bout de papier, Vol. 4, No. 3 (1986) — Fall 1986 // Automne 1986, pp. 4–5
Bruce Rankin O.C. 1921-1986
Bruce Rankin died at the end of July. Interviewed in our last issue, he was one of the greats of the Foreign Service. He served at posts in every continent, except Africa, where Canada has representation. Whether closing the post in Shanghai during the Chinese revolution or attending the opening of bridges in Venezuela, he did so with a panache and flair that made him a legendary figure in a Service full of characters. He will not be forgotten.
For Want of a Nail…
When times are tough, patience and tolerance become essential qualities. The human cost of restraint can be readily measured by the accelerated flight of those with talent for whom the public and private service will always find a place, increased disgruntlement among those who cannot or dare not leave, the forced departure of those, who while they may have served well in the past, are deemed liabilities in less benevolent times.
It is a sure bet that we have not seen the last of hiring and spending freezes, chopped programs and further rounds of ’cost-efficient’ evaluations designed to find the elusive (and often imaginary) ’fat’ in the system. The Foreign Service will have to get used to doing more with less, and accept with some serenity those things they cannot change. Management, for its part, will have to be doubly careful not to be, or be seen to be, mean-spirited or petty in its zealous pursuit of restraint. Even seemingly minor matters can corrode patience and good will between the ranks. As Ben Franklin’s old nursery rhyme pointed out, for the want of a nail, the kingdom was lost. Three recent decisions by management are deserving of reexamination.
The first has its origins in the 1969 conversion of the then Immigration officers category into the Foreign Service. At that time, provision was built in for them to receive the performance pay increase that is roughly commensurate to the incremental pay increases built into most other groups’ contracts. A similar situation prevailed when the AS group was converted into the FS group (before the wheel turned full circle and they were converted back) and, most recently, when the CO group was similarly converted into the FS category.
A couple of years ago, in recognition of the importance of development assistance to foreign policy, the PM group at CIDA was encouraged to convert to the FS group. About 80 did so, most remaining in the same jobs they held before conversion. Some months ago, a few of them realized that after their transformation, they had received no performance pay for their ’first year as foreign service officers. Thinking it an oversight, they sought redress, first privately and then by using the grievance procedure. Management has refused to consider the case, saying it took place too long ago. While technically correct — there does exist a time limit on such appeals — as readers will remember from the case of the 36 officers who had been inadvertantly denied their performance pay for their first year as FS-1s, the use of this provision is discretionary. Fairness demands a reconsideration.
The second case is more straightforward. A Public Service Staff Relations Appeal Board (PSSRB) decision confirmed that the decision as regards performance pay by the Appraisal Review Committee (ARC) must apply regardless of any change in the level of that officer. This decision effectively struck down a ’departmental’ policy, which was apparently introduced as a cost saving measure sometime before consolidation in 1983, to award newly promoted officers a 4 per cent raise as performance pay rather than that awarded to them by the ARC.
As departmental circulars remind us, performance pay is a reward for the previous year’s achievement and an incentive for the future; it has no place in the promotion exercise. Performance pay is included in the contract negotiations between PAFSO and Treasury Board; it is provided for in the collective agreement. In the past two years there have been over 100 promotions from FS-1 to FS-2. The PSSRB decision will stand as the period for appeal has lapsed, the one officer who appealed will receive the performance pay award granted him by the Appraisal Review Committee; in fairness, the same decision should apply to all the rest.
Treasury Board has decided that the Lester Pearson Building will be considered as part of the downtown core area as of November 1, 1986. The practical effect of this change means that parking will now cost $70 a month. A check with OC Transpo reveals that, for their purposes, the Pearson building remains in the hinterland and there will be no change in the off-hour service provided to riders who work in the Byzantine pyramid off Sussex Drive. One of the remaining distinctions between External Affairs and the rest of the government is the Foreign Service belief, particularly among old hands, that the working day does not begin in earnest until after 5 p.m. A practical consequence is that junior officers and secretaries have no choice but to comply. Secretaries, at least, are compensated for the inconvenience with overtime; junior officers have no such provision in their contracts.
Ottawa housing prices are second highest in the country, for those with families and modest incomes the choice is often Rockland, Kanata, Manotick or Gatineau. The car is thus essential transportation. Leaving it at home means depending on public transportation which, with transfers, will mean most will opt for coming and going at peak hours to avoid spending the best part of your day on the bus. The past parking policy quite fairly ensured that those living far away, as well as those in the pooh-bah category, got a parking spot. A fairer approach should continue to apply in assessing a fee for the spots. Why not a sliding rate, based on income? This principle already applies to housing costs abroad. Why not to parking spots at home?
Treasury Board should not fool itself. If the new policy sticks, the income gained will have to be offset against increased costs for taxis (which government guidelines permit in the off-hours and reduced productivity as the lower ranks decide the ire of the boss matters less than getting home at a reasonable hour.
Means and Ends
Hiring policies designed to create the ’appropriate’ balance or ’reflect’ the realities of the Canadian mosaic are nothing new. The goal is laudable, if sometimes difficult to achieve. There is no doubt it has produced success in giving, first francophones, later women, and now native and handicapped Canadians, a place in the public service.
The foreign service is not a leading affirmative action employer but it is probably doing its best in a difficult situation
– the realities of rotational service, for example, are not easy on single women. Until recently, recruitment took place through an examination which ensured, among other things, that candidates had a minimum knowledge of Canada; the interview process is designed to choose the best of this bunch. While the recent conversion of 180 former commercial officers was another departure from this entry procedure, it was felt that they, as experienced officers, will bring special skills to the foreign service. Slipped into this crowd at the last moment, so that management could take advantage of the conversion exercise, were a couple of brand new commerce officers chosen primarily because they will help the Department in the affirmative action numbers game. While they are undoubtedly qualified, in choosing this route to meet an admirable goal, management has resorted to a technique that is at best disingenuous and sneaky. It demeans and undermines the principle that affirmative action is intended to achieve — equality of treatment for all. It does little to in still confidence in those interested in a career service where promotion, at least in theory, is seen to depend on merit and competence.
A Foreign Service Act: A Second Call
Work on a Foreign Service Act appears to have stalled. If the authors need a bit of prodding, they need look no further than the recent report of the Special Joint Committee on Canada’s International Relations.
Committee recognized that a “highly professional” career foreign service is a “valuable national asset, strengthening Canada’s hand in its international dealings” It noted that the career has become more dangerous because of terrorism and it paid special tribute to the “burden borne by families of officials serving abroad”. Management needs a fair degree of flexibility in order to maintain its capacity to “contribute to the wise formulation and efficient execution of Canadian foreign policy”. The rules set for the domestic public service, be it recruitment or leasing space, are not always practical or possible abroad. Rather than constantly to seek exemption, a Foreign Service Act would recognize, under the law, the unique nature of the foreign service. Let’s get on with the job.
Vox Populi
This October 2, PAFSO members will choose the 15 members that make up its Executive. For the first time since collective bargaining made necessary the professional association, the election will be contested. At last count there were 21 candidates for the Board that will in the coming year be responsible, among other decisions, for the negotiation of our next collective agreement with Treasury Board.
What a breath of fresh air! In the past, the selection of PAFSO Executives has had more in common with the recruitment of crews for the British navy in the 19th century – the strong arm of the press gang coupled with the enticement of a free lunch
– than considered choice by an informed membership. An election is a good thing. It forces the cafeteria claque who carp endlessly about pay and conditions to put up or shut up. It will also give PAFSO greater legitimacy in the eyes of management, as the Executive will now truly be able to say they were elected by the membership. Look at what the candidates have to say. Your choice will go a long way to determining your next pay raise, changes to the Foreign Service Directives, whether the Foreign Service is restructured, and the benefits we enjoy at home and abroad. At a time when the Foreign Service, like the rest of government, is going through a difficult time because of retrenchment and restraint, a bit more attention to those who represent us is not a bad thing. A
View the original scanned pages →
Originally published in bout de papier, Vol. 4, No. 3 (1986) — Fall 1986 // Automne 1986, pp. 4–5. Read the rest of this issue →
