POLICY PAPERS

WRITER’S GUIDE
Civil Service
Commission

Department of Doctrine &

Knowledge
Management

Reform Implementation Tree of Knowledge

Staff

"She is a tree of life to them that lay hold upon her:

and happy is every one that retaineth her."

All rights reserved to the Civil Service Commission

*The guide is written in the masculine, but is intended for men and
women alike
 Guide to Writing Policy Papers
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The Civil Service Commissioner

Introductory Remarks

“Last in deed, but first in thought" (from the liturgical poem: "Lecha Dodi"). The greater the
deed, the greater the importance of initial reflection. We are dealing with the management of
the human resources in the Civil Service. It is work of great importance and its outcome is
significant to the quality of both state and society. This importance requires the activity to be
based on a well-organized doctrine; Therefore—and this is elementary and needs no further
explanation- we must operate according to the Civil Service Human Resources Management
Doctrine. This has further importance because the Civil Service Commission is positioning itself,
within the current reform plan, as the administrative body responsible for managing human
resources in the Civil Service, while augmenting the process of delegating responsibilities to
offices and auxiliary units. We will find that formulating doctrine relating to key issues will be
the central task of the Commission in the coming years. Subsequently, the human resources
management doctrine department was established and we have begun the work.

I applaud the writing of this document which constitutes a guideline for writing policy papers
and is of the utmost value in formulating a doctrine built on stable, systematic and unified
foundations. This is a good opportunity to commend the prodigious work of the writer of this
guide, the director of Department of Doctrine and Knowledge Management of the Civil Service
Commission, Dr. Iris Nehemiah, who has worked tirelessly towards the implementation of the
reform in general and in the promotion of the doctrine in particular.

Sincerely,

Moshe Dayan

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Chief of Staff of Reform Implementation

Introductory Remarks

The Civil Service Human Resources Reform stems from a cultural shift from reactive to strategic
management. principally, the strategy is meant to integrate purpose, policy and overall goals
with the organization‘s practices by defining operational objectives and implementation
methods towards their attainment. In this regard, the Civil Service human resource
management presently lacks a theoretical and doctrinal dimension.

Doctrine (in Latin "doctrina", which means teaching, learning), is a comprehensive term for
policy, expressing the complex of rules, approaches and basic principles in an area of knowledge
or for the operation of a system/organization. The doctrine shapes and determines the
fundamental principles underlying the strategies and plans of operation.

The “Tree of Knowledge” Program, which aims to create approximately 40 policy papers, is a
significant milestone in establishing the ideological infrastructure for human resources
management change within the civil service reform.

The design of the policy paper, which includes the operating principles, concepts and rules on
various subjects, will need to reflect three fundamental components:

Policy
Procedures derived from policy-making processes i.e. –
integration in the circle of government planning, procedures
Procedural Infrastructure involved in the office’s working arrangements,
interconnectivity between entities, etc.
Determining the functions, functionaries, training and
Human infrastructure disciplines, which require attention towards the
implementation of the new policy.
Defining requirements in the areas of content and
Technological infrastructure information, programs and applications and terminal
equipment, deriving from the new policy.

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I have no doubt that the completion of the policy papers as a whole will not only serve as a
conceptual infrastructure, but as the basis for many activities in the reform's implementation,
and will generate enterprises for general organizational changes at all levels of managerial,
procedural, human and technological infrastructure as one.

I wish to express my great appreciation of Dr. Iris Nehemiah for leading the “Tree of Knowledge”
Program, which has been integrated into our operational plan for this special year of reform
implementation.

Wishing you much success,

-Signed-

Ron Tzur

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Head of the Department of Doctrine and Knowledge

Management
Introductory Remarks

Dear policy paper writer,

I am happy to present to you a brief guide to writing policy papers, encapsulating the main
principles in writing policy papers as part of the policy paper writing staff for the “Tree of
Knowledge” Program, under the guidance of the Department of Doctrine and Knowledge
Management of the Civil Service Commission. This program is designated to develop and shape
doctrine management and policy, which will establish the basic concepts of human resources
management in a manner which will allow the best possible use of the civil service’s human
resources potential. Writing policy papers is a challenging process which requires a bird's eye
view and a systemic perspective which examine the current situation and ask several basic
questions:

WHY WHAT HOW

Why is it necessary to  What should be done in  How can we implement
update or develop a order to fulfill the the selected policy while
policy. Why now? objective? maximizing human resource
What are the challenges improvement.
and issues answered by  What are the possible
the policy? Will alternatives for an
engagement in this issue optimal response to
contribute human challenges and issues
resources improvement? which have risen.

These questions should be answered in a broader context, in which it is required to study in

depth the global employment environment, within which the new trends and organizational
milieu must be studied. Going deeper still, the opportunities and risks it offers to the
implementation of the policy must also be considered. In addition, it is required to map key
players in the environment and consider what are the implicit and explicit interests of every
office holder, and what is the added value which each of the players may provide towards the
promotion of the implementation of the policy.

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The vision of improving human resources and fostering excellence among public servants,
requires us to examine a wealth of issues and operational challenges that may arise, first of all
through “human lenses” oriented towards the needs of the individual and the public servant,
as if in a utopian world without constraints. Only at a later stage of the writing, will it be
correct to discuss the existing constraints in the civil service. However, we should not base our
work on them, so that we may "think outside the box" and adopt correct and necessary
practices when formulating policies, in such a way which will ensure the vision's realization.

Remember that you have been given a golden opportunity to influence policy, to improve
processes and develop practical tools for the sake of a better civil service. The Department of
Doctrine and Knowledge Management is at your service to assist and provide you with all the
tools necessary for fulfilling this important task.

I wish you a fruitful endeavor, a pleasurable undertaking, together with feelings of satisfaction,
fulfillment and success.

Sincerely,

-Signed-

Dr. Iris Nehemiah

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TABLE OF CONTENTS

1. INTRODUCTION 9
2. METHODOLOGY OF POLICY PAPER WRITING 12
2.1 The process of writing a policy paper at the 12
macro-level
2.2 Defining the requirement, the problem and 13
formulating the objective
2.3 Identifying the core issue 13
2.4 Preparation of a draft policy paper 14
2.4.1 Formulation and definition of criteria and 15
measures of success
2.4.2 Normative criteria 15
2.4.3 The performance criteria - Mapping 16
potential risks
2.4.4 Deciding between conflicting values and 17
decision- support tools
2.4.5 Creating alternatives and their presentation 18
2.4.6 Analysis of alternatives 19
2.4.7 Formulation of preferred alternative 24
2.5 Policy implementation and control 26
2.5.1 Definition of primary and secondary 26
objectives
2.5.2 Establishing control indices for 26
implementation policies
2.5.3 Policy assessment using measurement tools 29

3. Organization of papers relating to 30

human resources management in the
civil service and operational stages of
their formulation
3.6 pre-creation classification of papers 35
3.7 alotted time frame for the creation process 36
of a policy paper

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3.8 Stages of policy formation and key anchors 37

in a project oriented view (Gantt chart)
3.9 Details offered for all stages of the process 38
according to the timeline
3.10 Details of the types of documents required 41
according to work stages
project oriented work plan 42
Initiating document 43
3.10.1
Internal draft 45
3.10.4 Official policy paper - First edition 46
3.10.5 Official policy paper - Permanent second 48
edition
Sources 50
Appendices 51

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1. INTRODUCTION

This guide is designated for you to assist in formulating a policy within the framework of the
“Tree of Knowledge” program. The guide is divided into two main sections: the First Chapter
deals with the process of writing the policy paper by the project team, and includes the process
of processing the required subject, including the examination of requirements, problem
formulation, analysis of alternatives, and more. Chapter Two deals with the overall concept of
policy papers and the process of writing policy papers in practice, including a time schedule and
Gantt chart, and activities proposed for policy writing within the framework of the “Tree of
Knowledge” Program. It also includes the parts ultimately required to be included in the
document which will be distributed to offices.

The policy of the formulation of the doctrine of management is a process of building a large
codex of basic, doctrinal, policy and operational documents, used as an inexhaustible magnet of
information and knowledge in the field of management, ensuring the existence of professional
dialogue crossing levels and ranks, and allowing the existence of an effective and beneficial
reciprocal interaction between the various agencies in the civil service.

It is designed to assist civil service managers and professionals at all levels to establish an
appropriate management culture, to formulate enriching processes, and enhance the human
resource, all the while maintaining continuous organizational and mental flexibility in
managerial processes.

On the one hand, at the base of its operational concept, lies a codex - a common language -
with uniformity of components and terms relevant to the issue, and , on the other hand, a clear
and organized system of formulation, of organization and maintenance of documents.

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Initiation
 Initiation of doctrinarian subjects in the Civil Service.
 Mapping of ongoing requirements with the organizational units.

Investigation
 Collecting information and investigating data required for determining policy.
 Developing partnerships with knowledgeable (academia, government) and
experienced (business sector) entities valuable for creating a broad and relevant
informational sphere.

Development
 Development of policy papers based on a toolbox of methods and tools.
 Systematic integration of various policy papers.
 Project-oriented approach identifying the development phase as a triangle of three
constraints: Content, time, quality.

Control
 Quality control ensuring products of great organizational value.
 Operational control ensuring a proper and efficient process .
 Communication of activities according to the analysis of interested parties.

The Department of Doctrine and Knowledge Management serves as a professional and

superior authority on the subject of the application of the model of policy papers and
doctrine, of the implementation of methods and tools, and the management of the document
codex. This by:

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Professional assistance,
guidance and training
including: organizational
consultation, informatics,
organization and
methods, conducting
surveys, verbal and
graphic editing.
Work programs for
writing, distribution,
retrieval and
maintenance.
Seminars and
qualification training
focused the writing of
policy papers.

Writing guides and

programs.

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2. METHODOLOGY OF POLICY PAPER WRITING

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2.1 The process of writing a policy paper at macro-level

A policy paper presents a practical problem and outlines a solution chosen in a reasoned and
informed manner from a variety of alternatives examined. The paper serves as a tool for
decision-making, alongside a call to action, and an effort to convince the reader. At the micro-
level, the main process of writing a policy paper focuses on the following stages described in the
diagram:

Definition Definition
of the of the issue
Requirement

Policy
evaluation
Formulation
of
Cooperation alternatives

Policy
implementation Selection
and control of the
Policy preferred
design alternative

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2.2 Defining the requirement, the problem and objective formulation

The first step in writing a policy paper is to define the requirement for the policy paper, and
the reason for which setting policy is required. What is the undesired condition or situation
that created this requirement, (e.g., inefficiency, inequality, etc.), requiring responses and
rectifications by relevant parties?

Formulation of the problem and justification regarding the need for intervention is a critical and
important step in writing a policy paper, given that, according to its definition, the policy comes
to present a deep and accurate solution to a problem and its essence.
Determining the objective of the policy paper stems directly from the way the problem is
defined. The objective may be moral or instrumental, and it is important that it should be based
on preliminary guidelines and premises. Formulation of the objective must be coherent and
written in a clear and realistic language.

2.3 Identifying the core issue

Identifying the underlying core issue and handling it through policy instruments can lead to
achieving the desired result. Therefore, care must be taken to distinguish between the core
issue and secondary issues, which are usually symptoms of the core issue.

The policy paper should deal with the core issue rather than its symptoms. Therefore, we must
closely examine the reasons for the symptoms, the root problem, and not focus on the
symptoms themselves. For this, we must constantly ask what causes the symptoms we see.

2.3.1 Tool to investigate problems

We recommend a possible investigative tool to locate the root cause of the problem. In
professional literature this tool is known as "Why Five", meaning posing five questions. The
premise of the method is that one stops to investigate the problem the moment he finds an
accessible and discernable reason for the problem. At this point, he stops the investigation
and does not try to determine if the cause he identified is really the source or whether there
exists something else that caused it. The proposed method forces one to ask ‘why’ again and
again, in order to eventually get to the root cause of the problem.

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2.3.1.1 Description of the method in a practical way

As stated, we should examine and investigate why a certain problem occurred, and only after
the cause of the problem is understood, should we ask again why this happened, and so on: An
investigation into the cause of A will lead to the conclusion that it occurred because of B
.Instead of trying to deal with B, it is necessary to continue and try to understand why this
happened: a short investigation will lead to the conclusion that B was caused by C. Further
investigation will lead to the conclusion that C was caused by D, and so on and so forth until the
root of the problem is unearthed. The Five Levels recommendation is not an absolutely
necessary condition: one may stop or continue until the point in which the root cause is
understood.

2.3.2 Mapping the issue

In order to deal with the core issue, one must first assess its scope and examine the extent of
its impact on the organization, the employees or the public. This is necessary in order to
better understand the issue and also in order to formulate a course of action to confront it.

In order to treat the core issue, one has to observe the processes that led to its formation.
Then, one must consider how to deal with the issue through the use of policy instruments.
Principally, the following characteristics of the problem should be considered:

• The severity of the problem - How serious is the problem?

• The subject affected by the problem - Who exactly is affected and afflicted as a result
of the existence of the problem?
• The nature of the problem – is the nature of the problem instrumental or symbolic?
• Urgency of the problem – How urgent is it to treat the problem? Does the treatment of
the problem depend on a particular timeframe?
• The problem's duration: Is it a recently emerged problem or
is it an old and ongoing problem?
•Identifying the instigators of the problem – Who are the instigators of the problem
and the various factors which created it?

2.4 Preparation of a draft policy paper

At the draft stage of the preparation of the policy paper, the subject will be deciphered using
the 'why' question - why a change or update of the policy is necessary, and what are the
problems to be solved as a result. The draft paper will include an analysis of the various

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alternatives, risks and opportunities involved in the selection of each of the various alternatives,
and consolidating the recommendation for a preferred alternative.

2.4.1 Formulation and definition of criteria and measures of success

The criteria are variables we use to help examine the success of the policy, and, in fact, they are
the basic requirements of the future policy. The criteria have to be determined before
formulating the alternatives, in order to avoid any bias or guiding during the process.

There are two types of criterion:

• Normative criteria

 Performance criteria

While the normative criteria are the basic requirements which embody the essence of the
policy, the performance criteria test its applicability. Normative criteria are mandatory in every
policy paper.

2.4.2 Normative criteria

Effectiveness – Carrying out the right actions, enabling the best possible attainment of
the policy objective. It is important that the effectiveness index presents a quantitative
measure by which it will be possible to examine how the policy contributes to the
improvement of human resources and how it contributes to solving the problem in
question. This criterion is designed to examine if and how effective the policy is at the
operational level.
Fairness – To what extent does the policy ensure equal distribution of resources. The
fairness criterion is designed to control the policy in accordance with the principle of
equality and the actual impact the policy has on it.

Efficiency – Performing actions in a proper manner. To what extent does the policy
ensure that its effect will be maximal in relation to what has been invested in it. The
effectiveness criterion should reflect the cost of the objective and whether it is cost-
effective. This criterion is similar to the effectiveness criterion but focuses on the

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relation between the investment required for implementation of the policy and the
anticipated return.

Competitiveness – To what extent does the policy promote the value of competition, an
important value in improving human resources in the civil service, and in the
advancement of vital processes in the civil service. Through this policy, all the country's
citizens are allowed to freely compete for civil service positions and progress in rank
according to performance.

Equal and fair representation –To what extent does the proposed policy allow the
various groups in the Israeli society equal and fair representation. Following the fairness
criterion, fair representation of the different groups and strata of Israeli society has
added importance in this criterion, in accordance with the civil service principles.

Security – To what extent does the proposed policy fulfill the basic needs of the
individual civil service employee, starting from existential security to material security.
It is important to note that security is expressed in many ways and on many levels, not
just at the physical level.

Serviceability – To what extent will the proposed policy improve the service provided
to internal organizational customers and the country’s citizens. The level of the
serviceability of civil servants is a very valuable criterion since the objective the civil
service is to provide service to the country’s citizens.

The public service image –To what extent will the proposed policy improve the image
of the public service and help improve the public service “team spirit.”

2.4.3 Performance criteria - Mapping potential risks

Legality - the illegality of the proposed solution. An illegal alternative will not be
accepted in advance, and therefore the challenge arises in situations of uncertainty. In
these situations, it is important to consider means of dealing with the challenge
(eliminating an alternative, a change in legislation, requesting the General Attorney‘s
opinion.)

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Political feasibility - Difficulty or inability to carry out the proposed policy in light of
expected political objections. In this criterion, an analysis of the balance of power and
interests should be carried out, including motives and hidden relationships between the
various parties.

Practical feasibility - Difficulty or inability to perform the proposed solution in light

of different parameters such as time schedules, technological barriers, professional
ability, budget, supervision capability, etc.

Inflexibility - The risk that it will be impossible to “back pedal” if the proposed
solution does not work.

Indirect positive effects - What are the positive byproducts of the policy. How does it
impact the promotion of other fields.

Indirect negative effects - What are the negative byproducts of the policy. Will this
policy negatively affect other areas.

Cost - What is the economic or social cost resulting from the implementation of the
policy.

Degree of weighted risk – This can be calculated according to the severity of each risk (as
decided by the team), multiplied by the probability of occurrence.

2.4.4. Deciding between conflicting values and decision -support tools

The criteria in many cases represent values that have inherent contradictions or tension, (e.g.,
fairness versus efficiency). To be able to analyze the various alternatives based on a uniform
scale, it is necessary to formulate and establish decision-support tools that can examine risks
versus opportunities wisely, in order to reach an optimal decision.

Below are the different types of decision-support tools:

Weights - Different risks and opportunities have different degrees of importance, therefore it is
recommended to appoint weights to different criteria. Weights can be determined

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quantitatively (appointing each risk and opportunity a degree of importance from 100 in a
qualitative manner (high importance, medium importance, low importance).

Ranking - One can rank all risks and chances according to their importance, with the most
important risk and opportunity ranked first, followed by other risks and opportunities ranked in
order of importance.

Preconditions - Certain risks are so great that alternatives may be ruled out in light of such a
risk. One can set an index whereby a certain weighted rank of risk (risk severity multiplied by the
probability it will occur) may eliminate a potential solution.

2.4.5 Creating alternatives and their presentation

Writing a policy paper is not a technical procedure but a process whose sole purpose is to offer a
solution to an existing problem and therefore, the stage of creating alternatives is essential to
the process. In the first stage, it is important to put all possible alternatives on the table. One
must ensure that the alternatives present new approaches in dealing with the issue and / or
new ideas not presented earlier. Of course, the alternative of continuing the current policy
should be included among the alternatives, even if it perpetuates the existing problem, given
that it may be preferable to other alternatives that may provoke more serious effects and
problems. The process of identifying possible alternatives is a process of joint thinking. It is
important for the process to be carried out in such a way that encourages thought and
creativity, therefor there is no need to focus on searching for the “best” alternative, but to
explore as many alternatives as possible.

One should ensure separation between the stage of presenting an alternative and the stage of
analyzing an alternative, and avoid expressing a clear preference for one of the alternatives
prior to its full analysis. To create high-quality and high-feasibility alternatives one should use
relevant analogies, comparisons to existing models (in different sectors or offices, or abroad),
and generic solutions. When presenting alternatives in a policy paper, it is important to present
them as a process of brainstorming and developing new ways of thinking. Presentation of
alternatives must be done in a proper manner, presenting the essentials of each alternative, and
taking into account underlying premises or preliminary guidelines, if such exist. In cases of
numerous alternatives, one should present the main alternatives and only later present
secondary alternatives.

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2.4.6 Analysis of alternatives

This stage is carried out in light of the criteria we determined. Analysis of risks and
opportunities as a tool for analyzing the results of the alternative and not of the alternative
itself. The challenge is to translate the risks and opportunities into results, i.e., to turn them into
a value that can be weighted and examined quantitatively. If one looks at the risk of political
feasibility, for example, one is required to quantitatively weigh the amount of impact of all
relevant political forces on the implementation or non-implementation of the program.

2.4.6.1 Examination of the impact

The implementation of a policy alternative may have various implications. Therefore, at the
analysis stage, one should examine whether each alternative solves the problem in question, its
practical and ethical implications, as well as examine whether the alternative may awaken any
new problems. In addition, one should segment the target population (workers / management
levels etc.), into groups that may benefit from the alternative alongside groups that may be
harmed by it, and pay attention to whether there are populations that are not directly related to
the problem, but may be affected as a result of the implementation of the alternative.

For each alternative, one should build scenarios based on comparative experience, analogies,
theoretical models and models that exist in the field, and try to glean the implications of the
alternative and its future success. For each alternative an estimate of the result should be
performed, which kind of result can be expected from a qualitative and quantitative point of
view, how a certain investment in a particular element will bring a particular type of result, and
so on. Finally, one should consult professional elements and experts in order to analyze options
in the best possible way. It is very important to support alternatives with facts and figures and
distinguish between facts and interpretations.

At the stage of analysis, it is important to analyze all alternatives according to the same scale
and against the same criteria. Analysis that examines advantages against disadvantages for each
alternative on its own has no significance when the alternatives as a whole have no common
ground of comparison. Therefore, one should position all alternatives and criteria together in
an alternative analysis table.

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2.4.6.2 Alternatives analysis table

With the completion of the process of analysis, one should place the alternatives in an analysis
chart where each alternative will be ranked under each criterion both quantitatively and
qualitatively. Of course one should treat the current situation as one of the possible alternatives
(See sample weighting table).

Legend:

Red – Low chance in the normative criterion, high risk in the performance
criterion.

Orange – Medium chance in the normative criterion, medium risk in the

performance criterion.

Green – High chance in the normative criterion, low risk in the

performance criterion.

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 Performance criteria (risks) Normative criteria1 (chances)

Alternative
5 4 3 2 1 8 7 6 5 4 3 2 1

1
It is possible to change criteria by referring to the issue itself.
LEGEND
NORMATIVE CRITERIA (CHANCES) PERFROMANCE CRITERIA (RISKS)

1. Effectiveness 1. Legality.
2. Fairness 2. Political feasibility
3. Efficiency 3.Practical feasibility

4. Competitiveness 4.Indirect negative effects

5. Equal and fair representation 5.Cost
6. Security
7. Serviceability
8. Public Service Image

ATERNATIVES A/B/C/D ALTERNATIVES A/B/C/D

Red squares= Low chances; Red squares = High risk
Yellow squares = medium chance ; Yellow squares= Medium risk
Green squares= High chance Green squares= Low risk

[Public Service Image: Green square = low risk;

Yellow square = Intermediate risk]
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2.4.7 Formulation of preferred alternative

At this stage, a preferred alternative is selected in light of weighted criteria, as reflected in the
analysis table, and in light of the examination of alternative risks and chances. In addition, a
detailed risk analysis of the preferred alternative and its implications will be presented.
In cases where it is difficult to recommend one of the alternatives, it may be possible that a
flaw exists in the process of weighting alternatives.

The choice of one of the alternatives as the recommended policy, will be made while keeping
in mind the following points:
A choice between conflicting values and the world view of the Civil Service
Commissioner and the writing team.
Decision according to the possibility of immediately realizing the alternative,
(especially in cases where there is high urgency.)
A combination of alternatives over time.
Setting a minimum score in such a manner that only the alternative surpassing
this score may be chosen.
Analysis of alternative scenarios and suggestions for balancing and dealing with
the weaknesses of the alternative.
Exchange ratio - how much we are willing to sacrifice from one value in order
to realize another.

Finally, one should write the policy recommendation. The policy recommendation will
include a summary of all findings and a presentation of the recommendation with all its pros
and cons, and an explanation of why it was chosen reflecting a knowledgeable and reasoned
process.

2.4.7.1 Summarizing stage -

At the summarizing stage of the policy paper, a link should be established between the
problem presented in the beginning and the recommended solution presented at the
conclusion. The summary will include a condensed summary of the main findings without
presenting findings or new ideas not presented in the policy paper so far. The summary should
present the main practical action plan that includes details of the recommended policies - who
will act upon it, what is the recommended schedule for implementing the policy for each stage

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of the work plan, and which elements and factors should be considered, focusing on the
practical implementation of the policy, etc.

2.4.7.2 Bibliography and appendices

Upon completion of the policy paper, a complete list of all sources used during its writing
should be prepared, such as articles, books, websites, etc. and such list should be clearly
edited, in an orderly manner, following the standard in research articles. In cases where
interviews were conducted during the process, it is important to incorporate the names of the
respondents in the list of sources. Finally, the paper should be accompanied by appendices that
include all relevant documents mentioned in the course of the paper but not fully presented in
it. Within this framework must be added written instructions, a draft of the civil service
regulations amendment, tools created, and so on.

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2.5 Policy implementation and control2

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2.5.1 Definition of primary and secondary objectives

Upon completion of the formulation and design of the policy paper, the writing teams
should answer the following question: to what extent does the formulated policy for
implementation provide a solution to the need (the problem / reason for which the policy
was formulated). To this end, throughout the process, a control should be integrated as an
essential accompaniment for the evaluation of the policy’s success and to carry out
adjustments and tuning of the formulated policy, or of the alternative chosen for
implementation.
The premise is that defining the primary and secondary objectives of the policy is a cornerstone
of a quality control performance capability. In the absence of clear and lucid definitions, the
ability to determine the norm of the desired success will be impaired.

2.5.2 Establishing control indices for implementation of the policy

The ability to perform quality control after policy implementation is based on the clear
definition of the policy paper objectives (as described in section 2.2 above ) and by the
determination of qualitative indices of success for the alternative selected for implementation,
specified by the authors of the policy in the chapter on control indices in the policy paper (as
described in sections 2.4.2 and 2.4.3).

The control index is a gauge (marker or indicator) assisting the measurement and detection of
the presence and direction of desirable or undesirable change. The index is not data but
contains two essential data: the objective’s datum (planning), and the implementation datum
(in practice). The gauge as an indicator, shows the relationship between planning and
implementation.
_______________________
2
This chapter was written by the senior control department of the Civil Service Commission
accompanying the policy writing process.

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Seemingly, it is possible to establish numerous control indices; however, this has no purpose or
benefit and is not sufficient in order to determine the policy’s degree of implementation. The
principle of using a control system establishes that advanced thinking is necessary when
determining indices, the amount of which will help as managerial indicators while avoiding a
situation where “you can’t see the forest (objective of the policy) for the trees (control
indices)”.

It is therefore recommended to carry out mapping of policy papers components for control
and to establish priorities regarding their implementation over time. This will help avoid
situations in which the principle and the essential are abandoned in favor of the non-essential
and the unnecessary.

Accordingly, the control doctrine recommends policy writers to choose indices that will reflect
the extent to which the policy’s objective has been achieved, and to do so while relating to the
criteria (normative and performance) determined for the policy and the alternative selected
for implementation.

Preferred key guidelines for determining indices:

Measurement capability - Each marker is required to be measurable

(quantitatively) or be evaluated (qualitatively) through the investment of
reasonable resources. In order to achieve it, one has to estimate the required
data and their level of accessibility.

Reliability - The index data should be reliable for the result obtained
to correctly reflect the measured subject. One of the credibility structures is the
ability to reconstruct the measurement.

Comprehensiveness – The entirety of various indices should cover or

reasonably represent (partially, but adequately) the totality of the issue /
criteria it aims to measure.

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Simplicity – Indices also have visibility-explanatory value. It is recommended

that the indices should be "self-explanatory” and clear to the reasonable
observer.

Balance - Balanced measurement usually ensures greater integrity and

reliability. It is desirable that the entirety of the diverse indices relate to the
variety of aspects in the issue they measure, such as:
★

• Long-term - (Usually strategic / managerial indices that estimate at long-

range the impact of policy implementation) versus short term (quantitative
operational indices that focus on the short-term activity of an individual or
of organizational units).

 Effectiveness - (The degree in which the implementation of the policy

promotes the organization's primary objectives) versus efficiency (the
ratio between inputs invested during the process of implementing the
policy, and the results of the actual policy implementation).

 Quantity – (Indices relating to the analysis of the data of policy

implementation in terms of size, number, dimension,
Weight, percentage, etc.) versus Quality (indices relating to the analysis of
policy implementation data in terms of internal nature, attributes, value,
nature of operations, etc.).

 Reference to the dimensions of the issue as a whole - input / process /

output / results:
 Inputs – Resources involved in implementing policy.
 Processes - Key processes operating the policy.
 Outputs – Products designed according to standards of planning
predetermined in the policy paper.
 Results - Desired effects of the alternative proposed in the paper
according to policy makers.

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2.5.3 Policy assessment using measurement tools

Policy authors will refer to the data required for the control and evaluation of the policy
implementation and their sources, including:

 What data are required?

 What is the nature of the data? Binary (1-0) ,Ordinal (items from a
list, when the order of items is significant), quantitative (calculating
the number of items).
 Where are the data? (with the Commission, the offices, the
information systems ) or if they do not exist, how to produce and
characterize, maintain and add them to the control process?

Policy authors will refer to the possible measurement tools for assessing the manner in which
the policy is implemented, including:
Questionnaires and surveys
Modular question tools (monitoring and feedback forms).
Databases of organizational processes (protocols, evaluations and reviews,
insight databanks, etc.).
Files and reports (projects, programs and other activities, tracking tables, etc.)
Implementable information systems storing data which can serve as business-
intelligence envelope to create indices.
Designated systems for control management and performance measurement,
and more.

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3. ORGANIZATION OF DOCUMENTS RELATING TO HUMAN RESOURCES

MANAGEMENT IN THE CIVIL SERVICE AND OPERATIONAL STAGES OF THEIR
FORMULATION
_____________________________________________________________________

Policy
Documents

Doctrinal Non- Guideline Planning

Documents doctrinal Documents Document
Documents

Organizational Core Staff Opinion Procedures Operation

System knowledge
Documents Documents

3.1 Policy papers

The fundamental documents constitute the principle and professional basis for all human
resources management and civil service activity, and express the work objective for dealing
with Civil Service Commission prime responsibilities. In this sense, the basic concepts precede
the doctrine, since they are the fundamental phase in the development of the doctrines.

The various concepts provide a response to two basic questions:

1. What is the purpose of Civil Service work in treating a specific issue?
2. What is the general approach to the realization of this objective?

The doctrine of human resources management in the civil service is based on five major
building blocks from which the fundamental concepts are derived:

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a. Adjusting the structure of the organization to its tasks - such as reducing the
gap between the needs arising from the tasks and the organization of the
office’s manpower.
b. Management of the manpower that handles the organization's core skills -
such as securing a multi-year coordination between the quantity and quality of
the manpower which constitutes the employee population with the skills
defined as the office’s core skills, and the needs derived from the annual and
multiyear objectives of the office.
c. Development of human capital, and processes for maximizing its potential
In order to achieve the objectives of the office, while maximizing the potential
of the office’s human resources in a manner appropriate to its needs and task
objectives.

d. Management of labor relations and wages:

• Conservation of managerial flexibility and continuity of current
operations, while maintaining a proper working relationship with the
representative worker's organizations in the office.
• Monitoring and control of salary expenses.

e. Organizational culture - Diagnosis of the “organizational climate,” (norms,

ethics, feelings shaping behavior). Identification of trends, and professional
treatment of the “soft dimensions” of the organization, just as much as (if not
more) as the treatment of its overt and formal dimensions.

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Human resources Adjustment of the

development organization to its tasks
• Instruction and training • Standardization, peaks
• Workers evaluation & • Organizational structure
• Career development • Work methods
tracks • Skill management

Work relations and

wages Core manpower
• Work relations system • People and positions
• Wage costs directly affecting
outputs and results of
office operations

Organizational Culture
• Ethos, values, ethical code
• Common language
• "The Non-formal
organization"

3.2 Doctrinal documents

Documents dealing with core formulation of organizational operation policy. The doctrinal
documents outline the process for achieving conceptual goals and can be formulated in
knowledge spheres (management domains) or organizational spheres (structural domains).
Basic domain doctrines (the core knowledge) are divided into five areas:

• Staff administration
• Information and knowledge management
• Leadership and management capabilities
• Training and guidance
• Organization

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In order to provide a distinct response that takes into account special needs and challenges,
two other classifications of basic domain doctrines must be addressed:

1. Classification by an organizational hierarchy system:

 Government office
 Supporting unit
 District

2. Classification by an organizational domain system

• Government offices
• Health System
• Security system

3.3 Guidance documents

Mainly instructional, techno-logistical, operational or action guideline documents.

• Operating documents (techniques)

• Procedure documents
• Instruction documents

3.4 Documents that deal neither with concepts nor doctrines

Secondary documents that can be attached to any of the above categories as a

complementary, attached, explanatory document or as appendices.
• Position document - A document expressing the position of the writer in a
comprehensive and reasoned manner. Not a binding policy paper, but a
representation of the approach and position of the author only (the policy
paper can express the position of a HQ, unit, or position-holder).
• Meta-analysis - Research combining several different studies and
analyzing a combination of research findings together in the main study.

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• Required document -A document published for receiving offers of service or of

a product, designed to reduce options and to give detailed directions to the
service provider or supplier. The document describes the desired
specifications, areas of responsibilities, period of service, selection criteria and
all information that might be relevant.

3.5 Program documents

Type of structural documents or simply forms: they are usually in a uniform
format that enables cutting, combination or consolidation of several documents
together for the purposes of analysis, comparison, or continuous planning.
• Current plans (work programs).
• Basic theoretical development or empowerment programs (e.g., annual
programs for human resources planning).

SUMMARIZING CHART
Basic
Basicconcept Adaptingthe
concept Adapting the Core personnel Human resources Labor
Labourrelations
Organization to Core personnel Human resources
development relations
organization to and wagesand
Its tasks development wages
its tasks
Basic doctrine Information / / HR Manager
Information Management Training and
Basic doctrine (Core Training and
(Core knowledge) knowledgeegdelKonK HR Manager Management ecnodguK
knowledge) guidance
management
Perception of
operation
according to Office Support unit District
organizational
system
Professional
Professional Management Strategic Planning Human Resources Control
Systems Management Strategic planning Human Resources Control
Systems

Techniques,
procedures and
instructions

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3.6 Pre-creation classification of documents

• Master documents and policies will be ranked according to their importance

(prioritizing issues as defined by the Civil Service Commissioner), crossed with
the level of complexity (scope, amount of resources in the creative process),
according to a model chart indicating the power of the two components
aligned in importance and complexity.

• The documents will be labeled stating both importance and complexity

according to the model chart, where the AA label will reflect a degree of great
importance along with great complexity, and so on, respectively (see figure
below).

Medium importance Great importance and

and complexity (BA,AB) complexity (AA)
A 4-6 months 6-8months

Importance / Policy paper

prioritization of complexity
issues
Low importance and Medium impotance and
complexity (BB) complexity (BA, AB)
B 2-4 months 4-6 months

B Complexity A

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3.7 Allotted time frame for the creation process of a policy document
The time frame given to the creative and development process of master and policy documents
will be affected by document classification as well as budgeting, resources and communication
levels (taking into account circumstances which require great flexibility). It has been
determined that:

• With documents of great importance (high priority) and a large degree of

complexity (AA) - the time frame for writing the document is 6-8 months.
• With documents of medium importance (medium priority) and medium
complexity (AB, BA) - the time frame for writing the document is 4-6 months.
• With documents of low importance (low prioritization) and low complexity
(BB), the time frame for writing the document is 2-4 months.

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3.8 Stages of policy formation and key anchors in a project oriented view (Gantt
chart)

Weeks

Preparations
Subject approval and expectations adjustment facing Doctrine & Management Department

Team consolidation Stage 0-

Expectations adjustment and setting team time schedule Organization
Work plan preparation
Initiation

Mapping the current situation, examining needs., research and info. collection
from other places

Draft formulation of policy document proposal

Stage A –
Content
Discussion of writers’ forum prior to Commissioner’s approval
Approval
Amendment of proposed draft following feedback of
preparation forum

Commissioner’s approval of policy document content

Stage B-
Discussion &
Work groups meetings to discuss and Document
Writing
formulate policy papers formulation of
Follow-up discussions to
Presentation of draft policy document to control progress
the preparation forum

Approval of program by the commissioner

Stage C –
Discussion in preparation forum for submitting policy document for Commissioner’s Document
approval
approval
Amendment of draft policy paper following feedback from the
preparation forum
Presentation of paper for Commissioner ‘s approval

Amendment of policy paper as a result of Commissioner’s feedback Stage 2-Tools

and paper approval
development
/ update
Development of tools for policy implementation

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3.9 Details offered for all stages of the process according to the timeline (the time frame will vary according to the labeling
specified in the document (AA-CC)
Milestone
-
Purpose of the Preparations
Responsibility for Responsibility of Maximum
Timeline Process Process necessary to Participating parties
implementation Chief Content execution time
and required output the process
Officer

Starting •Approval of subject Pre- •Head of Doctrine •Doctrine Department Publishing Two weeks
discussion– •Coordination of coordination Dept. •Chief Content Officer summary results from the start
External expectations of •Chief Content •Team members emphasizing work of the project
•Group expectations Officer plan.
formation Chief Content
•Setting schedules Officer
- Doctrine
Department
Starting •Coordination internal Preliminary •Head of Doctrine •Doctrine Department Writing of work One month from
discussion– teams expectations content Dept. •Chief Content Officer plan with schedules the start of the
1-2 internal •Setting time Chief Content •Chief Content •Team members and areas of project
months schedules Officer Officer responsibility.
•Preparation of work
plan
Preparatory •Feedback Preparation of •Head of Doctrine • Consolidated •Chief Content Officer Preparation of Six weeks from
discussion •Proposing draft proposal Dept. action team • Staff Head Reform daft of initiated the start of the
forum for alternatives of policy paper •Chief Content • Dept. Heads implementation document project
Commissioner ‘s •Directions for action including Officer • Other factors as • Head of Strategy
work approval •Formulation alternatives determined by the Dept.
of work content preferred alternative for action Commissioner • Representative of
and “research • Control the Legal Office
question” representative
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Discussion - Presentation policy formulating a •Head of Doctrine • Appointed parties •Chief Content Officer Distribution of Two months
Commissioner’s document results and revised draft in Dept. • Dept. Heads • Staff Head Reform initiated from the start of
approval of proposed mode of view of the •Chief Content • Other factors as implementation document the project
content, operation preparation Officer determined by the • Head of Strategy
research forum of the Commissioner Dept.
question and policy paper • Control • Representative of
schedule for including representative the Legal Office
implementation. alternatives • Consolidated action
for action team

Meetings of • Developing the topic

Formation of •Chief Content •Doctrine Department Writing chapters of Four
working groups and formulating a organized Officer •Chief Content Officer the policy paper months
to develop policy paper in light of
offer for •Team members from the start of
subject and the approval of the
discussion the project
write the policy. content by the before any
Commissioner discussion
Follow-up Monitoring deadlines
Publication of •Doctrine •Doctrine Department Publishing Four
3-4
discussions and performance ofsummary Department •Chief Content Officer discussion months
months
various areas of discussion •Chief Content •Team members proceedings with from the start of
responsibility including Officer status of the project
design versus implementation
performance •Team members
and
emphasized
items for the
future.
Forum prepares •Feedback Preparation of •Head of Doctrine •Head of the Reform implementation staff Preparing the Four
for the •Proposing alternatives the first draft Dept. •Head of Strategy Dept. draft of the policy months
Commissioner and possible courses of the policy •Chief Content •Action team paper from the start of
of action paper Officer •Representative of the Legal Office . the project
•Preferred alternative containing •Control representative
formulation alternatives •Other factors as determined by the
for action Commissioner

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5-6 Discussion - Presentation of results Preparation of •Head of Doctrine •Head of the Reform implementation staff Distribution of Six
Presentation to of the policy paper and a final policy Dept. •Head of Strategy Dept. internal draft of months
months
Commissioner its approval by the paper •Chief Content •Action team policy paper from the start of
and approval of Commissioner Officer •Representative of the Legal Office the project
the paper. •Control representative
•Other factors as determined by the
Commissioner
Developing / Creation tools, preparation of •Head of Doctrine •Head of the Reform implementation staff Distribution Three
updating tools procedures, formats, procedures Dept. •Head of Strategy Dept. of new tools months from the
and procedures. guide files and updating document and •Chief Content •Action team end of the
Stage B procedures and of any other Officer •Representative of the Legal Office previous stage
required policies relevant •Control representative
product. •Other factors as determined by the
Commissioner

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3.10 Details of the types of documents required according to work stages

• Document of project work plan - The project work plan serves as

an ignition document of the policy paper writing process.
• The “initiating" document - A skeleton document of the policy
Including most of the complete document's components in addition to
project work arrangements.
• “Internal draft” document– Final product of the writing offered to a group of
factors composed of relevant functionaries in the Civil Service, other officials
in government, as well as experts and external interested parties in relevant
areas. Completion of this stage in the process is the approval of the paper and
its dissemination as an official draft.
• “Official Policy Paper - First Edition” – A document amending all comments
received from the internal draft document. The implementation of this
document in its renewed distribution is binding, and supersedes all previous
and current versions of this document. The document will be distributed to
the relevant circle of users. The document will be distributed as a binding
document for a determined period (usually one year) after which the policy
will be examined by the Commission control unit. The control unit will present
discrepancies, if they were to be found, and the policy will be updated by the
official body of the Commission under the supervision of the Doctrine and
Knowledge Management Department of the Civil Service Commission, and
subsequently, a revised edition will be distributed.
• “Official Policy Paper – permanent Second Edition” - This is a document
with final validity including implementation of the comments received on the
First Edition of the document. This document in its renewed distribution has
full validation for implementation and will practically eliminate all previous
versions of the document. The document will be reviewed and examined
periodically in accordance with the multiyear programs of the Civil Service
Commission and shall constitute an integral part of the cycle of design and
implementation.
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Official
Second policy
Internal Initiating Project
permanent paper -
draft document work plan
edition first
edition

3.10.1 Project oriented work plan

The project work plan is the starting document of the process of writing the policy paper.

In this document, the team leader sets the schedule for the project’s implementation and the
participating team members. In addition, the team leader will determine which parties in the civil
service, and individuals from outside the civil service, will take part in policy formulation as experts
and respondents to the project. Below is the structure of the document:

Structure of a project work plan:

• Background on the team formation and need for formulation of the policy
paper.

• Project goal setting and work content.

• Staff members and officials.

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• Other factors taking part in writing the document and the thought
processes.

• Key milestones in the process and setting timetables for their

Implementation.

• Potential interfaces with other writing teams in the "Tree of Knowledge"

program.

• Drafting a letter of appointment to be submitted to the Commissioner (see

Appendix A’: Appendix for drafting a model letter of appointment).
.

3.10.2 Initiating document

The initiation document is an important part of the process of writing a policy. It includes the
formulation of the central idea underlying the policy document and preparing a general outline for
dealing with the issue. In this context, the writing team members perform individual categorization of
each of the relevant existing materials (such as policy papers written in the past, the Civil Service
code, guidelines) and other materials that can assist in formulating a position (e.g., numerical data on
the issue and trends, academic documents, policy analysis performed by research institutes and / or
foreign governments, etc.). Initiating the writing of a policy paper will be carried out to face an
existing challenge in the basic current doctrine foundation and can be expressed in several ways:
• Writing a new policy paper;
• Updating an existing policy paper - amendment or addition;
• Adapting existing policies to new circumstances, etc.

An initiation document will be written for each policy paper, in which shall be specified the
requirements and expectations of the policy paper as well as of the writing staff. The initiation
document coordinates expectations between the parties connected to the formulation and the
writing of the policy paper. The initiation document will be submitted for approval to the
Commissioner after a preparation forum is held with the participation of the relevant parties (see
table in section 3.9). Following are details of the document structure:

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3.10.2.1 Initiation document structure

• Managers’ summary including a general and concise explanation.
• Details about the core issue.
• Defining the objective of the document.
• Defining measures to treat the issue.
• The target audience the policy addresses.
• A brief survey of the issue and its trends (including the
quantitative analysis of the issue’s dimension).
• Presenting possible alternatives referring to chances and
opportunities in implementing each alternative.
• Recommendation on the overall preferred alternative (including
the rationale and the use the ROI index when possible).
• Milestones in the implementation of the alternative.
• Recommended procedure for application and implementation
including tools.
• The staff members cooperating in writing the policy.
• Relating factors.
• Interfaces and communication.
• Timetable for continuation of writing.
• List of sources.
• Appendices.

3.10.2.2 Additional sections and emphasis on writing the structure of the initiating document

• Table of contents : Table of Contents including chapters and sub-chapters in a way

that gives a good idea of the contents of the document, and even constitutes its
skeleton.
• List of main points: List of changes and important innovations to be included in
the doctrinal paper.
• Milestones for implementation : Details of stages in preparing the document
along with time table. With each milestone, the process and the writing of the
document and its contents will be reviewed by the responsible entity in the
Doctrine Department. It should be emphasized that when the policy paper is
written with the assistance of an external factor, by means of contractual
relations (a consultant), the staff leader should prepare together with the Doctrine
Department team to work in accordance with the time schedule determined.

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• Source List :This list will include the mandatory sources relevant to the issue, as
well as the sources, as appropriate and necessary, as well as in accordance with
the decision of the doctrinal body or the writer.

• Relating factors: it is recommended, during the writing process, to combine

interested parties and / or experts who can shed light on the issue and the manner
in which to cope with it. The writer of the PID (Project initiating Documentation)
will detail which relating factors are planned to be included in the initiating
document. The body authorizing the document should ensure that there is no lack
of relevant factors in the formulating and writing process of the policy paper.

• Writers: The writers’ professional background, areas of expertise and any other
relevant personal or professional details relevant to the writing process should be
detailed.

• Forerunner Chapter: The function of the forerunner chapter is to check the actual
ability of the staff writers to write the policy papers. This is another milestone
sometimes required under the Commissioner's decision.

• Implementation and application: The process of application of the policy within

government bodies including control indices of the process should be detailed. In
addition, the staff work required to implement the policy should also be detailed.

• Interfaces and communication :Writing of the policy papers must take place within
the framework of organized staff work in which all Civil Service Commission
authorities are involved (such as the Legal Office, Control, etc.). All possible
interfaces should appear in the table. Documents will be produced in digital format
for the purpose of updating, and in the first stage, will be submitted to the Civil
Service Commission website and later to an Internet Website dedicated to
knowledge management doctrines.

3.10.3 Internal draft

The Internal draft is the initial version of the policy paper, and is presented to interested parties and
relevant experts in the civil service and externally. The official draft contains the same items to be
included below in the official policy paper, but it is not a binding document.
Below is the internal draft document structure:

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3.10.3.1 Internal draft document structure:

General:
• Executive summary.
• Objective of the document.
• Definitions and basic concepts.

The issue:
• Theoretical background of the issue, its trends today in Israel and abroad.
• Main aspects of the prevailing situation and today’s policy.
• The discrepancy between the current and ideal situation, experience and lessons
learned, and the need to adjust and respond to existing and anticipated
challenges.

The proposed solution:

• Defining indices used to analyze various alternatives.

• Summary description of proposed alternatives.
• Presentation of the preferred alternative.
• Presentation of the meaning of the alternative.
• Application and implementation process including recommended tools.
• Operational guidelines and milestones.
• Control indices.
• Flowchart depicting the policy (see example of the flowchart in Appendix B: Example
of Flowchart).
• Relevant guidelines and tools developed.
• List of team members involved in the writing of the policy paper and their function.
• List of sources.
• Appendices.

3.10.4 Official policy paper - First Edition

The official policy paper is distributed as a binding document after changes have been made in light
of comments received from various factors, partners in the draft document.
This document is binding for operation for a pre-defined period ; thereafter, a Second Permanent
Edition is to be distributed.
This document includes a section on guidelines and procedures for implementation, including
amendment of the Civil Service Regulations. The structure of the policy paper in its First Edition is:

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3.10 4.1 Document structure of the First Official Edition:

General:
• Executive summary.
• Objective of the document.
• Definitions and basic concepts.

The issue:
• Theoretical background of the issue, its trends today in Israel and abroad.
• Main aspects of the prevailing situation in the Civil Service and today’s policy.
• The discrepancy between the current and ideal situation, experience and lessons
learned, and the need to adjust and respond to existing and anticipated
challenges.

The proposed solution:

• Defining indices used to analyze various alternatives.

• Summary description of proposed alternatives.
• Presentation of the preferred alternative.
• Presentation of the meaning of the alternative.
• Application and implementation process ,including the tools developed.
• Operational guidelines and milestones.
• Flowchart detailing the policy (see example of the flowchart in Appendix B).
• Relevant guidelines and tools developed.
• List of sources.
• List of team members involved in the writing of the policy paper and their function
(table configuration).
• List of respondents in the writing of the policy paper and their function (table
configuration).
• Determining the body responsible for updating the document guided by the
Doctrine Department of the Civil Service Commission.
• Establishing the measures of control and the manner in which policy evaluation
will be carried out.
• Periods - Document approval period, closing date of examination period prior
to second edition permanent status (table configuration).
• List of sources.

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Appendices:
• Appendix A – Documentation of the references submitted for the internal
draft.
• Appendix B - Table of amendments documenting the amendments made
from the internal draft.
• Appendix C - Documentation of the relevant section in the Civil Service
Regulations.
• Appendix D – Operational tools and relevant forms.

3.10.5 Official policy paper - Permanent Second Edition

The Second Edition is the policy paper after having received final validation by the core team and the
leadership of the Commission, and after inserting all the amendments and improvements received
from the actual policy implementers in light of the policy operation in the area.The document is
binding indefinitely and constitutes an integral part of the design and operation cycle.

3.10.5.1 Structure of Permanent Second Edition:

General:
• Executive summary.
• Objective of the document.
• Definitions and basic concepts.

Requirements:
• Theoretical background of the issue, its trends today in the country and abroad.
• Main aspects of the prevailing situation and today’s policy.
• The discrepancy between the current and ideal situation, experience and lessons
learned, and the need to adjust and respond to existing and anticipated
challenges.

The proposed solution:

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• Defining indices used to analyze various alternatives.

• Summary description of proposed alternatives.
• Presentation of preferred the alternative.
• Presentation of the meaning of the alternative.
• Application and implementation process, including the tools developed.
• Operational guidelines and milestones.
• Flowchart detailing the policy (see example of the flowchart in Appendix B).
• Relevant guidelines and tools developed.
• List of sources.
• List of team members involved in the writing of the policy paper and their function
(table configuration).
• List of respondents in the writing of the policy paper and their function (table
configuration).
• Determining the body responsible for updating the document guided by the
Doctrine Department of the Civil Service Commission.
• Establishing measures of control and the manner in which policy evaluation
will be carried out.
• Periods - Document approval date.
• List of sources.

Appendices:
• Appendix A - Operating tools including relevant forms.
• Appendix B - Documentation of references submitted to the internal draft.
• Appendix C - Table of amendments documenting the amendments made from the
internal draft .
• Appendix D – Documentation of references submitted to the policy paper’s First
Edition.
• Appendix E - Table of amendments documenting the amendments made in the
First Edition.
• Appendix F - Documentation of the relevant chapter in the Civil Service
Regulations, and any accompanying instructions.

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4. Sources
Below are links to useful information on the subject of the chapter:

Young, E. & Quinn, L. (2002), Writing Professor Levy, Yagil (2011)

Effective Public Policy Papers: A Guide for Writing a Policy Paper (The Open University),
Policy Advisers in Central and Eastern
(in Hebrew).
Europe.

Several examples of policy papers are

presented in the book, and extensive details
on all parts of the paper.


European Union (2008), "Writing Policy
European Union (2008), "Writing Policy
Papers and Policy Briefs",
Papers and Policy Briefs",
http://www.foodsec.org/.../docs/1
http://www.foodsec.org/.../docs/1
policy_paper_guide.pdf Professor Levy, Yagil
policy_paper_guide.pdf
(2011)
Writing a Policy Paper (The Open University),
(in Hebrew).

Several examples of policy papers are

presented in the book, and extensive details
on all parts of the paper.

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APPENDICES
APPENDICES

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Appendix A: Model Draft of Letter of Appointment

Date___________________

Ex 2014 to 2066

To: [Team member details[

Re: Your appointment to the team for writing policy papers on the subject [“details of the
subject”]

According to the report on implementation of civil service reform, and government decision No .481,
dated 3.6.2013, I hereby appoint you to the working staff for formulating a policy paper on the
subject [“details of the subject”[.

In its work, the team will give its opinion, amongst others, on the following subjects:

1.__________________________________________________________________________
2.___________________________________________________________________________
3.____________________________________________________________________________

Mrs. / Mr. [Chairman’s name] shall serve as team leader.

The team must submit to the undersigned a draft with recommendations by [date].

I wish the team success in this important task.

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 Guide to Writing Policy Papers
_______________________________________________________________________

Best regards,

Moshe Dayan
Civil Service Commissioner

APPENDIX B: FLOW CHART EXAMPLE

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 Guide to Writing Policy Papers
_______________________________________________________________________

Receiving departure
potential

Is the Yes Is the Yes Offer to

profession worker continue
in short above work
supply average

No No

Examination Yes Is there a No Is there any No the

according to personal organizational End of worker is
criteria problem fault employment interested

No Yes
Fulfills the
criteria for No Submitting a
continued request to the
CEO Yes
employment

Yes Did the CEO Yes

approve Continued
employment

Continued No
employmen
t
End of
employment

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