receive parental benefit.
The so-called “sabbatical” represents a special form of partial employment. The term refers to
a period of “time out” from work lasting between 6 and 12 months. Unlike regular annual leave,
however, the leave granted under the sabbatical arrangement entails a reduction in pay over a
reference period of between two and five years. The extent of this pay cut depends on the
actual duration of this period and on the amount of leave taken. In practice, one possible type
of “sabbatical” arrangement could involve reducing the respective staff member’s pay to 80%
of their regular salary over a period of five years, which includes one year’s leave of absence
from work. However, in this case a leave of absence can only be granted after at least two
years of the reference period have elapsed. At the end of their sabbatical leave, staff members
return to their original place of work.
Until 2007, the option of taking sabbatical leave was reserved for teachers. Since July 2007,
however, this form of partial employment has been available to all Federal Civil Service staff
with the exception of judges and public prosecutors. 671 staff members are currently making
use of this scheme.
5.6 Women and men
The Federal Civil Service is clearly committed to equal opportunities for the women and men in
its employment. It is for this purpose that it has created such functions as those of equal
treatment officers and women’s representatives, and such bodies as the Equal Treatment
Commission for the Federal Civil Service. Changing conditions in the world of work require the
53
The staff of the Federal Civil Service
continuous development of the legal basis for promoting equal opportunities for women and
men.
5.6.1 The proportion of women in the Federal Civil Service over time
The proportion of women in employment in Austria has risen considerably since the 80s. While
only 49.4% were gainfully employed in 1984, this proportion had risen to 66.9% by 2014. The
male employment rate, which was 75.2% in 2014, remained relatively constant during the
same period. Women, on the other hand, are still in the process of catching up, as shown by a
rise of 1.7 percentage points between 2009 and 2014.
In accordance with this trend, the proportion of women working in the Federal Civil Service is
also rising continually, reaching 41.4% of all staff in 2014, with women making up 59.7% of
private-law employees and 26.4% of civil servants. A comparison with 1995 shows that the
percentage of women has risen in almost all groups of Federal Civil Service staff, the only
exceptions being those areas which used to show a marked predominance of women. Thus a
2.5% decrease has been recorded in the proportion of women among private-law employees.
At the level of occupational groups, it is in the category of nurses that the percentage of women
is now lower than it was in 1995. In other words, the proportions of women and men can be
said to have become more balanced, i.e. more women are now working in occupations that
used to be considered “male” preserves, and men are increasingly getting interested in
formerly typically “female” occupations.
54
The staff of the Federal Civil Service
Table 28 Proportion of women in the Federal Civil Service
1995
2014
Difference in
percentage
points
1995 to 2014
Civil servants
22.0
26.4
4.4
Private-law employees
62.2
59.7
-2.5
Administrative service
47.7
52.9
5.2
Law enforcement
3.9
14.2
10.3
Military
0.0
1.9
1.9
Judges and public prosecutors
29.5
52.2
22.7
Nurses
87.1
69.5
-17.6
Teachers
49.8
59.4
9.6
university degrees
38.1
55.7
17.6
upper secondary school
40.0
44.5
4.5
technical/vocational school or apprenticeships*
22.1
42.3
20.2
compulsory schooling only
63.1
69.0
5.9
Federal Civil Service total
35.9
41.4
5.5
Staff having completed …
*A comparison within the group of staff who have completed technical/vocational school or apprenticeships is only
possible within limits. This is because levels of qualification are deduced from staff members’ classification in
particular pay schemes; however, since it is not possible to infer any particular level of qualification from a person’s
classification within the law enforcement pay scheme, the entire law enforcement group is now no longer taken into
consideration in statistics on qualification levels, whereas that was still the case in 1995.
Table 28 shows that a pronounced rise in the proportion of women was recorded within the
occupational group of judges and public prosecutors and, in terms of qualification levels,
among the group of university graduates.
Figure 22 Proportion of women by occupational group
Teachers
59.4%
Administrative service
52.9%
Judges and public prosecutors
52.2%
Law enforcement
Military service
14.2%
1.9%
55
The staff of the Federal Civil Service
5.6.2 High qualification levels by sex
The proportion of staff who have achieved the two highest levels of qualification (i.e. university
degrees or upper secondary school leaving certificates) is 49.4% in the Federal Civil Service
and thus very high compared to the private sector (31.7%).
Table 29 Proportion of university graduates and persons with upper secondary school
leaving certificates
Federal Civil Service
Private sector
Year
Total
Men
Women
Total
Men
Women
1998
45.9%
42.2%
53.1%
19.0%
18.6%
19.5%
2000
46.8%
42.6%
54.9%
20.2%
19.4%
21.2%
2005
44.5%
37.6%
57.2%
26.1%
24.4%
28.1%
2010
48.0%
39.8%
61.7%
29.1%
26.5%
32.0%
2011
48.5%
40.1%
62.3%
29.6%
26.8%
32.6%
2012
49.1%
40.3%
63.1%
30.7%
27.9%
33.8%
2013
49.4%
40.4%
63.6%
31.6%
29.0%
34.4%
2014
49.6%
40.5%
63.9%
33.6%
30.7%
36.6%
Source of private-sector data: Statistik Austria8
A breakdown of the proportion of highly qualified staff by sex shows that 63.9% of women hold
university degrees or upper secondary school leaving certificates, while this is true of “only”
40.5% of men. However, the actual proportion of men who have completed upper secondary
school is likely to be several percentage points higher. This is because in the law enforcement
group, assignment to a particular pay scale is not based on the level of qualification attained
prior to recruitment, and therefore law enforcement officers who have completed upper
secondary school or a university degree cannot be assigned to one of these two groups in the
qualification statistics, as mentioned in Chapter 5.1. By comparison, the proportion of privatesector employees with qualifications at upper secondary school level or higher is markedly
lower than in the Federal Civil Service at 36.6% (for women) and 30.7% (for men).
5.6.3 Part-time work by sex
At 32.9%, considerably more women than men (6.4%) work part-time. The percentage of staff
who have chosen the option of part-time work is highest among teachers and nurses, as well
as in the administrative service, a fact which is connected to the high proportion of women in
these occupational groups.
8
The data for the private sector for the 2004 to 2014 period has been retroactively adjusted by Statistik Austria.
56
The staff of the Federal Civil Service
Figure 23 Part-time work by sex
Proportion of part-time workers
35%
30%
25%
20%
15%
10%
5%
0%
Year
Federal Civil Service
Women
Men
5.6.4 Women in management - Gender auditing
The extent to which women are represented in managerial positions is a central issue in the
context of ensuring equal rights in the workplace. For one thing, management responsibility
entails the power to make decisions and the increased possibility of action; for another, the
degree of management responsibility correlates with levels of pay, making it one of the decisive
reasons behind the difference in income between women and men.
One good way of ascertaining the existence of management responsibility is to define “highgrade groups” within the different, qualification-based pay schemes. This method allows for
efficient, meaningful audits of the extent to which female staff have held management
responsibility over time.
57
The staff of the Federal Civil Service
Table 30 Women in the highest salary brackets
Level of
qualification
Proportion of women
Salary bracket and function
2006
2011
2012
2013
2014
University
degree (I)
A1/7-9 and similar (e.g. directorsgeneral, directors, heads of large
subordinate bodies)
15.8%
23.2%
24.0%
26.3%
26.4%
University
degree (II)
A1/4-6 and similar (e.g. heads of
unit, deputy heads of unit, heads
of section, heads of relatively
large subordinate bodies)
29.8%
34.9%
35.1%
36.8%
37.8%
Upper secondary
school leaving
certificate
A2/5-8 and similar (i.e. heads of
section, heads of medium-sized
and small subordinate bodies,
desk officers in relatively highgrade posts)
24.4%
27.7%
28.3%
28.9%
29.8%
Intermediate
vocational
qualifications
A3/5-8 and similar (i.e. desk
officers in relatively high-grade
posts)
29.3%
33.2%
33.3%
35.4%
35.1%
All levels of
qualification
highest salary brackets
27,7%
31.7%
32.0%
33.7%
34.1%
Figure 24 Development of the proportion of women in the highest salary brackets, 2006 2014
58
The staff of the Federal Civil Service
The proportion of women in all managerial positions continued to increase between 2013 and
2014, except A3/5-8 and similar positions. Nevertheless, in view of the overall proportion of
women among Federal Civil Service staff (41.4%), women still have quite some catching up to
do when it comes to management functions. What must be taken into consideration in this
context, however, is the fact that managers tend to belong to the older age groups as
managerial positions usually require a number of years of previous experience. Most of the
staff currently holding management positions entered the Federal Civil Service at a time when
the female employment rate was considerably lower than it is today. As a result, the proportion
of women in those age groups from which managerial staff tends to be drawn is considerably
lower than in the Federal Civil Service as a whole.
Therefore the below-average representation of women in management positions is partly due
to demographic factors. Given the high percentage of women in the younger age groups today,
however, the proportion of women in management can be expected to continue rising over the
next few years.
In December 2014 the proportion of women in the Federal Civil Service’s top level of
management (directorates-general) was 19.1%. Out of a total of 68 directorates-general, 13
are currently headed by women. In 1995 only two directors-general out of 79 were women, a
proportion of 2.5%.
5.6.5 Measures for the promotion of women
In order to effectively support the increasing tendency for women to assume management
positions, the Federal Chancellery’s Directorate III has taken several concrete measures.
These include an Austria-wide, indicator-based controlling system under which the Federal
Ministries set concrete targets for the proportion of women in the highest salary brackets to be
reached over the next few years. These targets, as well as the current percentages, are
subject to an annual audit and published in the Staffing Plan.
Furthermore, Ministries are required to publish on their websites the key outcomes of
recruitment processes for managerial posts, as well as the composition of the panels
evaluating applications for such posts.
In addition, the representation of women on evaluation and recruitment panels will be
guaranteed in future through a requirement to delegate equal numbers of women and men to
these panels. Furthermore, the chair of the respective Ministry’s Equal Treatment Committee
(or her representative) is entitled to take part in the meetings of evaluation and recruitment
panels in an advisory capacity.
Finally, in order to increase transparency and objectivity in the selection of management staff,
advertisements for management positions must state how specific types of knowledge and
skills will be weighted in evaluating a candidate’s suitability for the post in question.
59
The staff of the Federal Civil Service
5.6.5.1 Parental leave for mothers and fathers
It is easier for women to settle back into work after having children if their partners support
them in this. More and more men in the Federal Civil Service are choosing to participate in
raising their children and taking parental leave. The number of fathers availing themselves of
this option has been rising constantly over the last few years, putting the current proportion of
men among staff on parental leave at 12.8%. The Civil Service is clearly taking the lead here
as the corresponding Austria-wide figure is at only 4.2%.
The relevant provisions are laid down in the Maternity Leave Act (Mutterschutzgesetz) and in
the Law on parental leave for fathers (Väter-Karenzgesetz). Under this legislation both parents
are granted an individual right to parental leave under the same conditions, as well as the right
to decide how to divide up the leave period between them. However, parental leave is only
available until the child’s second birthday, and the parents can only change over twice during
that period. Another provision prohibits any time intervals between the successive blocks of
leave thus shared. In principle it is not possible for both parents to be on leave at the same
time. An exception to this is the time around the first changeover, when an overlap of one
month is permitted. This, however, reduces the maximum overall duration of parental leave by
one month.
5.6.5.2 Early parental leave (“Baby Month”)
In order to “increase the participation of fathers in childcare responsibilities immediately after
birth”, in 2011 a legal entitlement was created for them to take early parental leave without pay.
1,083 men, i.e. every 7th father, made use of this opportunity between 1 January 2011 and
December 2014.
In June 2015 this so-called “Daddy Month” became a “Baby Month”, as it is now available to
women and men in same-sex partnerships as well as to fathers. Early parental leave may be
taken between the child’s birth and the end of the mother’s compulsory maternity leave or, in
the case of (registered or unregistered) partnerships between two men, until the child is three
months old. Employees who have adopted (or are about to adopt) a child of under two years of
age are also entitled to early parental leave of up to four weeks, starting with the date of
adoption (or the beginning of foster care pending adoption).
In terms of employment status, salary and pension entitlements, early parental leave for fathers
is to be treated like regular paternity leave under the Paternity Leave Act (Väter-Karenzgesetz),
i.e. the leave period is to be taken into consideration when calculating entitlements based on
periods of time served.
For private-law employees, compulsory insurance under the General Social Insurance Act
(ASVG) continues for the duration of early parental leave, pursuant to Section 29o of the Law
regulating the private-law employment of Civil Service staff (VBG). The insurance contributions
payable during this period are to be borne by the employer (according to Sections 11(3b) and
53(2), ASVG).
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The staff of the Federal Civil Service
For civil servants, health insurance coverage under the B-KUVG (i.e. the Law governing health
and accident insurance for civil servants) continues during early parental leave, in accordance
with Section 7(2.2) of that law. In this case, too, the health insurance contributions payable
during this time are to be borne by the employer (according to Section 22(2) B-KUVG).
5.6.5.3 Teleworking
Teleworking as defined by Section 36a of the 1979 Civil Servants Employment Act (BDG) and
Section 5c, VBG means that official duties are carried out in a location outside the employer’s
premises. In accordance with the National Action Plan, utilization of this mode of work was
evaluated by means of a survey of all institutions and offices of the Federal Civil Service.
Approximately 60% of all staff responded.
The data (2012) shows that approximately 1,100 Federal Civil Service staff are currently
teleworking. Of these, over half are employed in subordinate bodies, one-third in ministry
headquarters, and about 12% in agencies.
Women make use of the option of teleworking almost twice as much as men.
Telework arrangements are to be found at all levels of qualification and seniority, with the
exception of unskilled/semi-skilled support staff. The data shows that 58 persons in managerial
positions are currently teleworking (i.e. 5% of the total number).
Clearly, teleworking is almost exclusively used by administrative service staff as the staff of
other occupational groups, particularly law enforcement (i.e. police officers and prison guards)
and teachers, are required to be present at their place of work in person.
5.6.5.4 10 years of Cross-Mentoring in the Federal Civil Service
The Cross-Mentoring Programme launched in 2005 focuses on motivated, career-minded
women employees. This personnel development tool allows participating Federal Civil Service
staff to take stock of where they stand in order to further progress towards a specific career
objective to be defined as part of the programme.
The programme’s defining feature consists in managers (i.e. mentors) supporting their
colleagues from other Ministries (i.e. their mentees) in achieving their particular goal. The
mentors share their own know-how and experience, give tips on career planning, and facilitate
entry to professional networks. In addition to working on developing their careers in tandem
with their mentors, mentees thus have the additional opportunity to network across Ministry
boundaries, for example during workshops and networking meetings. The Cross-Mentoring
scheme is constantly being evaluated and improved in order to meet the needs of mentors and
mentees as much as possible.
Over the past ten years, the response to this scheme for supporting and strengthening women
in planning their professional careers has been very good indeed. Between 2005 and 2015,
approximately 800 mentors and mentees have taken part. The mentors, many of whom have
61
The staff of the Federal Civil Service
participated more than once, have shown great commitment, stressing the particular value of
passing on their experience while extending their own leadership skills.
On the occasion of the tenth anniversary of this programme, mentors and mentees (past and
present) were interviewed as part of a short film on the topic of Cross-Mentoring.
To find out more, visit the Civil Service Careers website at
www.jobboerse.gv.at under “Aufstieg → Cross Mentoring → Was ist Cross
Mentoring? → Sehen Sie dazu das Video”
5.6.6 Income differences between women and men as defined by Section 6a,
Federal Equal Treatment Act
In its government platform, the Federal Government has made a commitment to promoting
women and ensuring equal opportunities in the world of work. As key elements in this effort,
the platform lists fairness and transparency with regard to incomes, as well as measures to
increase the proportion of women in top positions.
Based on this commitment, the National Action Plan on “Equal Opportunities for Women and
Men in the Labour Market” was published in June 2010. This document lays down strategy
until 2013, as well as setting out concrete measures to improve the position of women in the
labour market.
A central aim of the National Action Plan is the reduction of income differences between
women and men. In order to counteract such differences, the Plan calls for the disclosure of
the salaries paid within particular occupational groups with a view to achieving a higher degree
of transparency. A requirement to draw up annual income reports is laid down in the Federal
Equal Treatment Act (Bundes-Gleichbehandlungsgesetz – B-GlBG), as well as in the
corresponding legislation for the private sector.
Pursuant to the amended Section 6a, B-GlBG the annual income report appears in its new,
extended form for the first time in 2013.
In addition to staff employed full-time all year round, the 2013 Income Report comprises data
on part-time employees, as well as on staff employed for only part of the year. In order to
ensure the comparability of the incomes of women and men, the pay of part-time staff has
been extrapolated to full-time levels, and that of staff employed for only part of the year to the
corresponding pay levels for year-round employment. These extrapolations thus show the
fictitious income of all Federal Civil Service staff, assuming that they all worked full-time all
year. This neutralises any distortions due to different rates of part-time work, or different
proportions of staff not employed year round, between women and men, showing comparable
income information for both sexes.
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The staff of the Federal Civil Service
This year the Income Report appears in this form for the third time, making it possible to
compare the development of the gender pay gap over time. While the income gap between
women and men in the Federal Civil Service was 13.3% in 2012, it narrowed to 12.8% in 2013
and 12.5% in 2014.
Table 31 Development of the gender pay gap in the Federal Civil Service
2012
2013
2014
13.3%
12.8%
12.5%
5.6.6.1 Income differences in the Federal Civil Service
Compared to individual salary agreements, the remuneration system used in the Federal Civil
Service, which is based on pay schemes laid down by law, offers a clear advantage with regard
to the gender pay gap, namely the fact that work of equal value is paid equally, regardless of
the employee’s sex. As a particular staff member’s pay depends on the classification of the
post he/she holds, there is no leeway for discrimination on grounds of sex when filling vacant
positions. Nevertheless, the median incomes of women working in the Federal Civil Service are
still below those of men, although the difference is markedly smaller than in the private sector:
the gender pay gap in the Federal Civil Service, adjusted for extent of employment and the
number of months worked per year, amounts to 12.5%9, whereas the Austria-wide income gap
based on the earnings of full-time and part-time workers is 18.4%10, and the income gap
between women and men working full-time year round is 18.2%11.
9
Gender pay gap as defined by Section 6a, Federal Equal Treatment Act (Source: Federal Civil Service
Management Information System)
10
Basis for calculation: the median hourly pay of full-time and part-time employees in Austria (Source: General
Income Report published by the Austrian Court of Audit (Allgemeiner Einkommensbericht, Reihe Einkommen
2014/1)).
11
Basis for calculation: the median hourly pay of full-time employees working year round in Austria (Source:
General Income Report published by the Austrian Court of Audit (Allgemeiner Einkommensbericht, Reihe
Einkommen 2014/1)).
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The staff of the Federal Civil Service
Figure 25 The gender pay gap in the Federal Civil Service compared to that for all
employees in Austria
Gender pay gap in the Federal Civil Service
(2014)
12.5%
Gender pay gap for all full-time and parttime employees in Austria, based on hourly
pay (2013)*
18.4%
Gender pay gap for employees in Austria
working full-time all year round, based on
annual incomes (2013)*
18.2%
0%
5%
10%
15%
20%
* Source: Austrian Court of Audit (Income Report 2014/1)
The gender pay gap in the Federal Civil Service is mainly due to differences in the following
factors influencing pay levels: the amount of overtime worked, the level of qualification, the
employee’s age, and the existence of management responsibility. In those occupational groups
where employment relationships under public as well as private law exist, a comparison
between the incomes of women and men is further complicated by the fact that civil servants
and private-law employees are paid according to different remuneration schemes, and that the
proportion of civil servants among women and men differs, too.
The overall difference in median incomes which remains once the figures have been adjusted
for extent of employment and the number of months worked per year is 12.5%. However, the
size of the gap varies among occupational groups, ranging from 2.9% (school inspectors) to
30.8% (military service).
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The staff of the Federal Civil Service
Figure 26 Differences in gross annual income between men and women
110.000
100.000
90.000
80.000
70.000
60.000
50.000
40.000
30.000
20.000
10.000
0
Gross annual income Men
Gross annual income Women
Age is the single most influential factor when it comes to income differences between men and
women. Accordingly, significant income differences are to be found in those occupational
groups that show considerable differences in age. This phenomenon is to be expected in
remuneration schemes that place a high premium on seniority, i.e. years of service. As entry to
the Federal Civil Service typically occurs at a lower rather than a higher age, staff members’
age tends to correlate with their years of service, on the one hand, and with their advance up
the pay scale, on the other. A reduction in the gender pay gap will therefore not occur until the
age structure of female staff approximates that of male staff.
65
The staff of the Federal Civil Service
Figure 27 Differences in average age between men and women
60
50
40
30
20
10
0
Average age Men
Average age Women
Relatively low incomes in conjunction with a relatively high average age can be due to a high
amount of overtime worked by members of the other sex, to slower progression up the pay
scale as a result of successive periods of parental leave, or to later entry to the Federal Civil
Service. The proportion of women is particularly high among staff members who were recruited
after reaching the age of 30. Due to the limitations on having periods of professional
experience gained elsewhere recognised by the Federal Civil Service, these women find
themselves in lower salary brackets than groups of staff members with the same average age
but earlier entry dates.
The statistics on particularly small groups of employees are highly sensitive to the effect of
factors specific to individual members of such groups. For example, it is notable that women in
the occupational group of nurses earn below-average salaries despite their higher-thanaverage age. Due to the small number of people making up this occupational group, the figures
for different categories within this group are of limited use when it comes to making general
statements about them.
The full Income Report is available on our website at www.oeffentlicherdienst.gv.at under
“Öffentlicher Dienst →Einkommensbericht gemäß Bundes-Gleichbehandlungsgesetz”.
66
The staff of the Federal Civil Service
5.6.7 Median incomes by occupational group
Based on the Income Report, the incomes of women and men in the Federal Civil Service can
be analysed like those of private-sector employees, and the extent of the gender pay gap can
be determined.
The analysis of median incomes has a different focus, being based on the actual income of
particular occupational groups, which is substantially influenced by the factors of qualification
and age.
Figure 28 Median income by occupational group
Due to the specific requirements for their occupational group, judges and public prosecutors
have the highest median incomes, followed by teachers, most of whom are university
graduates, too, in addition to having the highest average age of all occupational groups within
the Federal Civil Service. The administrative service, on the other hand, ranks last despite
showing the second-highest average age.
5.7 Lost working time
The amount of working time lost, in particular due to sick leave, is considered to be an
important early indicator in personnel management as it can be a sign of poor work
organisation, inadequate employment or organisational structures, or various factors
detrimental to health.
The sick leave statistics published annually by the Association of Austrian Social Insurance
Institutions (Hauptverband der österreichischen Sozialversicherungsträger) provides
information about the amount of working time lost by blue and white collar workers. Federal
Civil Service Staff on private-law contracts are included in these data, but civil servants are
not.12
12
Since the year 2010, the sick days of men doing their compulsory military service and of persons in receipt of
childcare benefit are no longer included in the sick leave statistics. In order to allow for a comparison of sick
leave data between the Federal Civil Service and the private sector over a number of years, the data for the
years since 2000 have been partially adjusted accordingly.
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The staff of the Federal Civil Service
The periods shown in these statistics include ordinary sick leave, as well as residential
rehabilitation and health spa treatments. The duration of sick leave is shown in calendar days.
As it is not necessary to obtain a sick note from a physician for short-term sick leave, these
periods are largely not covered in the statistics compiled by the Association of Austrian Social
Insurance Institutions. For the comparison between Federal Civil Service staff and persons
insured under the General Social Insurance Act (ASVG), periods of short-term sick leave (i.e.
one to three days) taken by Federal Civil Service staff are therefore not taken into
consideration, while residential rehabilitation and health spa treatments are included, so as to
ensure a viable basis of comparison.
Figure 29 Days of sick leave per 1,000 employees, in calendar days
Federal Civil Service
staff (civil servants and
staff insured under the
ASVG)
Blue- and white-collar
workers insured under
the ASVG
* Federal Civil Service staff (civil servants and staff insured under the ASVG)
Over the last few years, the same trend can be noted in the Federal Civil Service as in the
private sector: after rising in 2013, the number of days lost due to sickness drop in 2014 in both
cases. In 2014, Federal Civil Service staff show 12.5 days of sick leave, employees in the
private sector 12.3.
However, in comparing the sick leave figures for the two sectors, account must be taken of the
significant age difference between them: the average age of Federal Civil Service staff is about
eight years higher than that of employees in the private sector. Analysis of the data shows that
age is a key factor influencing the duration and frequency of sick leave.
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The staff of the Federal Civil Service
Table 32 Overview of sick leave indicators for Federal Civil Service staff compared to
private-sector employees
Sick leave
Year
incidence
days
per 1,000 employees
Civil servants
Average
duration of
sick leave
periods
in days
Sick leave
rate
2014
947
15,104
16.0
4.1
2013
1,029
15,899
15.4
4.4
2012
970
15,473
16.0
4.2
Federal Civil Service staff
2014
652
9,671
14.8
2.6
insured under the ASVG
2013
702
10,095
14.4
2.8
2012
661
9,937
15.0
2.7
White collar workers
2014
1,082
10,230
9.5
2.8
insured under the ASVG
2013
1,138
10,690
9.4
2.9
2012
1,071
10,405
9.7
2.9
Blue collar workers
2014
1,365
15,332
11.2
4.2
insured under the ASVG
2013
1,444
16,143
11.2
4.4
2012
1,423
16,214
11.4
4.4
Federal Civil Service
2014
1,047
12,488
11.9
3.4
(civil servants and staff
2013
1,116
13,178
11.8
3.6
insured under the ASVG)
2012
833
12,941
15.5
3.5
Blue and white collar workers
2014
1,198
12,332
10.3
3.4
insured under the ASVG
2013
1,265
12,952
10.2
3.5
2012
1,219
12,842
10.5
3.5
Figures excluding short-term sick leave, including residential rehabilitation and health spa treatments
The sick leave rate, i.e. the proportion of staff members that are absent from work due to
illness, is 3.4% for the Federal Civil Service (excluding short-term sick leave but including
residential rehabilitation and health spa treatments). This means a 0.2% decrease in the sick
leave rate compared to the previous year. The sick leave rate for employees covered by the
General Social Insurance Act (ASVG) is also 3.4%.
69
The staff of the Federal Civil Service
Figure 30 Federal Civil Service staff with/without sick leave
The proportion of Federal Civil Service staff who did not go on sick leave at is 26.1% in 2014.
For further details, please see the study “Fehlzeiten und Gesundheitsförderung im
Bundesdienst” (“Lost working time and health promotion in the Federal Civil Service”, in
German) at www.oeffentlicherdienst.gv.at under “Publikationen”.
5.8 Retired civil servants
Civil servants do not have the same kind of pension insurance as employees in the private
sector and Federal Civil Service staff employed under private-law contracts. Rather, their
pensions (and those of their surviving dependants) are paid directly by their employer, i.e. the
Federal Civil Service.
In December 2014 the total number of Federal Civil Service pensions paid was 96,924. This
number comprises 70,001 retirement pensions, 25,430 widow’s or widower’s pensions, 1,406
orphan’s pensions and 87 other pensions.
Table 33 Federal Civil Service pensions
2013
2014
Retirement pensions
70,132
70,001
-131
-0.2%
Widow’s-/widower’s pensions
25,749
25,430
-319
-1.2%
1,497
1,406
-91
-6.1%
86
87
1
1.2%
97,464
96,924
-540
-0.6%
Orphan’s pensions
Other pensions
Total
Changes between
2013 and 2014
Owing to the age structure of Federal Civil Service staff (see Diagram 8 and Diagram 9), age
groups comprising above-average numbers of staff members will reach retirement age in the
next ten to twenty years. A higher-than-usual number of retirements are therefore to be
expected for this time period, along with the associated challenges and opportunities.
70
The staff of the Federal Civil Service
5.9 New retirements
5.9.1 Types of retirement
The statutory retirement age for civil servants is 64 years and 4 months, as at April 2015; it will
gradually rise to 65 years until September 2017. Civil servants will then retire by operation of
law at the end of the year in which they complete their 65th year of age.
In the case of health problems, civil servants can retire due to occupational disability. This is
possible regardless of age and entails reductions in the amount of pension received. This type
of retirement corresponds to the occupational disability pensions available under the General
Social Insurance Act (ASV).
In addition, different types of early retirement are possible if the respective conditions are met:
•
Under the so-called “corridor scheme” (Korridorpension), civil servants and private-law
employees alike may retire once they have completed their 62nd year of age, provided
that they have accumulated 39 years’ worth of pension entitlements (39.5 years in
2016; 40 years as of 2017). For those born after 1954 the corridor scheme involves
higher pension reductions.
•
The early retirement scheme for long-serving civil servants is available without any
reduction in pension benefits to those born no later than 1953, once they have
completed their 60th year of age, provided that they earned 40 years’ worth of pension
entitlements by 31 December 2013. Those born after 1953 can also retire early under
this model, however with lower pensions, provided that they have earned 42 years’
pension entitlements by the time they reach 62 years of age.
•
Early retirement is also possible for persons doing hard manual work once they have
reached 60 years of age, provided that they did that kind of work for 120 months within
the last 240 calendar months before retiring and have earned 42 years’ worth of
pension entitlements.
5.9.2 Number of retirements and retirement age
In 2014 Federal civil servants retired at the age of 60.9 on average, meaning a slight rise
compared to the year before (60.7). Their actual retirement age is thus 1.4 years above that in
the private sector.
71
The staff of the Federal Civil Service
Table 34 Grounds for retirement and average retirement age of Federal civil servants
2013
Grounds for retirement
Number of
staff
members
Retirement on reaching
statutory retirement age
Early retirement
Occupational disability
Total
2014
Average retirement age
Number of
staff
members
Average retirement age
555
65.1
452
65.2
2,980
60.8
992
61.3
511
55.1
445
55.6
4,046
60.7
1,889
60.9
The actual retirement age for staff members who have reached the statutory retirement age
has risen by 0.1 years. Retirement due to occupational disability has risen from 55.1 years
(2013) to 55.6 years in 2014. The age of early retirement was 61.3 years on average (2013:
60.8 years).
Table 35 Actual retirement age for pensioners under the General Social Insurance Act
(ASVG)
Grounds for retirement
2013
2014
Reaching statutory retirement age (i.e. 60 or 65)
62.4
62.3
Early retirement (except on grounds of disability)
59.5
60.1
Occupational disability pensions
51.6
54.2
Total
58.3
59.5
Source: Association of Austrian Social Insurance Institutions
5.9.3 The development of retirement figures in the Federal Civil Service
Given the age structure of the Federal Civil Service, the number of new retirements has been
rising for a number of years now. Statistical peaks can always be observed following changes
in retirement legislation. In 1995 and 1996 austerity packages (the so-called structural
adjustment laws) were adopted, which massively affected the Civil Service, among others. For
example, in 1996 and 1997 the annual pay rise (in the form of a percentage added to monthly
pay) was replaced by one-off payments, and pension reductions for early retirement were
introduced. Starting in 2000, the statutory retirement age for civil servants was raised from 60
to 61.5. In addition, pension reductions in the case of early retirement were increased from two
to three percentage points, and a ban on gainful employment for pensioners under the age of
65 was imposed in 2001. Marked changes in retirement behaviour could also be observed as a
result of legislation which allowed Federal civil servants to retire at the age of 55 with small
reductions in their pension benefits, but only within a time window of two years. This particular
provision was reflected in above-average numbers of retirements in 2003.
72
The staff of the Federal Civil Service
The number of new retirements among Federal civil servants in 2014 is down compared to the
previous year; this is due to the minimum retirement age for long-serving civil servants being
raised from 60 (for those born until 1953) to 62 (for those born in 1954 or later).
Figure 1 Development of the number of new retirements
The changes in the retirement rules described above have directly affected civil servants’
retirement behaviour and therefore, their actual retirement age. This age has been rising
constantly since 2004 – with the exception of 2011, when it marginally decreased by 14 days.
Figure 31 The development of actual retirement age
As a result of significant reform measures, civil servants retiring on reaching statutory
retirement age are doing so 4 years and 4 months later in 2014 than they were in 2003. Those
retiring due to occupational disability are currently doing so at the age of 55.6, i.e. 1 year and 3
months later than in 2003. Their early retirement age, too, has increased since 2003, namely
by 3 years and 6 months.
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The staff of the Federal Civil Service
This has resulted in a rise in the overall actual retirement age for all Federal Civil Service staff
from 58.3 years in 2003 to 60.9 in 2014.
Table 36 Development of different grounds for retirement
Grounds for
retirement
2003
2004
2005
2006
2007
2008
2009
2010
2011
2012
2013
2014
Retirement on
reaching statutory
retirement age
61.0
62.4
62.1
62.0
64.1
65.0
64.7
64.6
64.7
65.0
65.1
65.2
Occupational
disability
54.4
53.8
52.3
52.3
53.5
52.7
53.3
53.3
53.8
54.2
55.1
55.6
Early retirement
57.9
60.0
60.3
60.3
60.4
60.6
60.7
60.8
60.9
60.8
60.8
61.3
Total
58.3
57.9
59.2
59.6
59.9
60.1
60.5
60.6
60.5
60.5
60.7
60.9
Given the age structure of the Federal Civil Service (see Figures 16 and 17), particularly large
age groups will be reaching retirement age in the next ten to twenty years. A particularly high
number of retirements – as well as all the associated opportunities and challenges – are
therefore to be expected for that period.
For more detailed information, please see the report on “Monitoring der BeamtInnenPensionen
im
Bundesdienst”,
which
is
available
on
our
website
at
www.oeffentlicherdienst.gv.at under “Publikationen”.
74
Human resource management in the Federal Civil Service
6
Human resource management in the Federal
Civil Service
A responsible, motivated and performance-oriented workforce is a fundamental prerequisite for
modern, efficient public administration. Sustainable human resource management relies on HR
managers utilising their powers to create conditions which allow staff to realise their potential to
the maximum and thus contribute optimally to the achievement of the organisation’s aims.
6.1 The organisation of human resource management
Human resource management in the Federal Civil Service is organised along decentralised
lines. Personnel management authority for the staff of Federal Ministries and their subordinate
bodies lies with the respective Federal Minister, who has final jurisdiction in all personnel
matters and is thus ultimately responsible for all HR-related decisions. In practice, however, it is
the personnel units of the Federal Ministries that decide on personnel issues, as well as
carrying out day-to-day HR management tasks. In addition, Ministries with a great number of
staff in subordinate bodies also have subordinate personnel offices that exercise delegated
jurisdiction. In total there are approximately 160 personnel units which take all necessary HRrelated decisions within their respective spheres of competence, based on the applicable Civil
Service employment regulations and within the constraints of the Staffing Plan for the Federal
Civil Service. This work includes staff selection and recruitment, as well as placement planning
and the keeping of personnel files. Under the 2002 Deregulation Act (Deregulierungsgesetz),
the Federal Chancellery’s former rights of co-decision were substantially reduced, particularly
with regard to decisions in individual cases, with a view to decentralising decision-making
powers in line with modern management principles.
The room for manoeuvre opened up by the decentralised approach outlined above requires
central coordination in order to ensure a measure of homogeneity across the Federal Civil
Service. This function is exercised by the Directorate General for the Civil Service and Public
Administration Innovation in the Federal Chancellery. The tasks of this DG include the drafting
of employment regulations for civil servants and private-law employees, as well as drafting
retirement regulations; personnel planning and control across the Federal Civil Service by
means of the Staffing Plan and HR auditing; and providing expert input to pay negotiations with
the Union of Public Service.
In order to ensure a balanced and consistent system of pay for Federal Civil Service staff, the
evaluation of posts is also carried out centrally, particularly following organisational
restructuring.
Measures affecting the whole of the Federal Civil Service require comprehensive and timely
auditing to provide information regarding the outcomes of measures taken and to allow
75
Human resource management in the Federal Civil Service
changes to be made where necessary. Human resource auditing thus ensures the necessary
feedback between the planning and implementation of projects in the field of human resources.
Another task of the Directorate General for the Civil Service and Public Administration
Innovation is personnel development, in particular in areas cutting across different Ministries,
such as promoting staff mobility, as well as substantial areas of in-service training and further
training.
Finally, the DG is responsible for supporting and advising Ministries and other Civil Service
bodies, whose ideas for reform can help to ensure that public administration is efficient,
economical and close to the citizens.
The following chapter provides an overview of the Directorate General’s key areas of
responsibility, as well as current examples of activities in the field of strategic human resource
management.
6.2 Employment and pay regulations
A key objective of Civil Service employment regulations is to ensure that public administration
can work effectively; these regulations therefore form the legal basis for HR management in
the Federal Civil Service. While labour relations in the private sector are regulated by the
provisions of employment law, those in the Civil Service are subject to special laws taking
account of the specificities of public administration. This legislation includes, in particular, the
Civil Servants Employment Act (Beamten-Dienstrechtsgesetz – BDG 1979), and the Law
regulating the private law employment of Civil Service staff (Vertragsbedienstetengesetz VBG).
Civil Service employment regulations lay down, among other things, the rights and duties of
staff (e.g. leave, working hours, official secrecy), appraisals, disciplinary rules, as well as the
formal requirements applying to the employment of Civil Service staff (e.g. at the beginning and
end of their employment relationships). In particular, it is the ethical norms governing the
conduct of Federal Civil Service staff (which are included in the general and specific duties
imposed on them, e.g. the requirement to fulfil their duties lawfully and impartially, the ban on
accepting presents, etc.), that ensure the legality of public administration and thus the
population’s trust in the integrity and objectivity of the Federal Civil Service.
In addition to employment regulations in the narrower sense, issues such as employees‘ codecision rights, health and safety at work, and equal treatment are governed by specific laws
applying to the Federal Civil Service, such as the Staff Councils Act
(Personalvertretungsgesetz), the Law on the protection of Federal Civil Service staff (BundesBedienstetenschutzgesetz), and the
Federal Equal Treatment Act
(BundesGleichbehandlungsgesetz), respectively.
Whereas private-sector salaries are either individually negotiated or based on collective
agreements, Federal Civil Service staff are paid according to pay schemes which are provided
76
Human resource management in the Federal Civil Service
by law. These are laid down in the Civil Servants’ Remuneration Act (Gehaltsgesetz) and the
VBG.
It is particularly due to the constantly changing demands on a modern Civil Service that
employment and remuneration regulations are regularly subject to evaluation by the specialists
in the Federal Chancellery’s Directorate General for the Civil Service and Public Administration
Innovation. Any necessary adjustments are, as a rule, negotiated once a year by the social
partners (as it is generally the case for Austrian employment law legislation), and implemented
in the form of amendments to the relevant legislation, adopted by the legislature.
For instance, the 2012 Civil Service Employment Regulations Amendment (DienstrechtsNovelle 2012) adapted employment regulations in line with the provisions of the 2012
Administrative Justice Amendment (Verwaltungsgerichtsbarkeits-Novelle 2012). This piece of
legislation abolishes, as of 1 January 2014, all special appellate bodies, including those with
jurisdiction in Civil Service employment matters, including the Appeals Commission and the
Superior Commission on Disciplinary Appeals at the Federal Chancellery; in the place of
bodies such as these the new law establishes the Federal Administrative Court, to which
appeals against employment-related decisions affecting Federal Civil Service staff are to be
addressed.
In an effort to make work and family obligations more compatible, the 2013 Civil Service
Employment Regulations Amendment adapted/introduced the instruments of care leave and
part-time work for carers, which allow staff to take up the care of family members at short
notice, if required. Furthermore, amendments to the employment and pay regulations for
teachers were adopted, which apply to new teachers on an optional basis during a 5-year
transitional period. The focus of these amendments is on raising entry-level salaries, unifying
pay schemes and teaching loads, as well as giving more weight to previous periods of relevant
employment when it comes to determining teachers’ seniority the purposes of pay.
The new Federal Civil Service pay regulations which took effect in February 2015 reformed the
remuneration system for Federal Civil Service staff and for teachers employed by Austria’s
Regions (i.e. Länder) in order to conform with EU law. This became necessary following a
ruling by the European Court of Justice on how periods of relevant professional service are to
be taken into account for the purposes of advancement to the salary level.
The 2015 Civil Service Employment Regulations Amendment provides for comprehensive
adjustments to compensate those affected by the new rules for any resulting disadvantages,
and to ensure that they will not suffer a reduction in their expected earnings. At the same time,
IT procedures were adapted to ensure that employees’ salaries can be paid out in accordance
with the law. Another key reform under the 2015 Amendment extended the legal entitlement to
up to four weeks’ early parental leave for fathers (i.e. the so-called “Daddy Month”) to persons
in same-sex partnerships and adoptive parents, thus creating the new “Baby Month”, as it is
now called.
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Human resource management in the Federal Civil Service
6.2.1 Preventing corruption, fostering integrity
Corruption jeopardises the rule of law, Austria’s standing as a business location, and ultimately
the wellbeing of the whole country. Therefore the Directorate General for the Civil Service and
Public Administration Innovation is permanently developing new initiatives for further
strengthening the integrity of public administration. Thus the provisions for the protection of
whistleblowers have been extended, and a comprehensive set of rules governing so-called
post-public employment, i.e. employment taken up after leaving the Federal Civil Service, have
been laid down in the relevant employment regulations. At a sub-legal level, a code of conduct
for the prevention of corruption has been elaborated, providing staff with guidelines for handling
potential conflicts of interest, making managers aware of their specific responsibility in
preventing corruption, and informing citizens of the standards they can expect of public
servants.
6.2.2 Cooperation in international programmes
As a member of the EU and the OECD (the Organisation for Economic Cooperation and
Development), Austria is a partner in various international programmes, initiatives and
networks. The units responsible for administrative innovation in the EU member states
cooperate within the Innovative Public Services Group (IPSG-EUPAN) with the aim of
developing and implementing common European initiatives in the field of modernising public
administration, and exchanging information and experience on the practical implementation of
administrative reform measures.
The OECD’s Directorate for Public Governance and Territorial Development (PGC) provides a
platform for officials working in the area of modernising public administration in the 34 OECD
member states to exchange experience. PGC’s publication “Government at a Glance“
provides indicators on government institutions, structures, resources and procedures. You can
access this publication via the OECD’s website at www.oecd.org under “Publications →
Catalogue → Books → Governance → Government at a Glance 2015”.
6.3 Retirement regulations
6.3.1 Calculation of pensions
The Pensions Harmonisation Act (Pensionsharmonisierungsgesetz), which contains the
General Pensions Act (Allgemeines Pensionsgesetz - APG), took effect on 1 January 2005, for
the first time creating a unified pension system for employees in the private sector, for Federal
Civil Service staff on private-law contracts and for Federal civil servants alike. The pensions of
all civil servants born in or after 1976, or appointed in or after 2005, and of all private-law
employees born in or after 1955, are subject to the provisions of the APG.
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Human resource management in the Federal Civil Service
Transitional provisions are in place for the remaining staff members. Thus civil servants who
were born before 1955 receive pensions pursuant to the 1965 Pensions Act (Pensionsgesetz),
while the pensions of private-law employees who were born before 1955 are exclusively
regulated by the General Social Insurance Act (ASVG).
The pensions of civil servants who were born between 1955 and 1975, and appointed before
2005, are determined by way of a parallel calculation method. This means that the pension in
question consists of two components which are calculated under the old and new systems,
respectively, and weighted according to the proportion of the overall insurance period
completed before and after the year 2005, respectively. In other words, one part of such a
pension is subject to the 1965 Pensions Act, while the other is calculated in accordance with
the APG.
6.3.2 The financing of pensions
Civil servants do not have the same kind of pension insurance as employees in the private
sector and Federal Civil Service staff employed under private-law contracts. Their employer,
i.e. the Federal Civil Service, does not pay pension insurance contributions into any of the
social insurance funds; rather, the Federal Civil Service itself pays the pensions of retired civil
servants and their surviving dependants. Civil Service pensions are thus expenditures in the
Federal budget, causing expenditure in the amount of approximately € 3.9 billion in 2014.
Civil servants who were born before 1 January 1955 pay pension contributions in the amount
of 12.55% of their salaries. Those born later pay between 10.25% and 12.40%, depending on
the extent to which they are affected by the Pension Harmonisation Act, and an additional
contribution of between 0% and 11.73% for any salary components beyond the maximum
assessment base for contributions under the General Social Insurance Act.
Retired civil servants pay a contribution of between 1.64% and 3.30% of their pensions
(depending on the date of their retirement) towards securing the pension system.
Civil service pensions are paid out by the Civil Servants Pension Fund (Versicherungsanstalt
öffentlich Bediensteter).
Civil Service staff on private-law contracts have the same type of pension insurance as privatesector employees, i.e. pension insurance contributions are paid by both the employee and the
employer. The balance between the contributions thus collected and the amount paid out in
pensions is covered by public funds in the form of a government contribution. This contribution,
together with pension supplements, amounted to € 10.3 billion in 2014.
6.3.3 Retirement age
Civil servants retire at the end of the year in which they complete their 65th year of age by
operation of law; this applies to women and men alike. Until the year 2003 civil servants could
retire on their own initiative as of the end of the month in which they reached the age of 61.5
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Human resource management in the Federal Civil Service
years by filing a declaration to this effect. Following the pension reform of 2003, the minimum
retirement age for civil servants is now gradually rising until it reaches 65 years in 2017,
analogously to that of employees subject to the General Social Insurance Act; this change also
affects both women and men. Retiring before reaching the currently applicable minimum
retirement age entails a reduction in the amount of pension.
The retirement age for Civil Service staff employed under private law is being raised
analogously; however, the retirement age for women is five years lower in this group, as it is
also the case for employees in the private sector.
However, the actual retirement age lies below the age stipulated by law due to various early
retirement options, based on long insurance periods or disability, or under the so-called
“corridor scheme” (Korridorpension), which allows retirement from the age of 62 under certain
conditions. Recent pension reforms have therefore focussed on measures aimed at raising the
actual retirement age, such as imposing stricter requirements for early retirement based on
long insurance periods or under the “corridor scheme”, reducing the so-called “contribution to
safeguarding the pension system” levied on people who voluntarily continue to work after
reaching statutory retirement age, and facilitating Austria-wide searches for alternative jobs for
civil servants about to be pensioned off due to disability.
6.4 The Staffing Plan and FTE targets
The Staffing Plan for the Federal Civil Service lays down the maximum permissible number of
Federal Civil Service staff for each financial year. As an annex to the Federal Finance Act
(Bundesfinanzgesetz), the Staffing Plan has the standing of a law. For each staff member of
the Federal Civil Service, the required funding must be provided under the Federal Budget (i.e.
in the so-called Bundesvoranschlag, the Estimates annexed to the Federal Finance Act) and
an established post must be available under the Staffing Plan. The Staffing Plan shows all
established posts within the Federal Civil Service and thus constitutes the legal framework
which defines the maximum staffing capacity available for any given financial year, both in
terms of the number and the quality of posts. Established posts - the smallest units within the
Staffing Plan - are categorised according to a set of criteria defined by employment regulations
and remuneration schemes. Considered in terms of capacity, an established post is equivalent
to the workload carried by one full-time worker, in other words, it corresponds to one full-time
equivalent (FTE). The Staffing Plan is linked to FTE counts in that the “staffing level (= FTE), to
the extent that it affects cash flow, must not exceed the levels set for the individual budget
chapters in the Staffing Plan”. The Staffing Plan thus represents a “ceiling” which must be kept
to at all times during the year in question. Compliance with the maximum staffing levels defined
by the Staffing Plan is supported by an IT-based blocking function which was installed within
the personnel management system in early 2008.
In addition to the “ceiling” described above, however, a reduction target to be achieved by the
end of each year must be defined if staffing levels are to be reduced. These so-called “FTE
targets” are adopted annually by the Council of Ministers.
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Since 2009 the Staffing Plan has been integrated into the Medium-Term Expenditure
Framework (i.e. the Bundesfinanzrahmengesetz). Thus the base figures of the Staffing Plan
(i.e. the totals for each chapter) are decided four years in advance under a rotating system.
The Staffing Plan as such, however, is still adopted for the following year, breaking down
staffing figures in more detail, i.e. by organisational unit (in line with the structure of the budget)
and quality of posts, as it has been done in the past.
Reform projects and changing demands on public administration often give rise to
organisational changes which may require adjustments to the Staffing Plan during the year.
Provided such adjustments are cost neutral and do not lead to an increase in the number of
established posts, they are adopted by the Council of Ministers. Furthermore, FTE targets may
change in the wake of organisational changes across Ministries.
The restructuring measures of the last few years and the restrictive policy on filling vacancies
have facilitated a considerable reduction in the number of established posts. In the period from
1996 to 2014, this reduction amounted to 29,711 posts, a figure which does not include those
posts which were abolished as a result of setting up agencies and other separate entities to
carry out former Civil Service tasks.
The Federal Government remains committed to lean administration. Therefore only half of all
posts falling vacant due to retirement during the 2015 to 2019 period will be filled again as a
rule. Exceptions are in place for the occupational groups of law enforcement, judges and
prosecutors, and teachers, as well as for the administrative support staff of schools (starting in
2016), labour inspectors, the administrative justice system and the operative parts of fiscal
administration. Several of these exceptions reflect the specific priorities which the Federal
Government has set itself for the coming years (i.e. 2015 to 2019), namely enhancing internal
security by increasing the number of police officers, accelerating proceedings at the Federal
Office for Immigration and Asylum, and strengthening operative fiscal entities.
6.4.1 The Staffing Plan and Budget law reform
Under the second stage of the budget law reform, the Staffing Plan has been integrated into
the performance-based budgeting process starting with the 2013 Budget, specifically in
accordance with the provisions of Sections 44 and 121 of the 2013 Federal Budgeting Act
(Bundeshaushaltsgesetz). The most central feature of the Staffing Plan is the increased
flexibility; it allows Ministries in managing their human resources. Further objectives of the
Staffing Plan include integrating staffing capacity management, in conjunction with personnel
management, into the unified budgeting and accounting system, as well as implementing
transparency and budgetary truth.
The effect of the provisions of Section 44 of the 2013 Federal Budgeting Act on the New
Staffing Plan is twofold: on the one hand, these provisions ensure a high degree of
transparency in presenting the use of staff resources by the Federal Civil Service; on the other
hand, they ensure truth in budgeting by interlinking personnel and financial resources at all
levels of the Budget. By showing the number of established posts available in financial years n
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Human resource management in the Federal Civil Service
(current financial year) and n+1 (following financial year), as well as actual staffing levels in full
time equivalents for financial years n and n-1 (previous financial year), it will be possible in
future to see at a glance how staffing plans develop over time and to what extent the available
staffing capacity is utilised. A further important step towards increased transparency regarding
the planned and actual use of staff resources is a new Working Tool which will show the
deployment of resources down to Detail Budget Level 1.
Furthermore, HR auditing points are integrated into the Plan as key control tools regarding the
quality of posts, and the same apply to actual staffing levels. These auditing points define the
upper limit on the total “value” of posts at the chapter level of the Staffing Plan, in analogy to
the ceiling on the number of established posts. These two limits, i.e. the limit on the number of
posts and the HR auditing points, serve different purposes. The cap on the number of
established posts ensures that staffing capacity is not increased, while the auditing points are
intended to prevent a rise in the costs of existing staff.
A higher degree of flexibility is achieved in the Staffing Plan, on the one hand by not setting any
legally binding limits below the chapter level, and on the other hand by establishing variable
pools of established posts. This enables each Ministry to deploy its staff resources flexibly and
according to its needs over the course of a financial year.
6.4.2 People with disabilities
The Federal Government has committed itself to further consolidating staffing levels in the
Federal Civil Service. However, in an effort to continue promoting the employment of people
with severe disabilities, those with a degree of disability of 70% and above have been
exempted from the reduction targets. From July 2011 to the end of 2014, staff falling within this
category were recruited to the extent of 83.2 FTE.
In addition, the 2012–2020 National Action Plan (NAP) on Disability sets up a long-term,
politically binding framework for implementing and promoting the UN Convention on the Rights
of Persons with Disabilities. The NAP was drawn up by the Federal Ministry of Labour, Social
Affairs and Consumer Protection, based on contributions by all other Ministries and in
cooperation with organisations representing people with disabilities. It aims, among other
things, at further promoting the employment initiative launched for the benefit of this target
group.
This is to ensure that the Federal Civil Service continues to set an example with regard to
integrating people with disabilities into suitable areas of occupation, as it has done in the past.
The Federal Civil Service has met its obligations under the Law on recruiting persons with
disabilities (Behinderteneinstellungsgesetz) since 2007.
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6.5 Evaluation of posts
Since the 1994 Remuneration Reform, each member of the Federal Civil Service employed in
the occupational groups of law enforcement or the military, or in the administrative service, has
been assigned to a so-called “functional level” (called Funktionsgruppe for civil servants and
Bewertungsgruppe for private-law employees) within his/her qualification-based pay scheme.
This functional categorisation is based on the know-how and intellectual capacity required of
the person holding the post in question, as well as the level of responsibility associated with it.
Functional levels are assigned on the basis of an internationally acknowledged evaluation
procedure. The evaluation of a staff member’s post under this system is a key factor in
determining his/her remuneration.
For instance, in the general administrative service, pay scheme A 1 (i.e. university graduates)
comprises functional levels 1 to 9, with 9 representing the highest level (i.e. that of DirectorGeneral). The functional level assigned to a particular post determines the amount of the
functional allowance paid to the person holding the post. In other words, in addition to length of
service, the salary paid to a member of the Federal Civil Service depends to a high degree on
the quality of the post assigned to him/her.
In order to ensure that posts are evaluated in a balanced and consistent manner across the
various authorities and institutions of the Federal Civil Service, and across all Federal
Ministries, this responsibility is carried out centrally by the Federal Chancellery. The reevaluation of posts is frequently necessary so as to do justice to changes in the tasks
associated with particular posts. Between 8,000 and 10,000 posts are thus re-evaluated per
year; however, this number can rise considerably in years characterised by comprehensive
restructuring.
6.6 Human resource auditing
“Controlling”13 is a key success factor for targeted and transparent management. Current
approaches in this field are future oriented and objective driven, directing all decisions at
achieving these objectives. The role of controllers, too, is changing in light of new demands
being made on them: they are taking a proactive approach, supporting management by means
of well-founded facts and figures.
It is important to ensure that information supply, planning and control are closely interrelated.
The starting point is the strategy development and planning stage, at which objectives and the
means by which they can be accomplished are defined. Additionally, the associated focus on
the future leads to a better ability to cope if things do not turn out as planned. The control
phase involves monitoring whether objectives are being achieved and, if not, identifying the
reasons why. The insights thus gained should be applied as soon as possible so that action
can be taken and execution and further planning improved.
13
In German the term “Controlling” is generally used in this context. This is also the case in both the German
original and the English translation of the ICV position paper cited in Footnote 8, below, on which the following
paragraphs are based. The term “controlling” is therefore also used in these paragraphs.
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Human resource management in the Federal Civil Service
In principle, controlling should take place wherever quantitative analysis and support are called
for. Thinking in terms of means-end relationships implies a long-term and holistic perspective
aimed at sustainability in reaching objectives. To achieve this, controllers must not only provide
figures but also communicate them appropriately. And they must also ensure that these figures
are used correctly; in other words, controllers are responsible not only for the quality of the
figures but also for their interpretation. 14
State-of-the-art human resource auditing 15 supports the Federal Civil Service in deploying its
personnel resources in such a way as to create added value and to optimise the work done by
the personnel units. In addition to optimal deployment of staff, this added value also includes
qualitative improvements such as a rise in the level of qualification, mobility or identification.
Strategic and thus future-oriented personnel management which is based on clearly
communicated aims and a fact-based analysis of the status quo is a prerequisite for
performance- and service-oriented governance informed by the principle of sustainability. In
order to provide appropriate support for management, what is required of human resource
auditing is not reporting along merely administrative or statistical lines but a future-oriented
steering instrument. This kind of piloting support, in turn, relies on a thorough knowledge of the
Federal Civil Service as an organisation, as well as continuous analysis of its environment.
Provided that human resource auditing is involved in the planning process at an early stage, it
can support this process by pointing out alternative scenarios and by assessing the risks and
opportunities associated with certain developments and strategic decisions.
Figure 32 Interaction between managers and controllers
14
Cf. Position Paper of the International Controller Association (ICV) and the International Group of Controlling
(IGC), November 2012.
15
i.e. “controlling”, as used in the paragraphs above, see Footnote 7.
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Human resource management in the Federal Civil Service
An up-to-date management information system provides the basis for standardising a small
number of strategically important indicators, in accordance with the principle of “keep it simple”.
As part of an ongoing reporting process, key developments of indicators relating to staffing
levels, personnel expenditure and pensions within the entire Federal Civil Service are promptly
provided for monitoring and control purposes, as well as analysed in terms of their causes and
consequences. Based on this input, different alternative approaches that could be adopted
within specific overall strategies are shown. Exception reports point out unusual developments
and topical issues such as developments in the age structure or staff turnover patterns. Key
features of this type of human resource auditing are transparency, promptness and reliability.
Key data on the staff structure of the Federal Civil Service, in particular figures characterising
its different occupational groups, are set out in the leaflet “The Austrian Federal Civil Service.
Facts and Figures”, which is updated annually and is available on our website
www.oeffentlicherdienst.gv.at under “Publikationen”, along with other relevant publications.
6.7 An attractive employer
The attractiveness of the Federal Civil Service as an employer has considerable influence on
staff members’ commitment and motivation as well as on staff turnover, making it a key factor
in the organisation’s ability to perform.
Staff surveys show a high level of job satisfaction among Federal Civil Service staff. The high
degree of compatibility of work and family life is appreciated, as is job security as an important
factor for staff in planning their lives. In their day-to-day work, employees derive a great deal of
motivation from their tasks, as well as from believing that they are doing a good job. They know
what their managers expect from them, are to a large extent able to identify with their tasks,
and appreciate the freedom to work independently.
According to the so-called Youth Monitor (Jugendmonitor), when it comes to their dream jobs,
young people in Austria mainly hope for a pleasant work atmosphere and nice colleagues, as
well
as
work
they
find
interesting
and,
ideally,
also
fun
(see
http://www.bmfj.gv.at/ministerium/jugendforschung/jugendmonitor.html). A perfect job should
also provide security and be crisis resistant, in addition to making them feel that they are doing
useful work. Other key attributes of a good job include the compatibility of work and family life,
opportunities for further training, working independently and applying one’s own know-how. All
in all, these are expectations which the Federal Civil Service meets, as staff surveys show.
On the other hand, the image of public administration is often characterised by prejudice and
generalisations. The media often reduce it to a mere cost factor, covering it only in connection
with its potential for savings. The better informed people are about the tasks and activities of
specific segments of public administration (e.g. local government, police), the more
differentiated and positive their perception of them. Direct contact with authorities, too, is
usually seen as positive. By contrast, the Federal Civil Service, whose services are hardly
known to the general public, is subject to stereotyped views and a relatively negative public
image. While it is true that the Civil Service is considered to be a desirable employer due to the
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Human resource management in the Federal Civil Service
high degree of job security it provides, a number of other positive aspects are not reflected in
public opinion.
In the interests of professional HR management, communicating the Federal Civil Service’s
strengths as an employer to its staff, to the general public and to potential future employees will
remain a necessity. Specifically, these strengths include:
•
duties which are both meaningful and challenging – involving, as they do, the wellbeing
of Austria’s population and the country’s further development;
•
a high degree of social responsibility on the part of the employer (e.g. women’s quotas,
full compliance with the requirement to employ people with disabilities, training
opportunities for young people, and fair pay);
•
the compatibility of work and family life;
•
job security as a basis for individual life planning.
6.8 Staff development
Staff development in the Federal Civil Service is generally organised in a decentralised manner
as it is the responsibility of the individual Ministries. However, the Federal Chancellery’s
Directorate General for the Civil Service and Public Administration Innovation has set up a
platform where the Ministries’ staff development experts can network and exchange
experience. Such transfer of information, know-how and best practice examples, along with the
opportunity for discussion, provides support for staff developers in designing and coordinating
measures, particularly in areas affecting staff across the different Ministries.
Furthermore, the results of international cooperation within the framework of the European
Public Administration Network (EUPAN) and the European Personnel Selection Office’s EPSO
Network of Personnel Selection Experts are also subjects of discussion on the staff
development platform.
Services and information on a range of relevant topics for staff developers, managers and
other staff members are available (in German) on the Federal Civil Service Intranet at
http://oeffentlicherdienst.intra.gv.at/ under “Moderner Arbeitgeber” or “Personalmanagement”.
6.8.1 Initial and further training
Initial and further training is a central element of staff development. Planning and carrying out
staff development measures is the responsibility of the HR departments of the individual
Ministries, some of which have set up their own training units. Although initial and further
training for Civil Service staff is regulated by Sections 23 ff., BDG 1979, it ultimately depends to
a large extent on the commitment of those in charge, and on their willingness to invest in
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Human resource management in the Federal Civil Service
training. The law distinguishes between initial and further training; within the latter area,
management training is given particular weight.
In a knowledge-based sector like public administration, the qualifications gained by staff before
their recruitment is of special importance, a fact which is reflected in the fundamental structures
of Civil Service employment regulations. Given the wide range of tasks to be fulfilled, the
Federal Civil Service avails itself of practically all qualifications provided by the tertiary (i.e.
universities and universities of applied sciences) and secondary education sectors.
Nevertheless, life-long learning is far more than a mere catch phrase in this context, as the
following sections show.
6.8.1.1 Institutions providing initial and further training
A number of institutions are responsible for organising and running initial and further training for
Federal Civil Service staff. These include specialised training centres such as the Federal
Fiscal Academy (Bundesfinanzakademie), the Security Academy (Sicherheitsakademie), and
the National Defence Academy (Landesverteidigungsakademie), among others. The Federal
Academy of Public Administration (Verwaltungsakademie des Bundes) is the only interministerial training facility, a fact which accords particular strategic importance to this institution.
Against the background of the increasing influence of the so-called Bologna Process on
education and training systems, a number of Bachelor and Master programmes have been
established in cooperation with universities of applied sciences (Fachhochschulen – FH).
Specifically, courses on “Public Management” and “Tax Management” have been set up at FH
Campus Wien, and one on “Police Leadership” (Polizeiliche Führung) at FH Wiener Neustadt.
In addition to these, programmes on “Military Leadership” (Militärische Führung) are run by the
military training academies.
6.8.1.2 Federal Academy of Public Administration
The Federal Academy of Public Administration was founded in 1976 as an inter-ministerial
training institution. In organisational terms the Academy is a unit within the Federal
Chancellery’s Directorate General III (Civil Service and Public Administration Innovation). Its
seminars and courses are held at Schloss Laudon in Vienna.
The Academy views itself as a “driver of public administration innovation” pursuing the
following aims in supporting the Federal Civil Service as a whole:
1. enabling staff to carry out their duties and to optimise work processes by acquiring the
necessary skills and qualifications (i.e. professionalisation);
2. catering to the Federal Civil Service’s requirements in the area of staff development by
supporting staff in developing and optimising their careers (i.e. upgrading professional
skills and qualifications);
3. promoting organisational development by providing skills and know-how on the relevant
organisational aspects of public administration.
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Human resource management in the Federal Civil Service
Under the headings shown below, the Federal Academy of Public Administration offers a
comprehensive annual training programme comprising approximately 500 seminars and
workshops. In addition to these, thirteen extensive courses, each with a specific content focus,
combine a number of selected content modules in such a way as to provide participants with a
maximum of relevant skills and know-how.
6.8.2 Survey of Federal Civil Service staff
Following the surveys of 2011 and 2007, another survey of Federal Civil Service staff was
carried out in March 2015, which focused on the following job-related questions: working
conditions, motivational factors, work content and objectives, future perspectives and
development, cooperation, leadership, change processes, health promotion, public image and
organisational culture, the Federal Academy of Public Administration, and the Civil Service Job
Exchange. Great importance was given to comparability with past surveys.
The results reflect the opinions of 22,576 Federal Civil Service staff, equivalent to a
participation rate of 23.2%, or just under one quarter of all staff. In those sectors where
invitations to take part could be sent to personalised email addresses, the countrywide
response was higher at 26.9%.
A comparison with the 2011 results shows no major shifts. Despite the fiscal consolidation
measures implemented over the last few years and the resulting recruitment freeze until the
end of 2014, the 2011 results were largely maintained. Improvements were achieved
particularly on certain aspects of health promotion and leadership.
As in previous surveys, a particularly high degree of satisfaction was expressed in connection
with people’s work tasks. In their day-to-day work, staff members are considerably motivated
by believing that they are doing a good job. They know what their managers expect from them,
are able to use their skills to good effect and are given enough freedom to work independently.
Staff show great willingness to support change processes but often feel insufficiently
informed about these.
Most respondents see their immediate superiors as reliable, trustworthy managers who take
responsibility for their decisions and ensure a non-discriminatory work climate. Several
aspects of leadership were evaluated slightly more positively than in 2011, such as the
feedback and conflict culture, as well as appraisal interviews.
Working conditions are widely perceived as positive. A high degree of agreement was
expressed regarding the available working-time models, the physical work environment and
technical equipment, as well as the availability of the information required for work. The
compatibility of work and family life was also positively evaluated for the most part, as was
cooperation with one’s immediate co-workers. However, a (partly markedly) lower degree of
agreement was expressed with regard to issues such as the optimal organisation of work
processes and the uptake of new ideas and suggestions for improvement.
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Human resource management in the Federal Civil Service
The issue of health promotion is seen as an important task for the employer, and people’s
awareness of the relevant offers and services has significantly improved.
As in past surveys, employees’ assessment of their career perspectives, development
opportunities and mobility is rather pessimistic. Their satisfaction with some aspects of
these areas, as well as with the issues of public image and organisational culture, has even
declined.
The Federal Academy of Public Administration and the Civil Service Job Exchange are
better known among the staff of Ministries’ headquarters than in their subordinate institutions,
most of which make use of Ministry-specific or external training opportunities. The Job
exchange (www.jobboerse.gv.at) is predominantly used as an information platform.
Staff members aged 35 or below and apprentices, in particular, evaluate many aspects of
working in the Federal Civil Service clearly more positively than other age groups and mostly
regard their Ministry as a largely attractive employer.
All results (including comparisons with the 2011 survey and a detailed breakdown according
to sex, level of education, etc.) are available in the full report on our website at
www.oeffentlicherdienst.gv.at
under “Moderner Arbeitgeber →Personalentwicklung →
Mitarbeiterbefragung”.
6.8.3 The appraisal interview as a key management tool
Direct, face-to-face talks between staff and their superiors are a prerequisite for successful and
satisfactory cooperation. Appraisal interviews, which are defined by law as management tools
(Section 45a, Civil Servants Employment Act – Beamten-Dienstrechtsgesetz, and Section 5,
Law regulating the private-law employment of Civil Service staff – Vertragsbedienstetengesetz)
play a special role in this context. Removed from day-to-day work routine, these annual
interviews provide an opportunity to discuss the overall setup of the work relationship, as well
as the responsibilities and professional development of staff members.
A good appraisal interview has obvious advantages for staff members, superiors and the
respective organisational unit. Jointly agreed objectives clearly define the focus of future work
and the scope of action associated with it, thus setting an appropriate level of challenge for the
employee. In addition, any disagreements can be clarified and staff identification with the
organisation’s tasks strengthened. Finally, the appraisal interview allows managers to discuss
staff members’ performance over the previous work year on the one hand, and to receive
feedback on their own leadership behaviour on the other.
To facilitate the preparation of an upcoming interview, a set of guidelines for appraisal
interviews and team meetings has been prepared in cooperation with the staff developers of
the different Ministries.
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6.9 Health and safety at work: evaluating mental stress factors
The Federal Civil Service Health and Safety Act has always provided for the comprehensive
protection of employees’ health, as well as the identification and improvement of adverse
working conditions (including excessive mental stress). Like the corresponding provisions of
the General Health and Safety at Work Act, the 2013 Civil Service Employment Regulations
Amendment (BGBl. I Nr. 210/2013) clarifies the issue of evaluating levels of mental stress with
a view to better preventing this type of stress and associated risks in the workplace, as well as
promoting awareness of the issue among staff.
Possible sources of stress include the nature or design of work tasks (e.g. if these involve high
levels of emotional stress, or are too demanding or not demanding enough), the work
environment (e.g. inadequate equipment and resources, user-unfriendly software), or work flow
and work organisation (e.g. unclear or contradictory objectives, role conflicts, stressful time
management, frequent interruptions), as well as organisational culture and climate (e.g. a lack
of information and communication, insufficient room for manoeuvre).
The evaluation of mental stress factors aims at systematically identifying such problems and
developing suitable measures to create more humane working conditions. A range of different
standardised tools and procedures are used depending on the context; these include
questionnaires, group or individual interviews, and targeted observation. Based on this analysis
of stressful working conditions, specific measures for their improvement are being developed
with the aim of achieving far-reaching effects across the Civil Service.
For further information (e.g. guidelines for workplace evaluation), please see the website of the
Labour Inspectorate at www.arbeitsinspektion.gv.at under “Gesundheit im Betrieb →
psychische Belastungen”.
6.10 Karriere Öffentlicher Dienst www.jobboerse.gv.at
The Civil Service Job Exchange was designed as a service to be shared among the various
Ministries in order to achieve synergy effects. The website “Karriere Öffentlicher Dienst” (i.e.
“Civil Service Careers”, www.jobboerse.gv.at), which started out as a place to look for job
advertisements, now allows staff to directly submit their applications online in many cases.
They can use the data they have entered repeatedly, which simplifies the application process.
Furthermore, a guided application procedure has raised the quality of applications. The
recruiting institutions, on the other hand, benefit from streamlined applications which can be
processed more quickly. One-third of all Federal Ministries are currently accepting online
applications via the Job Exchange.
The number of hits on www.jobboerse.gv.at shows the great popularity of this service.
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6.11 Mobility
6.11.1 Mobility management by the Federal Chancellery
By means of mobility management, the Federal Civil Service has created its own, internal
labour market.
Such a labour market is a key instrument of needs- and qualification-oriented personnel
deployment. The continuous (further) development of the tasks of, and demands on the
Federal Civil Service require structural adjustments. Mobility management facilitates the
resulting shifts in staffing, supporting staff in the associated reorientation process and
promoting the transfer of knowledge in the shape of long-standing experience. In addition, staff
members are given the opportunity to develop professionally and embark on new career paths.
The 2012 Regulation on filling established posts is aimed at improving mobility within the
Federal Civil Service. Under this regulation vacant posts are to be filled “internally” wherever
possible, i.e. with persons already working in the Federal Civil Service, in order to stimulate the
internal labour market. The Federal Chancellery’s Mobility Management Service supports
Ministries in searching for suitable candidates when trying to fill posts, as provided by
Section 6 Sub-section 2 of the 2012 Regulation.
The mobility management service utilises the relevant technical tools which are at the Federal
Chancellery’s disposal, i.e. the Career Databank (Karrieredatenbank) and the Federal Civil
Service Job Exchange (Jobbörse des Bundes). The pool of career profiles submitted to the
Career Data Bank is where the various HR units can find potential applicants for vacant posts.
They can also ask the Federal Chancellery’s Mobility Management Service to assist them in
their search.
Only if no suitable candidate can be found and the preceding internal search was unsuccessful
is it possible for the Federal Chancellery to (provisionally) approve recruitment from outside the
Federal Civil Service.
Further information is available from [email protected].
6.11.2 Computer-based testing and modern personnel selection
Modern recruitment practices include state-of-the-art personnel selection procedures. A
computer-based testing system for such procedures (e.g. aptitude tests and screening,
selection of apprentices) has been available to recruiting entities in the Federal Civil Service,
as well as those at other levels of government, since 2011. The advantages with regard to time
and staff resources are considerable: automatic processing of tests reduces the amount of time
required and the likelihood of errors, and the different options for operating test material via a
PC are useful in terms of the range of competencies and parameters that can be tested.
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Human resource management in the Federal Civil Service
Computer-assisted testing allows for efficient, targeted selection from among a large number of
applications, which, in turn, reduces the need for additional procedures (such as interviews or
panels) to identify the best candidate. Thanks to the wide range of options available for putting
together high-quality tests for specific categories, corresponding to the candidate’s prospective
field of employment, a rather general preliminary selection is as feasible as a specific final
selection.
An outline agreement with a provider on implementing and running the computer-assisted
testing system for personnel selection allows recruiting institutions at all levels of public
administration, as well as other public corporations and certain institutions awarding public
contracts, access to the testing system, facilitating up-to-date, high-quality recruitment at
competitive prices.
For further information, please contact [email protected].
6.11.3 The Federal Chancellery’s EU JOB Information Service
Under the heading “Meet the Challenge”, the Federal Chancellery’s EU JOB Information
Service informs citizens and civil servants about career opportunities with the institutions and
agencies of the European Union. The Service also supports individual applicants during the
complex selection procedures carried out by the European Personnel Selection Office (EPSO)
on behalf of other EU bodies.
In addition to providing individual counselling and support, the Service is regularly represented
at career fairs; it also organises events of its own to provide information on career opportunities
and specific competitions. Periodic newsletters provide targeted information on ongoing
selection procedures, work experience placements and relevant events. The newsletter service
is becoming increasingly popular, currently reaching about 9,400 subscribers (6,000 in 2014).
EPSO runs general selection procedures for administrators (i.e. university graduates),
language experts, assistants (i.e. people with upper secondary school leaving certificates) and
specialist staff.
473 Austrians (permanent officials as well as contract agents), including one Director General
(at the DG for Taxation and Customs Union), were working at the European Commission as at
April 2015; this number corresponds to Austria’s share of 1.7% in the EU’s total population.
Moreover, the Austrian contingent at the EU Commission in early 2015 included two Deputy
Directors General, eight Directors, 34 Heads of Unit and four members of Commissioners’
cabinets; in other words, Austria is quite well represented at these levels. In addition, about 40
Austrians were working for the Commission and other EU bodies as seconded national experts
at that time. Following the last administrator selection procedure for graduates without
professional experience, successful Austrian participants make up 2.1% of the so-called
reserve list (i.e. the recruitment pool for future job openings), an impressive, above-average
performance which bodes well for future placement in EU jobs.
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Human resource management in the Federal Civil Service
Having made it onto a reserve list, candidates are supported in finding employment with an EU
institution by Austria’s Permanent Mission to the European Union (Federal Chancellery Unit) if
they so wish. The same support is available to national experts wishing to be seconded to an
EU body.
For more detailed information, please see the “Karriere Öffentlicher Dienst” page at
www.jobboerse.gv.at under “Umstieg → Arbeiten in der EU”.
6.11.4 Internships
Another way of enhancing the mobility of Federal Civil Service staff, along with their motivation
and innovative potential, is to give them the opportunity to explore different ways of thinking,
different work methods and organisational structures. The Federal Chancellery therefore
facilitates internships abroad which are organised on the basis of bilateral exchange
programmes with seven partner countries. Internships at the European Commission and the
General Secretariat of the Council are also available to public servants; the maximum possible
number of placements for Austrians was once again made use of in 2014.
For further information, please have a look at our website www.oeffentlicherdienst.gv.at under
“Moderner Arbeitgeber → Personalenwicklung → Praktika”.
6.12Knowledge management as a core issue for innovative and
future-oriented organisations
For a number of years now, knowledge management has played a key role in the Federal Civil
Service as an innovative and future-oriented organisation.
The various efforts to establish knowledge management as a core element in innovating public
administration and as an aspect of personnel development in all Ministries were given a new
basis in 2012, in the form of the Federal Civil Service Knowledge Management Strategy. In
addition to formulating strategic orientation and objectives, this paper contains the relevant
recommendations of the Court of Audit, as well as initial proposals for their implementation.
Current demographic developments are an obvious challenge, and the urgent need to deal
with the issue of knowledge management is evident. This is especially true when it comes to
securing know-how in the case of staff changes, and retirements in particular. Striking figures
show that up to 53% of current staff will leave the Federal Civil Service due to retirement by
2017.
However, knowledge management alone cannot be the answer to the expected wave of
retirements, and the impact of demographic change on organisations can differ considerably,
depending on the number of staff leaving and on the timing of these retirements. Furthermore,
appropriate solutions depend on the relative importance of a given staff member’s competence
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Human resource management in the Federal Civil Service
and know-how for the overall performance of the unit in question, as well as on any knowledge
transfer processes already in place there.
Finally, the loss of certain types of knowledge can be associated with increased chances of
change in organisational culture. This aspect is not to be underestimated as public
administration as a whole is currently undergoing a massive change process in the wake of the
recent fiscal reforms and the implementation of performance management.
6.12.1 Developing guidelines for knowledge retention following staff changes
A key step in implementing the Federal Civil Service’s Knowledge Management Strategy is
developing guidelines for knowledge retention following staff changes, with the aim of setting
up standardised procedures throughout the Civil Service as far as possible.
In addition, the guidelines being developed deal with the standardisation of concepts in and
around knowledge management so as to facilitate shared awareness and understanding of the
issue, as envisaged by the Knowledge Management Strategy.
The project’s main objective, however, is to retain as much of the Federal Civil Service’s
existing knowledge as possible by integrating the retention, transfer and provision of
knowledge into day-to-day business, even though this may initially seem to require
considerable additional effort.
In the long term, a deliberate and targeted focus on different types of knowledge, in particular
knowledge that is critical for a team’s performance, aims to facilitate the identification of key
knowledge holders and knowledge processes. The key issue here is designing measures for
knowledge retention and knowledge provision in order to ensure the continuation of efficient,
high-quality work in public administration. At the same time, however, any change provides an
opportunity for a change in culture.
For further details, please see the document “Bundesstrategie Wissensmanagement” on our
www.oeffentlicherdienst.gv.at under “Verwaltungsinnovation → Wissensmanagement”.
6.13HR platforms of the Federal Civil Service
6.13.1 The Civil Service Website
The website of the Directorate General for the Civil Service and Public Administration Reform,
www.oeffentlicherdienst.gv.at, has met with great interest. The decision to transfer most of the
content of the Federal Civil Service Intranet to the Internet has proved to have been the right
one. The DG is constantly expanding the range of information provided there; it also produces
a newsletter, which staff members can subscribe to via http://oeffentlicherdienst.intra.gv.at
under “Quicklinks → Infoservice-Newsletter”.
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Human resource management in the Federal Civil Service
Another popular website is “Karriere Öffentlicher Dienst” (“Civil Service Careers”) at
www.jobboerse.gv.at, where information on working for the Federal Civil Service is available
under the headings of “Joining the Civil Service”, “Getting promoted” and “Changing careers”,
and where all job openings in the Federal Civil Service can be viewed.
6.13.2 Conference of HR Heads
Once a year the Heads of Human Resources from across the Federal Civil Service gather at
the invitation of DG III to receive information and discuss current HR issues with the experts
from the DG for the Civil Service and Public Administration Innovation.
In addition to information on training and new developments in the field of employment
regulations, the conference programme comprises talks on topical issues, panel discussions
and workshops. The 2015 conference was dedicated to the new system of taking into account
periods of previous professional service for remuneration purposes, to health management and
promoting staff members’ ability to work, among other topics. Further details are available in
German on the Federal Civil Service Intranet at http://oeffentlicherdienst.intra.gv.at under
“Personalmanagement → Tagung der Personalleiterinnen und Personalleiter des Bundes”.
6.13.3 Expert conferences of the Länder
DG III takes part, as a representative of the Federal Civil Service, in the annual expert
conferences of the Austrian Regions (i.e. Länder) on the topics of personnel management and
personnel development. DG III’s main focus at these conferences is on exchanging information
and experience on current issues with experts from the Regions.
Moreover, the Federal Civil Service uses these platforms to present various shared services
available in the HR field. A number of cooperation opportunities have been successfully
promoted in this way, in particular regarding the Civil Service Job Exchange, computer-based
testing for personnel selection, and the Cross-Mentoring Programme.
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Performance management in public administration
7
Performance management in public
administration
7.1 Performance management and regulatory impact
assessment – a combined approach
Since 1 January 2013, management in public administration has been primarily based not on
the available financial means and staff resources but increasingly on the desired outcome.
Concrete objectives and outcomes are defined and made measurable through the use of
indicators. The implementation of this approach within the structure of the new budgeting law
facilitates the emergence of a performance chain across all organisational and budgetary
levels, all the way to the operative implementation stage.
Two instruments have been developed for this new approach: strategic priorities are defined by
means of performance management, i.e. via outcome objectives and the corresponding output
(i.e. public administration action) laid down in the Federal Budget; specific actions and
decisions (i.e. laws, regulations, major projects) are brought in line with this overall strategy by
means of regulatory impact assessment.
Performance management information looks at the big picture: Which are the greatest
challenges? Which priorities are being set? Which overall approach is government taking to
achieve the desired outcomes? Regulatory impact assessment, on the other hand, shows the
contributions made by individual regulatory (and other) projects, as well as their possible
desirable and undesirable effects on other policy areas, thus presenting a holistic view of public
administration action. Performance management and regulatory impact assessment are
therefore to be seen as a combined approach whose instruments operate at different levels
and but are closely interlinked with a view to further improving the effectiveness and efficiency
of government.
7.2 Outcome orientation in the Federal Budget and the
implementation of regulatory impact assessment – initial
experience
Information on outcome orientation was first included in the 2013 Federal Budget and
developed further in the 2014 and 2015 Federal Budgets. Following the introduction of the
respective bills in Parliament, outcome objectives and the corresponding government action
became subjects of intense discussion. A key requirement of performance management was
thus met, i.e. the different players jointly discussing the means to be employed and the
outcomes to be expected. However, Members of Parliament as well as experts saw the need
for better coordination of horizontal policy areas cutting across different Ministries. It was with
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Performance management in public administration
this aim in mind that responsibility for the coordination of outcomes in the area of gender
equality, among others, was vested in the Federal Performance Management Office.
At the level of regulatory impact assessment (RIA), too, some experience has meanwhile been
gained and compiled in the RIA Report, which was first published in 2013. In addition to
discussing the background and development of regulatory impact assessment, the Report
gives an overview of the first round of applying this new tool. Within months of its introduction,
clear improvements in the quality of impact assessment could be observed. In its training
sessions and workshops, the Federal Performance Management Office therefore puts a strong
focus on this central aspect of outcome orientation, i.e. the measurability of outcomes by
means of indicators. The second and third RIA Reports were presented to the National Council
on 30 May 2014 and 30 May 2015, respectively. They contained the first sets of evaluation
results on regulatory and other projects carried out in 2013 and 2014. These were internal
evaluations conducted by the different Ministries, collated and presented by the Federal
Performance Management Office as part of outcome monitoring. These annual reports will
continue to provide high-quality insights into regulatory and other measures taken by the
various Ministries, contributing to the transparency of political decisions and public
administration action.
It has turned out that certain regulatory projects, e.g. relatively “simple” ones, have sometimes
imposed undue administrative burdens on Ministries and supreme state organs as internal
evaluation is required for each project and the system of RIA contains no special rules
permitting, for example, simplified procedures for less complex projects, or the joint treatment
of similar projects. The Federal Government’s current work programme (2013-2018) therefore
provides for a graded requirement to carry out regulatory impact assessment. A simplified
system of RIA has accordingly been implemented by the Federal Chancellery and the Federal
Ministry of Finance as of 1 April 2015, after intensive consultation with the Ministries and other
bodies concerned.
For further details, please visit our website www.oeffentlicherdienst.gv.at under
“Wirkungsorientierte Verwaltung→ Dokumente”.
7.3 Performance management: a new challenge for managers
A key challenge in connection with introducing these new management tools consists in
adapting organisational and communication structures and processes to these tools, and
improving the relevant skills at all levels of management.
This involves adjusting and coordinating those structures and processes within Ministries
through which outcome orientation is implemented in the budget, and regulatory impact
assessment - including evaluation - is carried out; it also requires aligning the relevant
instruments available in the respective organisational entities.
All this requires particular caution and skill on the part of managers, who must be able to
design and control culture change processes and bring existing organisational architecture and
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Performance management in public administration
design into line with the new requirements. Tried and tested management skills, such as the
use of audit information in decision-making, and management by objectives, are central to
performance management in public administration but may, in part, need re-interpreting.
Particular importance is to be accorded to joint responsibilities shared between separate
spheres of competence, e.g. by defining systematic communication flows between those
responsible for budgetary matters and for performance management, respectively.
All in all, the qualities required are those enabling managers to assess their own actions in
terms of their (intended and unintended) effects and to lead the organisational entities
entrusted to them both efficiently and effectively. An essential tool in this context is the annual
appraisal interview which is required by law (Section 45a BDG and Section 5 VBG). The
guidelines for appraisal interviews and team conferences have been revised and adapted for
the requirements of outcome orientation by the Federal Chancellery in cooperation with the
Ministries’ personnel development experts. The aim is to set up a coherent management
system which allows for cascading the highly condensed outcome objectives laid down in the
annual Federal Finance Act, via the objectives defined at the levels of DGs and units, all the
way down to individual posts. This is to ensure the transparency of all staff members’
contributions towards achieving the strategic aims and current priorities of their institutions,
which can be a key motivational factor.
The experts of the Federal Chancellery’s DG III offer guidance and advice in the form of
training sessions and seminars, some of which are provided under bilateral cooperation
agreements with other organisational entities.
For further information, please contact [email protected].
7.4 The Federal Performance Management Office – coordinating
across Ministries
The inter-ministerial Performance Management Office, located within the Federal Chancellery’s
Directorate General III, monitors and supports the process of introducing performance
management in the Federal Civil Service and develops proposals for enhancing public
administration. The Office also publishes a series of handbooks providing guidance and setting
standards in the field of performance management.
Publications
•
Performance management manual: This reference book contains a comprehensive
overview of the performance management cycle, as well as initial recommendations for
setting up internal performance management within Ministries.
•
Manual on developing objectives and indicators: This handbook shows, in a
practice-oriented way, the steps which are necessary to develop objectives and
indicators, as well as examples of these at all budget levels.
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Performance management in public administration
•
Manual on internal performance management: This handbook provides guidance for
experts and managers designing internal performance management processes within
Ministries, as well as the methodological tools required to implement these.
•
Manual on regulatory impact assessment: This manual directly supports those
carrying out regulatory impact assessment, showing the process step by step and
explaining the different impact dimensions.
•
2013 Performance Management Report: This report graphically presents the
outcome objectives for the Ministries and supreme state organs laid down in the 2013
Federal Budget, and the extent to which these were achieved. Furthermore, it sets out
some fundamental ideas on performance management in public administration, the
state of its implementation, and effectively communicating it to the general public.
•
2014 Performance Management Report: This report graphically presents the
outcome objectives (127) for the Ministries and supreme state organs laid down in the
2014 Federal Budget and the degree to which they were achieved. Additional
information in digital form is provided for the first time on the website
www.wirkungsmonitoring.gv.at. Another change compared to the 2013 Report is the
comprehensive presentation of the cross-cutting issues of “gender equality”, “research,
technology and innovation”, and “children and young people”.
•
Regulatory Impact Assessment Report: This report presents the concept of
regulatory impact assessment and its development, the experience gained during the
first quarter of implementing it, as well as recommendations for its further development.
•
2013 Regulatory Impact Assessment Report: In addition to the evaluations of
regulatory impact assessment carried out in 2013, this report presents the legal basis
for such evaluation and the fundamental ideas underpinning the system. It also
assesses Austria’s approach in light of international experience.
•
2014 Regulatory Impact Assessment Report: While the 2014 Regulatory Impact
Assessment Report dealt with a small number of evaluated projects (10), the 2015
edition presented to the National Council 29 sets of Ministries’ internal evaluation
results for regulatory and other projects carried out in 2013 and 2014. Moreover, this
report uses an innovative visualisation technique to show the extent to which the
objectives of the different projects were achieved.
More detailed
information
is
available
in
German
on
www.oeffentlicherdienst.gv.at under “Wirkungsorientierte Verwaltung”.
our
website
at
7.5 Public administration competitions: networking –
exchanging know-how – learning from each other
National and international competitions provide opportunities for public administration
organisations to present their innovative projects and network with other organisations of their
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Performance management in public administration
kind in the context of learning platforms. They also give impulses for modernisation, futureoriented development and cooperation, as well as promoting the outward orientation of the
public sector.
The competition for the Austrian Public Administration Award (Österreichischer Verwaltungspreis) is run every two years by the Federal Chancellery’s DG III to showcase innovative
Austrian public administration projects and present them to a wider public. Under the slogan
“Learning from each other” the Award promotes the exchange of best practice and the transfer
of successful developments to other organisations.
The Austrian Public Administration Award 2013 was very successful indeed. A total of 81
projects (i.e. an increase of 45% on 2011) were submitted. Information on the different projects
and awards is available on our website at www.oeffentlicherdienst.gv.at under
“Verwaltungsinnovation → Wettbewerbe → Österreichischer Verwaltungspreis →
Verwaltungspreis 2013”.
The Austrian Public Administration Award will be conferred again in the spring of 2016. 90
innovation projects from the Federal, Regional and local levels of government had been
submitted by the closing date. These will be evaluated by an expert jury in the autumn and
winter of 2015/2016. The outcome will then be announced on the “Öffentlicher Dienst” website
under “Verwaltungsinnovation → Wettbewerbe → Österreichischer Verwaltungspreis →
Verwaltungspreis 2016”.
As Austria’s national coordinator for the European Public Sector Award (EPSA), the Federal
Chancellery’s DG III also supports participation in this renowned competition. EPSA’s objective
is to transparently present valuable experience, making it available as well as applicable. The
idea is to create a European network of excellence in public administration which makes toplevel solutions available via a learning platform.
Five Austrian projects received best-practice awards at EPSA 2013. EPSA 2015 will be held
under the heading of "The Public Sector as a Partner for a Better Society". This time there is a
special focus on projects receiving EU subsidies, as well as joint projects between public
administration organisations and, e.g., the private sector, or clubs and associations. The award
ceremony for EPSA 2015 will be held in Maastricht in November 2015.
DG III also is the national coordination unit for the annual United Nations Public Sector Award
(UNPSA), which all public administration organisations worldwide are invited to take part in. In
the UNPSA 2014 competition, the Austrian project “Data.gv.at” (carried out by the Federal
Chancellery) won the award in Category 1: Improving the delivery of public services.
Austria’s active participation in national and international public administration competitions,
and particularly the numerous awards won by Austrian projects, show not only that public
administration innovation is an ongoing, sustained effort in this country but also that Austria’s
Civil Service is among the best internationally.
For further information and useful links, visit our website www.oeffentlicherdienst.gv.at under
“Verwaltungsinnovation → Wettbewerbe” or contact us at [email protected].
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Technical annex
8
Technical annex
This chapter provides a definition of the database used for this study, as well as an overview of
data sources, calculation methods and reference periods.
Due to rounding, the sum total of individual items does not amount to exactly 100%.
8.1 Reference period
All data relating to Federal Civil Service staff refer to 31 December 2013, unless indicated
otherwise.
Data relating to lost working time, income levels and personnel flows (e.g. the number of
retirements) refer to the whole year 2013 (i.e. gross annual income for that year), unless
indicated otherwise.
8.2 Database
Information relating to Federal Civil Service staff usually refers to personnel employed by the
Federal Civil Service whose employment gives rise to expenditure that is classified under
Category 0 (i.e. personnel costs) in the Federal Budget. Staff costs that do not affect cash flow
are not considered, i.e. staff members on early retirement leave are included, while those on
unpaid leave (e.g. maternity leave) are not.
Data relating to civil servants working in hived-off agencies, as discussed in Chapter 2.2, were
not included in computing any of the indicators presented elsewhere in this study.
Chapter 4 (“Traineeships, internships and apprenticeships”) forms an exception in terms of the
database defined above as the expenditure related to trainees, interns and apprentices falls
under Category 7 (i.e. non-personnel operating costs) rather than Category 0 in the Federal
Budget.
8.3 Unit of measurement
Staff capacity is generally expressed in full time equivalents (FTE). Other indicators, too, were
calculated on the basis of FTE, unless expressly stated otherwise.
The following indicators are not expressed in FTE as a per-capita approach is more useful in
these cases:
■ data on average age and age structure
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Technical annex
■ proportions of women
■ proportions of civil servants
■ proportions of part-time workers
■ median incomes (as these generally refer to per-capita income)
■ all data relating to the number or pensioners and retirements, as well as to retirement age.
The data presented in Chapter 4 (“Traineeships, internships and apprenticeships”) are also
expressed in per-capita rather than FTE terms. As part-time work is virtually non-existent
among trainees, interns and apprentices, the figures would be the same in both cases.
8.4 The definition of “management position” as used in Chapter
5.6.4
In this chapter, positions involving “management responsibility” are defined on the basis of
classification in the higher salary brackets. In order to reflect the different levels of qualification
among female staff members in managerial positions, four levels of management responsibility
were defined. The first level (i.e. university graduates I) includes staff with the following
designations: A1/7-9, v1/5-7, AV/A/IX, E1/12, MBO1/7-9, R3, StA3, R III, StA III, Präs. und
Vizepräs. OGH und VwGh, Präs. OLG, Präs. AsylGH, Generalprok.
Level two (i.e. university graduates II) comprises the following designations: A1/4-6, v1/3-4,
ADV-SV1-2, E1/9-11, MBO1/4-6, SI1-2, S1, S2, L1/Dir., LPA/Dir., R2, StA2, RII, Vizepräs.
AsylGH, Richter AsylGH, StAII.
Level three (i.e. staff having completed upper secondary school) comprises the following
designations: A2/5-8, v2/4-6, ADV-SV3, E1/5-8, MBO2/5-9.
Level four (i.e. staff with intermediate vocational qualifications) comprises the following
designations: A3/5-8, v3/4-5, h1/4, ADV-SV6, E2a/5-7, MBUO1/5-7.
8.5 Gross annual income as defined by Section 6a, B-GlBG
Gross annual income as defined by Section 6a, B-GlBG is the fictitious income calculated by
extrapolating the income of staff working part-time and/or for only part of the year to the
corresponding income level for year-round, full-time employment. It covers all persons
employed by the Federal Civil Service for at least one day in 2013. The extrapolated income
does not include one-off payments, such as anniversary bonuses and grants, or refunds for
travel costs and other expenses.
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Technical annex
8.6 Gender pay gap
The gender pay gap is the difference between the median incomes of women and men,
expressed as a percentage.
8.7 Median income
The median is the value that marks the middle of a sequence of numbers arranged in
ascending order, as shown in the following example:
sequence: 1; 3; 3; 4; 6; 7; 24
median: 4
Median values (rather than average values) are used to show income differences in the
Federal Civil Service as these provide a more stable basis for the purposes of showing income
distribution. This is because the median is not subject to influence by extreme values (high or
low) to the same extent as the average, and therefore less susceptible to statistical “blips”. In
order to eliminate the factors of part-time work and employment for only part of the year, the
relevant incomes have been extrapolated to the level of full-time, year-round employment (see
7.5, above).
8.8 Classification of posts
•
Civil servants: e.g. pay scheme A 1 (university graduates)
•
Private-law employees: e.g. pay scheme v 1 (university graduates)
Within these pay schemes, posts are classified as follows:
•
Civil servants: functional levels A1/GL to A1/9; GL (Grundlaufbahn, i.e. entry level) is
the lowest level, 9 is the highest.
•
Private-law employees: functional levels v1/1 to v1/7; 1 is the lowest level, 7 is the
highest.
Classification is based on “function”, i.e. the demands of the respective post in terms of
knowledge, intellectual challenge, and responsibility.
For example: A1/GL refers to a civil servant with a university degree at the lowest functional
level; A1/3 refers to a civil servant with a university degree at the fourth-lowest functional level.
8.9 Sources of data and information
Data on Federal Civil Service staff were taken from MIS, the Federal Civil Service’s
Management Information System.
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Technical annex
Additional sources of data include:
■ Statistik Austria
■ OECD
■ Government Debt Committee (Staatsschuldenausschuss)
■ Austrian Court of Audit
■ Association of Austrian Social Insurance Institutions (Hauptverband der österreichischen
Sozialversicherungsträger)
as well as experts from the Federal Ministries.
104
List of abbreviations
9
List of abbreviations
APG
General Pensions Act
ASVG
General Social Insurance Act
BB-SozPG
Law establishing a social plan for Federal Civil Service staff
BDG
Civil Servants Employment Act
BGBl
Federal Law Gazette
B-KUVG
Law governing health and accident insurance for civil servants
COFOG
Classification of the Functions of Government
EPSO
Network of Personnel Selection Experts
ESA95
European system of national and regional accounts
EUPAN
European Public Administration Network
FIOP
Forces for International Operations
FTE
Full-time equivalents
GDP
Gross domestic product
IPSG-EUPAN
Innovative Public Services Group
OECD
Organisation for Economic Co-operation and Development
ÖBB
Austrian Federal Railways
VBG
Law regulating the private-law employment of Civil Service staff
105
List of figures
10
List of figures
Figure 1 Government sector employees as a proportion of total employment, 2011................ 11
Figure 2 Structure of public expenditure, 2014 ....................................................................... 11
Figure 3 Compensation of employees in the government sector by function, 2013 .................13
Figure 4 Distribution of staff among Federal Ministries, 2014 .................................................17
Figure 5 Occupational groups in the Federal Civil Service......................................................23
Figure 6 Distribution of administrative staff.............................................................................25
Figure 7 Staffing levels 1997 to 2014 .....................................................................................37
Figure 8 Development of staffing levels in the administrative service ......................................39
Figure 9 Development of staffing levels in the military service ................................................40
Figure 10 Development of staffing levels in law enforcement .................................................41
Figure 11 Development of staffing levels among school teachers ...........................................42
Figure 12 Development of staffing levels among judges, prosecutors and trainee judges .......42
Figure 13 Levels of qualification (as reflected in the corresponding pay schemes)..................43
Figure 14 Proportion of civil servants by occupational group ..................................................45
Figure 15 The age structure of the Federal Civil Service in 1995 and 2014, and of all Austrian
employees in 2014 ................................................................................................................47
Figure 16 Average age of Federal Civil Service staff ..............................................................48
Figure 17 Age structures for 1995 and 2014 ..........................................................................49
Figure 18 Age structure by type of employment relationship, 2014 .........................................50
Figure 19 Age structure by occupational group ......................................................................51
Figure 20 Age groups broken down by qualification levels – Federal Civil Service 2014 .........52
Figure 21 Part-time work by type of employment relationship .................................................53
Figure 22 Proportion of women by occupational group...........................................................55
Figure 23 Part-time work by sex ............................................................................................57
Figure 24 Development of the proportion of women in the highest salary brackets, 2006 - 2014
.............................................................................................................................................58
106
List of figures
Figure 25 The gender pay gap in the Federal Civil Service compared to that for all employees
in Austria...............................................................................................................................64
Figure 26 Differences in gross annual income between men and women ...............................65
Figure 27 Differences in average age between men and women ...........................................66
Figure 28 Median income by occupational group ...................................................................67
Figure 29 Days of sick leave per 1,000 employees, in calendar days .....................................68
Figure 30 Federal Civil Service staff with/without sick leave ...................................................70
Figure 32 The development of actual retirement age .............................................................73
Figure 33 Interaction between managers and controllers .......................................................84
107
List of tables
11
List of tables
Table 1 Staffing levels of Austria’s territorial entities .................................................................5
Table 2 Employees of the Länder (without hived-off institutions) .............................................7
Table 3 Employees of the Länder (working in hived-off institutions) ........................................7
Table 4 Government sector employees as a proportion of total employment, 2011 .................10
Table 5 Median gross annual incomes, 2013 .........................................................................15
Table 6 Mean gross annual incomes, 2013 ............................................................................15
Table 7 Distribution of staff among Federal Ministries as at 31 December 2014 ......................18
Table 8 Civil Servants working in agencies as at 31 December 2014 (in FTE) ........................20
Table 9 Occupational groups in the Federal Civil Service .......................................................22
Table 10 Administrative service .............................................................................................24
Table 11 Income quartiles in the administrative service, 2014.................................................25
Table 12 Income quartiles for retired administrative staff, 2014...............................................26
Table 13 Teachers .................................................................................................................26
Table 14 Income quartiles for teachers, 2014 .........................................................................27
Table 15 Income quartiles for retired teachers, 2014 ..............................................................27
Table 16 Law enforcement ....................................................................................................29
Table 17 Income quartiles in law enforcement, 2014 ..............................................................29
Table 18 Income quartiles for retired law enforcement staff, 2014 ..........................................29
Table 19 Military ....................................................................................................................30
Table 20 Income quartiles for the military, 2014......................................................................31
Table 21 Income quartiles for retired military staff, 2014 .........................................................31
Table 22 Judges and public prosecutors ................................................................................32
Table 23 Income quartiles for judges and public prosecutors, 2014 ........................................32
Table 24 Income quartiles for retired judges and public prosecutors, 2014 .............................33
Table 25 Changes in staffing levels, 1999 to 2014 .................................................................38
108
Table 26 Proportion of university graduates ...........................................................................44
Table 27 Federal Civil Service staff by type of employment relationship* ................................46
Table 28 Proportion of women in the Federal Civil Service .....................................................55
Table 29 Proportion of university graduates and persons with upper secondary school leaving
certificates ............................................................................................................................56
Table 30 Women in the highest salary brackets .....................................................................58
Table 31 Development of the gender pay gap in the Federal Civil Service ..............................63
Table 32 Overview of sick leave indicators for Federal Civil Service staff compared to privatesector employees ..................................................................................................................69
Table 33 Federal Civil Service pensions ................................................................................70
Table 34 Grounds for retirement and average retirement age of Federal civil servants ...........72
Table 35 Actual retirement age for pensioners under the General Social Insurance Act (ASVG)
.............................................................................................................................................72
Table 36 Development of different grounds for retirement ......................................................74
109
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