1 New requirement for competency

1.1 New tasks – new requirement for competency

The current network-based rapid reaction capability defence has been developed to solve the tasks allocated to the defence sector as a result of changes in our defence and security policy environment. During the Cold War, the challenges faced were relatively static. Today, this situation is much more dynamic and features a high pace of change, requiring specialised competency and quality in all areas. The global political, economical and military division of powers is in change. New superpowers are emerging. The role and influence of Europe has been diminished. USA remains the only global superpower, although China and India are rapidly growing in influence.

Norway’s foremost strategic target area is the High North. The climate changes in the Arctic have an impact on the global climate system and therefore represent special challenges. At the same time, the reduction in the Arctic sea ice extent opens up for new shipping routes and increased access to resources. Developments in the Arctic regions are important for Norway, and this is a region where it is essential to safeguard our national rights and interests. Russia has also named the High North as a target area in terms of energy recovery. It is also a fact that these areas have a strategic military importance for Russia. As such, we face a persistent requirement to update our knowledge within the defence sector on the developments and security challenges in the High North, and to increase our knowledge of environmental and climate changes.

Asymmetrical threats such as terrorism, the dispersion of weapons of mass destruction, ballistic weapon technology and cyber attacks represent constant challenges. Norway has to be prepared to tackle these challenges, both independently and within an international framework, and a number of instruments must be applied to this end requiring a varying role played by the defence sector.

This places substantial requirements on the defence sector. The diversity of tasks and the broad range of competency these require are vast. At the same time, these new tasks have not replaced existing tasks. The Armed Forces still have to uphold our nation’s sovereignty in the High North and provide security for the population by carrying out patrols at sea and along the borders. When requested by the police force, the defence sector shall also contribute towards combating terrorist attacks on Norway. The defence of Norway, its values and population is the primary reason for having a military defence. This implies that the organisation and its employees must at all times be prepared to meet challenges which may threaten our security, and must take part in the collective defence of the member states of NATO. The Armed Forces therefore rely on having the competency required to allow for operative capability in cooperation with allies.

The defence sector would not be able to carry out its tasks without the establishment and update of relevant defence and emergency preparedness plans. These shall allow for the ability to respond quickly to different types of events and crises in peacetime, and a strong and rapid capability to build up forces in the event of a security policy crisis or war. The terror attacks on 22 July 2011 were a substantial test on Norway’s civil protection and emergency planning. The 22 July Commission’s report (Official Norwegian Report 2012:14) states: “The tragedy of 22 July reveals the need for many kinds of changes: in planning work and rules, in the deployment of expertise and resources, in organisational culture, priorities and focus..” The defence sector’s contribution to the protection of civilian social security has been discussed at length in the long-term plan for the defence sector, cf. Proposition to Storting 73 S (2011–2012). Plans have therefore been compiled to adapt and utilise the Armed Forces’ capacity in the most appropriate manner to support civilian authorities within prevailing resource limits and lines of responsibility. These are tasks which require specific competency within emergency preparedness planning, including operations and logistics.

At the same time, the Armed Forces shall contribute towards international security and stability. International operations to ensure peace and stability are closely linked with the efforts to ensure full security at home. Over the past two decades, the Armed Forces have played an increasingly important role in peace and stabilisation operations in areas outside of NATO’s area of responsibility. This development lays the premises for the operative capability required by the Armed Forces. As tasks grow more complex, the requirements on technological competency increase, along with the ability to solve a wide range of tasks, both at home and abroad.

Textbox 1.1 The defence sector – Facts¹

The Ministry of Defence

The Ministry of Defence is a Government Office with responsibility for the formation and implementation of Norwegian security and defence policy. The Ministry is responsible for the overall management and control of the activities of subordinate agencies. As part of its executive power of state, the Ministry monitors the activities of the agencies.

No. of employees: 326

Distribution between civilian/military personnel:

74% civilian/26% military

Distribution between men and women:

33% women/67% men

The Armed Forces

The Norwegian Armed Forces have nine different tasks on behalf of society; (1) provide a war prevention threshold, (2) defend Norway and allies against serious threats and attack, (3) avert and handle events and crises, (4) surveillance and intelligence, (5) uphold Norwegian sovereignty, (6) uphold authority in delimited areas, (7) take part in multi-national crisis management, (8) contribute towards international cooperation and (9) contribute towards security for society. The Armed Forces are an agency governed by the Ministry of Defence which is in charge of the Armed Forces via the model for Integrated Strategic Management (ISM). As such, the strategic management of the Armed Forces is an integral part of the Ministry of Defence, and defence staff share offices with the Ministry of Defence.

No. of employees: 17,195

Distribution between civilian/military personnel:

32% civilian/68% military

Distribution between men and women:

16% women/84% men

The Norwegian Defence Research Establishment

The Norwegian Defence Research Establishment (FFI) is the prime research institution for the defence sector and is responsible for basic research, defence-related development of technology and competency and innovation adapted to the needs of the sector. The Establishment is a civilian research institution and an important adviser to the Ministry of Defence and the Norwegian Armed Forces’ military organisation. The Establishment is organised as a management body with special authorisation and directly governed by the Ministry of Defence. The Establishment shall in particular research trends within scientific and military technical developments which may have an impact on the development of the Armed Forces. The Establishment supports the defence sector with planning, procurement and operation of military materiel.

No. of employees: 693

Distribution between civilian/military personnel:

99.5% civilian/0.5% military

Distribution between men and women:

27% women/73% men

The Norwegian Defence Estates Agency

The agency’s primary tasks relate to the planning, procurement and operation of defence estates and property, building and construction, and consultation related to property, building and construction. The Norwegian Defence Estates Agency (NDEA) is an administrative agency subordinate to the Ministry of Defence.

No. of employees: 1,529

Distribution between civilian/military personnel:

98% civilian/2% military

Distribution between men and women:

40% women/60% men

The Norwegian National Security Authority

The Norwegian National Security Authority (NSM) is the executive body for preventive security in the civil and military sectors on behalf of the Ministry of Justice and the Police and the Ministry of Defence. The NSM shall counter threats to the independence and security of the realm and other vital national security interests, primarily espionage, sabotage or acts of terrorism. The NSM is a directorate which is administratively subordinated to the Ministry of Defence.

No. of employees: 145 man-years

Distribution between civilian/military personnel:

89% civilian/11% military

Distribution between men and women:

28% women/72% men

¹ All figures are dated 31.12.2011

Formerly an extensive and relatively static mobilisation defence, the Armed Forces in Norway have undergone a major restructuring process, reducing the number of forces but increasing the number of permanent units with rapid reaction capability and a large degree of mobility. This restructuring process has allowed the defence sector the ability to manage complex security policy assignments over time, also in areas far from Norway and its borders. The military engagement in Afghanistan is one example of the above. The Royal Navy has taken part in international operations, including NATO’s maritime surveillance operation in the Mediterranean (Operation Active Endeavour), the UNIFIL II operation off the coast of Lebanon and the EU’s marine operation in the Gulf of Aden in 2009-2010, Atalanta. Yet another example of the Armed Forces’ capability to make high-technology and relevant contributions to international assignments at short notice is the operation in Libya from March to October 2011.

However, our network-based, rapid reaction capability defence requires continuous development and improvement if it is to sustain such a high level. Competency is key. The challenges we meet today are primarily driven by technology and are global in nature. All technological and human scope must be utilised to the full if we are to achieve the required combative force. The rapid pace of technological developments has resulted in materiel and weapon systems which are much more complex. The defence sector requires employees with substantial technical insight and who can operate and maintain the new, advanced materiel. Moreover, the sector requires high expertise in communicating and information management. A high-tech intelligence capacity must also be interlinked with similar capacity among our allies.

The establishment of a high-tech rapid reaction capability defence has generated new and complex competency requirements. A high number of functions have to be discharged. This will not make the traditional soldier redundant; people with good physical and military-specific skills who are able to carry out the core tasks of the Armed Forces during military operations are essential. At the same time however, there is an increasing need for employees with competency within a number of other areas such as system knowledge, comprehensive expertise and simultaneous capacity. More recent conflicts have uncovered a need for rapid and efficient implementation of operative competency into new structures. Technicians and logistics personnel have to support new military stations set up in areas far from our home bases. The ability to adapt is critical for the operative capability of the Armed Forces.

The same also applies to an understanding of and competency regarding culture and diversity. Over the past decade, the Armed Forces have carried out operations in areas together with personnel from different and more complex cultures and who face different challenges to those encountered in Norway. An understanding of culture and the ability to interact with local communities are extremely important for the success of international operations. If we are to attract employees with this type of competency, the defence sector has to sustain a reputation as an interesting and relevant career choice for a wider section of society.

1.2 Trends in society and a labour market in change

The requirement for restructuring within personnel and competency applies to the entire defence sector, be it the Ministry of Defence, the Armed Forces, the Norwegian Defence Estates Agency, the Norwegian Defence Research Establishment and the Norwegian National Security Authority. The defence sector is seeking and requires a labour force with competencies which will be subject to tough competition on the labour market of the future. Unemployment in Norway is low and has remained so for a number of years. Despite the financial turbulence in the rest of the world, Norwegian employment has remained stable and the number of new jobs has seen an increase. The competition for qualified labour will also increase correspondingly. This is a challenge to be faced by the defence sector and which requires preparations in the form of new recruitment systems and the development and retention of employees.

Photo: The Norwegian Defence Research Establishment

One of the most significant challenges faced relates to the rapid pace of technological development which is changing society in Norway and the world at large. This development is more radical and is taking place at a much more rapid pace than ever before. The information explosion, globalisation and use of ICT bring about new ways of working and new requirements on competency, flexibility and capacity for change.

The rate of technological development is extremely high within the military sector. The restructuring of the Armed Forces has resulted in new and highly complex materiel and weapon systems. By way of example, one can mention the new vessel structure in the Royal Navy, the new combat aircraft which Norway is about to procure and the equipment now available to Army soldiers. Advanced technology is also necessary for fulfilling tasks related to the detection and handling of cyber attacks on critical civilian infrastructure. Moreover, this development in technology is expected to escalate in the future. This implies that missions may change in character and that materiel becomes obsolete more rapidly than before. The application of modern technology creates new threats and vulnerability, but also the scope for more efficient fulfillment of military missions. The development of new systems for information, communications and surveillance help generate units which have much more power and which require much less personnel. The use and maintenance of technology, combined with requirements for communication, interpretation and management of information are key components for a modern defence. This places substantial requirements on competency and the capacity for change among defence sector employees.

Alongside this technological development, globalisation is the most predominant trend within social development in Norway. Geographical distance is no longer so important and barriers for flow of information, persons, goods and services are now minimal. Norway is part of a major European labour market. Immigration is on the increase and the Norwegian population now features a much higher ethnic diversity. In the future, people from immigrant families will represent a higher ratio of the working population. This has had a significant impact on the availability of manpower for Norwegian companies. For many organisations, globalisation provides a wider source of qualified labour which can help readdress fluctuations on the Norwegian labour market. Today, numerous companies in Norway recruit qualified labour from markets where the financial crisis has hit harder than in Norway, resulting in high unemployment. The defence sector is not as flexible as other organisations in making use of manpower from abroad in order to readdress fluctuations in the source of competency within Norway. This is due to the unique nature of the defence sector, requirements on security clearance and limitations related to citizenship for many functions. A more globalised labour market does however provide opportunities, within the boundaries of current legislation, to recruit personnel from countries with which Norway has security-related cooperation, primarily allied nations. This can provide scope for recruiting critical competency for the defence sector, for example technical personnel.

A third set of challenges relates to demography, urbanisation and changes in the working population. Norway has an aging population and an increasing number of people are migrating to cities and densely populated areas. The flow of population is towards central regions, in particular to the largest cities. The population is expected to see significant growth in the major cities and surrounding areas, while a lower rate of growth is projected for regional areas. This may exasperate the challenges faced by the defence sector in attracting qualified labour. The Armed Forces have cut back on the number of locations and are primarily located outside of areas where the greatest growth in population is expected. We therefore need to lay the foundations for presenting the defence sector as a competitive and attractive employer to the future labour market.

Today, the norm in society is for dual-career couples, where both partners work. Not only are more women now in work, there has also been a change in the role played by men. Today, men and women are both expected to take responsibility for home and family. On the part of the defence sector, this implies that the employees of the future will have to pay much more consideration to their partners’ careers when making decisions about their own careers. This may have an impact on geographical mobility and increase the need for a long-term perspective and predictability when planning a career in the defence sector. A number of initiatives will be required to allow dual-career couples to serve with the Armed Forces at their different locations in the future.

The high rate of change, rapid development in technology and the broad spectre of missions may afford the defence sector a profile as an attractive employer for new generations of employees. However, for this to happen, the sector must be able to market the opportunities provided by a career in defence, and that they can offer flexible, individual schemes and horizontal career paths. The fact that the military section of the defence sector has not been so successful in recruiting and retaining females and other groups of personnel who have a different background than the majority within the organisation implies that the defence sector has failed to procure a number of talented employees.

Future employees will be much more aware of their own value. We know that these employees will have a higher level of education. We know that most of them will find expect to change jobs several times. We know that the most attractive employers will be those which invest in competency and the development of individual employees. Combined with the younger generation’s increasing expectations for influence over their careers, this may place pressure on the hierarchical organisational structure and the working method prevalent within the public sector, including the defence sector. New and younger employees will challenge current forms of management, working methods and types of communication. The way work is organised is of significance for the motivation and retention of employees and thereby for the retention and development of competency. By organising work in a less hierarchical manner, it will be easier to work at a high speed and will pave the way for innovation and for skilled employees to make proper use of their expertise. Moreover, it will allow for more motivated employees and make the defence sector more attractive and competitive as an employer. These factors will have an important impact on recruitment and the retention of employees with the required competencies.

Solidarity and professional identity within the defence sector may prove significant factors for a choice of career within the sector, or perhaps returning to a job in defence after a period spent in other careers. The opportunity to change jobs internally within the defence sector is also a factor which will attract young people and help ensure they stay with the organisation. To be perceived as an attractive employer, the defence sector must have a good reputation both outside and within the sector itself. By increasing accessibility to job changes and work experience between the different defence agencies, the defence sector will be able to enhance network building and development of competency within the sector as a whole, in turn benefiting the defence sector’s positive reputation.

In the future, working life will make much higher demands on flexibility, on the part of both the employer and employee. Freedom and flexibility may be more important than safety and predictability, particularly for people with advanced expertise on a labour market lacking in highly skilled workers. The working life of the future may therefore be more heterogeneous with a larger focus on continuous learning, change and individual adaptations. New groups of employees from different backgrounds will provide employers with a broader base from which to recruit the best competencies and to retain highly qualified personnel. Diversity will also make the organisation more attractive to younger generations.

In society at large, there is an ever-increasing focus on strategic competency management. Very few organisations have achieved substantial advances in this area, although a number of private companies have made better progress than organisations in the public sector. The growing competition for manpower and competency has given rise to an increased focus on management and employee development and monitoring of results for both individuals and organisations as a whole. A number of companies now focus on personality rather than skills when recruiting new staff, based on the philosophy that skills can be learned while personality is inherent. Continual change attracts more attention to positive processes for change and adaptation.

1.3 New expectations

Norway has an excellent, high functioning public sector. General surveys among the population from 2010 indicate that seven of ten persons are satisfied with the services provided at municipal and governmental level.1 Despite this, the development trends and rate of change in society will present the public sector with a comprehensive need for change and development. Among the key factors in this context are increased competition for scarce resources, a higher focus on legitimacy, efficiency and the obliteration of traditional borders between sectors of society. In total, this implies a requirement for new thinking on competency, collaboration and management throughout the entire public sector.

Resources will always be scarce and prioritisation essential in a society, both in terms of qualified manpower and public funding to finance the needs of a community. As populations grow increasingly old, pension expenses and health, care and welfare costs grow higher. The future of the welfare state will greatly rely on the public sector’s capacity to improve efficiency and achieve innovation. Scarcity of manpower in the years to come will force us to make use of this manpower in the most important areas. Human capital and competency will prove a decisive factor for the development of more ingenious solutions.

The public sector will have to fight hard to gain the most competent personnel. The private sector has become more knowledge-intensive and this only serves to augment competition for this category of manpower. Despite the considerable increase in the number of persons taking higher education, the private sector will be targeting this competency to a much higher degree, and the private sector is more competitive in terms of salary. As a result, the defence sector must identify its competitive strengths and make use of these to achieve its goals.

Not only could this scarcity of resources make it more difficult to sustain the current level of public services, there will also be a higher demand for and expectations of public services. Legitimacy has a decisive impact on support for communal systems, and funding for such is not forthcoming if the community at large feels that the resources are not being properly utilised for the best of the community and the individual. More than many other public organisations, the defence sector relies on legitimacy to fulfil its mission as the ultimate instrument of power for the Norwegian government.

This development lays the premises for the operative capability required by the Armed Forces. As missions grow more complex, the requirements on technological competency increase, along with the ability to work within a network and solve a wide range of tasks, both at home and abroad. Advanced technological competency is a resource in high demand on the Norwegian labour market. The Armed Forces currently train personnel in this area not only for own use but for the rest of society. This reinforces the need for further development of the defence sector into a modern competency-based organisation which can compete using other instruments than salary and which can be seen as an attractive employer by highly skilled personnel who have a number of choices.