bout de papier, Vol. 11, No. 1 (1994) — Spring 1994 // Printemps 1994, pp. 39–40
Outsiders often wonder how government bureaucracies manage the transition to serving a new government, particularly after having served faithfully another political party for over nine years as was the case with the Ottawa bureaucracy and the Conservative government. The election of a new Liberal government in October 1993 has provided an opportunity to examine this process.
Thanks to the whole-hearted support and collaboration of the Department of Foreign Affairs and International Trade (most particularly Commissionaire Louie Daigle, recently laid off; the Under-Secretary’s student co-op, Francine O’ Hara, recently deprived of her security clearance, and the entire Domestic Communications and Cultural Branch, recently transferred from the Department), bout de papier was able to patch together a case study of a Department coping with transition.
Preparing for the Transition
It is three weeks before election day. The Executive Committee of the Department is holding a special retreat to discuss the arrival of a new government, either a Campbell, Manning or Chrétien government, and the implications on Canadian foreign policy.
Reflecting a renewed emphasis on frugality and austerity, the retreat is not at the usual bucolic Quebec sites of Willson House at Lac Meech or at Chateau Montebello. Yet the plain wooden chairs and tables in the corner alcove of the Brasserie Les Raftsman somehow lends itself to a back-to-basic review of Canadian foreign policy.
Like the setting, the agenda is sparse: (1) Challenges and Opportunities for Canadian Foreign Policy in the Nineties and (2) Briefing the New Minister. The discussion is lively. Pitchers of draft beer circulate amongst the Deputies and the Assistant Deputy Ministers.
Bikers at neighbouring tables are momentarily taken back by the perspicacity and incisiveness of the discussions and they themselves are inevitably drawn into the debate. “Vos gueules, têtes carrés! Retourne-toé a Ottawa, gang d’ecoeurants, et nous laisse la paix. ’tit Mo, où sont les strippers?”
Invigorated by the public consultation, the Deputies and ADMs continue their discussions. One states, “Yes, I recognize the real constraints and limitations on our policy flexibility raised by the geographic branches, but come on guys, let’s get real about the issue. We need three briefing books, black, of course. This concept of red briefing books certainly is innovative and different, and breaks with the past.”
He continues, “But have we thought out all the downsides? Will we be accused of being a partisan bureaucracy? Suppose the Tories or Reform win? Does this mean we prepare blue and green binders too? In an era of austerity? What would the Auditor General say? Howard, pass me a pickled egg.”
Another ADM intervenes, “Just to say that I have been enthralled by the quality of the debate. It’s been a long time since we’ve had such a policy free-for-all at Executive Committee. Some excellent points have been raised over the last hour on the colour of the binders.”
“I want to move on to something more substantive. I see a polarity of two policy extremes facing this Department. There is “the Mother of All Briefing Books” option, pushed very ably by the Policy Unit which argues for one all-encompassing book, which would be pithy, brief, readable, action-oriented, comprehensive, historical and encyclopedic at the same time. Then there is what I would call the “Fifteen Empire” option. Many ADMS are arguing that fifteen separate branch policy binders would better reflect the functioning of the Department and the uniqueness, complexity and equal priority of all issues. I prefer what I would call “the Third Option” – three books.”
Known for his iconoclastic approach to foreign policy, another ADM jumps into the fray. “Why three? The distinction between “Main Issue” book and “Issues: Background” book is artificial. Aren’t we splitting proverbial policy hairs.” He stops for effect. Someone pours beer into his empty glass and throws him a pepperoni. “Let’s do an integrated “Issues” book and a separate “Management Issues” book. We can focus exclusively on the first book, because most of us around this table haven’t given much thought to the latter. M Branch can do that. They’re the bean counters after all.”
The discussion rages through the afternoon. The wide range of policy options are considered and thrashed out. The quality of debate is high and the interventions are well-thought out. A sampler:
Organization of briefing book: “I just get sick and tired of people who automatically dismiss the thought of organizing the book by alphabetical order. Besides I really don’t understand how we can organize the “Issues” book into sections called Immediate Action Issues; Upcoming Policy Challenges; Old Standbys; The Rest.”
Style of the briefing note: “I agree with David that we need to write more like the New York Times and the Economist. But I disagree with him that we should just cut and paste some of their best lines. The Haynal idea is interesting. But I’m just wondering how practical hologramistic 3-D interactive briefs on CD ROM disks would be?”
Font of the briefing note: “OK, Scalable 10 point, I admit, portrays determination, boldness, policy bullishness. But Italics 12 point is aesthetically more pleasing. I say let’s put down markers to the new government: aesthetics before policy.”
Length of the briefing note: “What is so sacred about one page? What is so sacred about using 8” by 11” paper? The Europeans use longer pieces of paper. I frankly don’t have the answers but we need to challenge all conventional ideas”
Format of the briefing notes: “We’ve just gotta change directions, Reid. The one page Briefing note starting with Issue, Talking Points and Background with no paragraph more than two lines was a Mulroney invention. I say go back to our traditional model-three pages of Background and some meaningless Talking Points which force the Minister to think up his own.”
The afternoon session draws to an end as on cue. Indeed, the management of Les Raftsman has thoughtfully provided a cue. Sophie “La Blonde de Beauce” puts money in the jukebox and heads to the stage to strip. The crowd whistles and the retreat retreats.
Briefings for the New Ministers
The swearing-in of the Minister of Foreign Affairs and the Minister of International Trade as well as the two new Secretaries of State takes place one week after the election victory of the new Liberal Government. The Department prepares for the briefing of the new Ministers.
Three briefing books, the fruit of the careful preparation for the transition laid out at the retreat, are forwarded to Ministers. The Department is ahead of the curve.
Reflecting the vitality of the policy retreat, the format of each of the briefing books changed daily in the three weeks between bout de papier Vol. the retreat and election day. Each individual briefing note prepared by each division on a particular policy issue has been redrafted by the central Policy Unit to fit the new format and style. No-one is sure what’s in the final briefing books.
This is only a slight problem. Each ADM will now individually brief the Ministers on his issues. There is great relief. The integrated briefing books are not that important after all. The Department mobilizes for the last minute preparations of the ADM oral briefing of the Ministers. The Department is behind the curve but the transition moves forward.
The Department in Transition
With the two new Ministers and two new Secretaries of State in place, the Department is now in full transition, quickly changing habits and behaviour acquired during the Conservative government and moving to the patterns and policies of the new Liberal government. A new way of thinking and acting permeates the Pearson Building. Here are a couple of vignettes which illustrate this.
Executive Committee Every Morning at 08h30: The Under-Secretary takes his place at the middle of the table in the executive boardroom. He is surrounded by his Assistant Deputy Ministers. As usual there is a crispness in the air, an atmosphere of action, no-nonsense and urgency. The agenda is brief. The Under-Secretary turns to one of his ADMs. “Stan, before we start today’s meeting, perhaps you could open the meeting with a reading from the good book.”
An ADM rises and goes to the new ultramodern podium at the end of the boardroom. He clears his throat and begins to read, “Today’s reading is from the Red Book, Creating Opportunities, Chapter 5, “Strengthening Our Society”,, Sub-Section
8, Paragraph 1. “Canadian culture embraces our shared perceptions and beliefs…” Desk Officer Level: Janet Shields- Cossette-Brassard-Halstead, FS-2, stares at the revised memorandum to the Minister on her desk. She has just received the comments she has been waiting for the last three days on her urgent memorandum from her Deputy Director, Director, and Director General. Looking at the metallic grey walls of her office, she thinks to herself. “Yes, how stupid of me not to put into the Recommendation section the prefacing words “As stated in Chapter 8 of the Red Book Creating Opportunities, we recommend that…” How dumb of me not to put into Background section the paragraph on “This initiative is the cumulation of the Department’s efforts to respond to the thrust of Chapter 5 of the Liberal Party Foreign Policy Handbook, capturing comprehensively all the themes which are…
She ponders further, “And how politically naive of me not to think about including in the Considerations section a paragraph on “Before any action can be taken on this issue, there needs to be a full scale consultation with a forum of concerned Canadians, ethnic and professional groups and a revolving group of parliamentarians and members of the foreign policy academic community.”
“But then again,” she thinks, “who would have thought this was necessary on a Ministerial Memorandum asking for $80,000 to fix the stone gate surrounding our Ambassador’s residence in Rome.”
Epilogue
Perhaps more than anything, the Pearson Building itself reflects the most substantive change in foreign policy direction and diplomacy prepared by the Departmental transition team. And you gotta admit — those new metallic grey elevators in A Tower are pretty spiffy.
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Originally published in bout de papier, Vol. 11, No. 1 (1994) — Spring 1994 // Printemps 1994, pp. 39–40. Read the rest of this issue →
