Into the New Millennium -
Canada and the Federal Public Service
Speech by
Mel Cappe
Clerk of the Privy Council and Secretary to the Cabinet
at the
Assistant Deputy Ministers' Forum
Ottawa, Ontario
October 27, 1999
Check Against Delivery
I would like to focus your attention on the policy agenda of the federal government as
we enter the new millennium, and, in that context, what this means for the Public Service
of Canada. This policy agenda really goes to the heart of the role of government. It is
also critical to the future of the public service. Our ability to make Canada a better
place by shaping and implementing public policy is the greatest attraction of our work as
public servants. And dynamic policy is essential to our goal of making the public service
an employer of choice.
In discussing the management agenda during the recent Association of Profession
Executives (APEX) conference, I said that, to become the employer of choice, we have to
focus on four themes: the quality and nature of work, our work environment, the work
processes, and leadership development. Today I would like to particularly focus on the
first theme, the quality and nature of our work, as determined by the government's policy
agenda. I will touch on the fourth theme, leadership, as well.
In looking at the development of the policy agenda, which culminated in the recent
Speech from the Throne, you will see that we now have in place the conditions and the
direction to launch a reinvigorated policy role for the federal government and a solid
basis for making the Public Service of Canada an employer of choice.
I would like to cover, first, the policy agenda to open the 21st century; second, the
implications of this agenda for both policy development and for program implementation and
service delivery; and, third, a few specific themes or approaches to carrying out
government policy through our management agenda. I'll begin by briefly sketching the
evolution of the government's agenda to date.
The Evolution of Public Policy
Three remarkable shifts in the governance of this country have better positioned Canada
for the future. They are our improved finances, a citizen-focussed agenda, and an emphasis
on greater collaboration.
Improved finances. In 1994 we faced a critical fiscal challenge, but the public
service answered that challenge with professionalism and dedication. We did this by
ensuring collaboration between the political will of the government and our own commitment
to professionalism and non-partisanship. Without our efforts, the fiscal turnaround would
not have happened. Now, thanks to the hard work and support of yourselves and all
Canadians, the government is in a budget surplus position, the debt to gross domestic
product ratio is declining steadily, interest rates are low, and the unemployment rate is
steadily coming down. It now stands at about 7.5 percent.
Internationally, Canada is showing great promise for the 21st century. The
International Monetary Fund expects that, in both 1999 and 2000, Canada will rank second
among the G-7 countries in real growth of gross domestic product, and will be ahead of
these countries in the pace of its employment growth. According to the World Economic
Forum, Canada's world-wide competitiveness ranking has increased from 16th in 1994 to
fifth in 1999. And Canadian companies increased their exports by 113 percent between 1990
and 1998.
The financial situation of governments has improved dramatically. In 1992, Canada had
the second-highest total government deficit among the G-7, the group of seven leading
industrial countries. By 1998, Canada had the second-largest surplus, after the United
States. The federal government has regained the ability to make choices in how it will
help build the future. What is equally notable is the fact that we were able to achieve
this remarkable fiscal turnaround without fundamentally jeopardizing our very attractive
way of life. According to the United Nations development index, Canada has been the
number-one country in which to live, for six years in a row.
This turnaround allows the government to move toward a public policy framework that is
more outward-looking and oriented to the future. In short, we can now make choices. The
role of government is being redefined as a result. The hard lessons of the recent past
have highlighted our fiscal and policy limitations. At the same time, these lessons have
led us to discover new ways of doing things.
This means that government can and, if it chooses, will take steps to address the
policy priorities of the next millennium, and it will do so in a more rational and
co-ordinated manner. Continued fiscal prudence will be essential. More emphasis on
priority-setting means that some good initiatives will not be implemented, and greater
co-ordination between departments means pooling policy and administrative resources. As
well, look for wider partnerships with provinces and with private, volunteer and other
organizations outside government. We will be more effective and efficient if we work with
others.
A citizen-focused agenda. Restoring the nation's finances is a major item,
probably the most important single accomplishment of national will this country has
achieved since the Second World War. But now that we have the capacity to make choices,
what will we base those choices on? The "what" of policy will be a
citizen-focused agenda. This is the second federal policy shift. It is the government's
decision to make the citizen - not the economy, not the consumer price index, not
infrastructure, but the citizen - the focus of federal public policy.
Until recently, a government's primary responsibility to its citizens has often been
taken as a given, an operating assumption that doesn't need to be explicitly articulated.
Thus, governments have built their agendas around structural issues such as tax reform,
deregulation, eliminating the deficit, or free trade. These are important and legitimate
objectives, of course, but often mistaken as an end in themselves rather than a means to
an end. The policy agenda set out by this government recognizes this distinction and, as a
consequence, is much different.
Essentially, the government has taken its core responsibilities to citizens and made
these its agenda priorities - children, youth, health, learning and innovation. This means
not only a more intense focus on the impacts of policies and program delivery at the level
of the individual, but also a shift in the time frame addressed by the policy agenda. In
essence, our policy goals now have no real finish date. They have instead become identical
to the priorities of Canadians - essentially, work and family - and they will be advanced
by long-term investment in the fundamentals rather than short-term spending on specific
initiatives. To develop and manage this agenda requires each of us to listen to citizens,
involve them in our policy development, and focus on them in our service delivery.
This policy shift has its origin in the lead-off to the 1997 Speech from the Throne.
Beginning in 1996, as we dealt with the issue of unity, it was recognized that, in order
to be a legitimate policy priority and not just a tactical concern focused on any one
province, the objective of unity had to apply to the country as a whole. Unity must
identify with and appeal to the common purpose of individual Canadians.
Focusing on the citizen allows us to tap into and promote the most rock-solid,
unifying force in this country - the common interest that all citizens have in good
health, clean and safe communities, meaningful employment and career opportunities, fair
and just laws, and the respect of others. These things are just as important to somebody
who lives in Chicoutimi, Quebec, as they are to someone who lives in Terrace, British
Columbia.
Under this framework, first elaborated in the 1997 Speech from the Throne, securing
unity becomes much more than a federal-provincial relations issue. Unity is built brick by
brick, as a result of virtually every policy and program of government. Moreover, unity is
continuously reinforced because this policy agenda has no end. We will never be able to
say "the well-being of our children - done," or "skills and knowledge
development - done," and then walk away.
Greater collaboration. The "how" of the new policy and service agenda
will be collaboration. This, the third major policy framework shift, is in large part a
result of the movement toward a citizen-based agenda for the government. This is the
reorientation of the government toward greater collaboration among federal departments,
with provincial and territorial governments, with the private and voluntary sectors, and
with other entities and organizations that have a role to play in addressing the common
issues of citizens.
When it came to intergovernmental relations in the recent past, the emphasis was on
addressing overlap and duplication: If we could just establish firm jurisdictional
borderlines, then the federal and provincial governments could just do their own things
and never have to talk to each other again. But that was based on a false conception of
watertight compartments between federal and provincial jurisdictions, a concept that is
inconsistent with modern governments dealing with modern problems and with the priorities
of modern citizens.
In adopting, for example, the policy goal of ensuring the well-being of Canadian
children, the federal government had to ask itself, "Can we do this alone?" and
the answer was "No." Can provincial governments do this alone? No. Can the
federal and provincial governments do this together? No. And that is because, if you're
dealing with the children's agenda, you have to have the volunteer sector, parents, and
the private sector on your side.
In recognizing this, the government underwent a dramatic shift in its approach to
intergovernmental relations and intensified its focus on partnerships. In 1996, we had
collaborative use of the spending power, and we worked with the provinces and territories
to create the Joint Ministerial Council for Social Policy Renewal - establishing joint
priorities for children, youth, and persons with disabilities. This ultimately led to the
joint creation of the National Child Benefit System.
The social union framework, launched in February of this year, represents the latest
and most significant manifestation thus far of this increasingly collaborative approach.
This type of co-operation is also happening elsewhere, notably at the operational level,
focussing on service delivery. For example, in June of this year, Revenue Canada began
collecting provincial sales tax at the international borders in Ontario. It is now moving
toward a similar agreement with British Columbia. And, in September, Fisheries and Oceans
Canada and the Government of Quebec signed an agreement to improve and better co-ordinate
the design and delivery of programs to people in Quebec who fish for a living.
The title of the 1999 Speech from the Throne is Building a Higher Quality of Life
for All Canadians. We do this every day through the delivery of services to Canadians
and through an active and dynamic policy agenda. The quality and nature of our work is
such that we, individually and collectively, can help Canada be a better place. This is a
huge attraction for encouraging new people to come work with us and for retaining
experienced staff who are already in a position to improve Canadians' quality of life.
The 1999 Speech from the Throne is firmly anchored in the new federal policy framework.
The work on this speech actually began at the Cabinet retreat last December and continued
at the deputies' retreat in April. At neither retreat was there any doubt about continuing
with fiscal prudence, collaboration, and the citizen-focussed agenda. As a result of
discussions, nine medium-term policy planning papers were tasked to lead deputies and
later fed into the Cabinet retreat in June, with the priorities review process in Cabinet
committee shifting and redirecting the thematic approach.
Now, we have to remember that the work of the policy research initiative was to focus
on long-term issue identification and analysis without necessarily having an early harvest
on the policy initiatives side. But the medium-term papers are to clarify our thinking for
the next transition. The medium-term policy papers that resulted from this process were on
productivity, tax reform, quality of life, diversity, skills and learning, Canada-U.S.
relations, Canada and the world, sustainable development, and national institutions. From
this process emerged the idea that every initiative or direction could fit under the broad
theme of quality of life for Canadians in their work, in their families, and in their
communities.
Over the summer, more work was undertaken by the medium-term policy groups to prepare
strategic policy advice for the Prime Minister. That advice formed the basis of the 1999
Speech from the Throne, which is essentially the manifestation of the three pillars of the
federal policy framework that were laid down over the past five years: the restoration of
fiscal stability beginning in 1994 and achieved in 1997; the shift toward a citizen-based
policy focus in the 1997 Throne Speech; and the collaborative approach to addressing
common concerns of citizens, also inspired by the 1997 Throne Speech.
The Culmination of Public Policy: The 1999 Throne Speech
The policy plan that is set out in the 1999 Speech from the Throne reflects these
core policy parameters: citizen focus, collaboration, and fiscal prudence.
Citizen focus. Let us return to the title of the 1999 Speech from the Throne. It
is Building a Higher Quality of Life for All Canadians. As the Prime Minister has
said: "Canada - the place to be in the 21st century." The Throne
Speech sets out an agenda that is squarely focussed on citizens, committing the government
to action on the following priorities: children and youth; a dynamic economy based on
investment in innovation and learning; health and quality care; the environment;
communities; Aboriginal peoples; and Canada's position in the world.
This is an exciting agenda that touches every department and agency of government. It
is important in terms of new policy initiatives and in terms of service delivery to
Canadians. It addresses real-world issues that Canadians from coast to coast can relate to
and can legitimately expect their government to act on. Moreover, our ability to deliver
on these issues will determine the success of our country in the future. As such, these
issues are meant to guide all future policy initiatives, not just those stated in the
Throne Speech. In other words, you must look beyond the specific deliverables of any new
policy or program delivery option, and you must identify how your choice will affect these
priorities for the individual citizen.
Collaboration. The commitments of the government in the 1999 Speech from the
Throne are wide-ranging and comprehensive, and obviously cannot be delivered by the
federal public service alone. As a result, the Throne Speech recognizes that new and
revitalized partnerships are critical to the government's ability to act in these areas.
It commits the government to working together with provincial and territorial governments,
voluntary and community organizations, businesses, and individual Canadians. In fact, the
word "partner" appears 19 times in the Throne Speech, showing the government's
commitment to this feature of its new policy framework.
Fiscal prudence. The Throne Speech also recognizes the difficult fiscal hurdles
that we have only recently overcome. It places great importance on prudent fiscal
management through commitments to continued reductions in the ratio of debt to gross
domestic product and a long-term plan for tax relief.
The Effect of Public Policy on the Public Service
What does the federal policy framework and the 1999 Speech from the Throne mean for the
Public Service of Canada?
The fiscal turnaround has meant that we are now in a very new position; we can make
choices about the country's future. This is a significant turning point, but one that was
achieved only after difficult choices and hard lessons. We will not go into deficit again.
We must carefully reflect on the fiscal implications of each and every policy initiative
under consideration. This means that priority-setting, both across and within departments,
will become extremely important. It also means saying no. Having priorities implies that
we will not do some worthwhile initiatives.
Perhaps the most remarkable aspect of the 1999 Speech from the Throne is the fact that
its focus on citizen priorities commits the government to an agenda that goes beyond its
current mandate. As such, this Throne Speech is a policy event, not a political event,
that lays out the core objectives of the government and Public Service of Canada for much
longer than the next two years. The citizen-based agenda means that policy initiatives and
new program delivery systems must be firmly anchored in the common concerns of Canadians
from coast to coast. This requires a long-term focus and a willingness to look beyond the
specific parameters of any one government or any department's jurisdiction to ensure that
policies and programs complement each other in improving the daily lives of citizens.
Collaboration will be critical to our success in delivering on this agenda. This means
not only federal-provincial and public-private sector partnerships, but also partnerships
across federal departments. Horizontal decision-making must become the norm, not the
exception, in federal policy development.
At the Deputy Ministers' Task Force on Horizontal Policy, deputies and assistant
deputies with 500 collective years of experience discovered the blindingly obvious: first,
that we improve outcomes by working together; and, second, that there is no substitute for
insisting that people collaborate.
The collaborative effort in developing the nine medium-term policy planning papers that
fed into the Throne Speech is a prime example of the success of this approach. It must be
continued and expanded. At the same time, the need for horizontal co-ordination means that
we must move deliberately on the government's agenda. For this reason, any measures to
implement the commitments made in the Throne Speech will still have to go through Cabinet
committees and be approved by Cabinet before being announced.
Our ability to implement the policy agenda of the government requires that we leave
behind the notion of a division between policy development, on the one hand, and
operations and service delivery, on the other. This notion never did hold water because
"policy" covers the whole of government activities. How we organize ourselves
internally, how we deal with citizens at the service delivery window, how we communicate
with each other and individual Canadians - all determine our ability to deliver on the
government's agenda and, as such, are part and parcel of the policy process.
Recognizing this requires action on two fronts. First, operations and service delivery
must incorporate the core policy themes of fiscal prudence, citizen focus, and
collaboration; these guidelines are not just for the departmental policy shops. Second,
initiatives coming from the policy shops must be informed by the real-world experience of
the field. To accomplish this, we need much more than two-way communications across
functions. We need to eliminate the notion that there are separate functions. And we need
to act to ensure that our work incorporates the totality of perspectives, priorities, and
limitations across our national and regional offices.
Public Policy and the Management Agenda
I said I'd touch on my fourth theme at the APEX conference: the management agenda's
focus on leadership. Leadership may mean collaboration, facilitation, letting others lead,
or not being present at all. We will have to be ready to accept these new roles, and be
willing to work together to achieve common policy objectives. We must also appreciate the
fact that leaders are necessary at all levels in an organization.
Developing these leaders is essential to our becoming an employer of choice.
Individuals must be given the opportunities and environment to develop their leadership
skills wherever they work, from the service windows of line departments to the offices of
the deputy head. You, as assistant deputy ministers, will be on the front line of this new
leadership style, and the focal point for action on the citizens' agenda and
collaboration.
I challenge you assistant deputy ministers to move forward today. I challenge you to
begin by putting in place an environment that eliminates the policy versus operations and
service delivery distinction. I challenge you to integrate the experiences of both
headquarters and regional offices in developing and implementing policy. I challenge
regional offices to initiate policy, and I challenge the centre to listen.
Delivering on the government's policy agenda will require a skilled and motivated
federal public service. To do this, we must become an employer of choice. Your success in
revitalizing the concept of leadership will go far in achieving this. But you must do more
than this, because becoming an employer of choice means more than just a changed work
environment. It will also mean successfully implementing the core elements of the federal
policy framework - fiscal prudence, citizen focus, collaboration. This is because becoming
an employer of choice is about changing the perceptions of current and potential
employees.
We already have in place the most important tools available to accomplish this task - a
dynamic policy framework, an exciting program and service delivery agenda, and a sound
fiscal foundation that will provide the resources and consistent, long-term focus
necessary to attract and retain talented Canadians in the service of their country.
An essential next step is to communicate this fact, and we will accomplish this
primarily through our actions. We must maintain our commitment to fiscal prudence and
sound economic management. We must be willing to collaborate with partners across the
public and private sectors in the development and delivery of public policy. And, most
importantly, we must focus and deliver on a citizens' agenda common to all Canadians, and
we must incorporate the principles of that agenda in our day-to-day dealings with the
public.
In doing this, we will be communicating to current and prospective employees that the
federal public service is a dynamic, creative and, above all, relevant place to work in
the service of one's country and fellow citizens.
Conclusion
As you heard in the Speech from the Throne, the government will support us in
implementing its policy agenda by focussing on the recruitment, retention and continuous
learning of a skilled federal workforce. As an essential component of our ability to
deliver on that agenda, I have made these people issues a priority, as the deputies here
this morning know very well. They are already working it into their roles as champions and
through the work of the Committee of Senior Officials (COSO) and three newly created COSO
sub-committees: Recruitment, Learning, and Workplace Issues.
This will enhance the impact of the important steps already taken with initiatives
under La Relève and The Leadership Network. In fact, today The Leadership Network is
releasing the second in the series, A Day in the Life of the Public Service. I urge
you to read it carefully and make sure it gets distributed in your organizations. In this
document, public servants talk about how important their work is, how much satisfaction
they get from it, and what an interesting place this is to work in. As well, I've written
an article on public service values and how to make the Public Service of Canada a true
employer of choice.
These are things that I can do and that the centre, in general, can do. But, as
assistant deputy ministers, you play a critical role. By encouraging people to join us and
stay with us and grow with us, you ultimately establish much of the climate that will
determine our success in meeting the government's policy commitments. You, as good
leaders, will help develop the leaders in your groups.
I want to challenge each of you to return to your own workplace and take the steps that
will make it possible for you to show how you are recruiting good people, retaining them,
and directing their energies into making the federal policy framework a reality. In doing
so, I want you to remain aware that what we do in policy, operations and service delivery
has to fit together. We cannot afford to "ride madly off in all directions."
That message comes through clearly in the government's policy agenda and the Speech from
the Throne, and it is the expectation of our ministers.
To get that kind of collaboration right means action by leaders who work with others to
develop a vision for change - action by leaders who follow through on that vision to get
results that matter to Canadians and, by so doing, make us an employer of choice.
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