Public Service in the Digital Age

www.policymagazine.ca July – August 2015

Canadian Politics and Public Policy

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Canadian Politics and In This Issue Public Policy

EDITOR From the Editor: L. Ian MacDonald 3 Public Service in the Digital Age [email protected] Kevin Lynch ASSOCIATE EDITOR Canada’s Public Service and the New Lisa Van Dusen [email protected] 4 Global Normal of Change

CONTRIBUTING WRITERS Don Lenihan Thomas S. Axworthy 11 Raising the Bar on Public Engagement Andrew Balfour Yaroslav Baran David Mitchell Brian Bohunicky 14 Rebranding the Public Service Derek H. Burney Catherine Cano Sara Caverley Margaret Clarke A Top 10 List for Public Service Leadership Celine Cooper 16 Fen Osler Hampson Daniel Gagnier Sandra Pupatello Martin Goldfarb 18 Stretch Goals: A Case for Government Agility Patrick Gossage Brad Lavigne Terry Stuart Kevin Lynch 20 The Age of Disruptive Innovation Jeremy Kinsman Andrew MacDougall Mel Cappe Velma McColl Supply and Demand for Ideas and Evidence David McLaughlin Geoff Norquay 22 in Public Policy Robin V. Sears Gil Troy Madelaine Drohan Anthony Wilson-Smith Reports of the Death of Journalism Have Been Greatly Exaggerated WEB DESIGN 25 Nicolas Landry Dale Eisler [email protected] First Nations and Public Policy: SOCIAL MEDIA EDITOR 28 A Legacy of Failure with Blame All Around Grace MacDonald [email protected] Guest Column/Ed Clark GRAPHIC DESIGN & PRODUCTION 31 Making Government Work Monica Thomas [email protected] Verbatim/Michael Sabia 32 Thinking Differently Policy Policy is published six times annually by LPAC Ltd. The contents are CANADA AND THE WORLD copyrighted, but may be reproduced with permission and attribution in Robin V. Sears print, and viewed free of charge at 33 Alberta After the Political Earthquake the Policy home page at www.policymagazine.ca. Andrew MacDougall Printed and distributed by St. Joseph To Succeed in His Second Term, Cameron Must Solve Communications, 1165 Kenaston 37 Two Big Problems: Europe and Scotland Street, Ottawa, Ontario, K1A 1A4 Special thanks to our sponsors Michael Bourque and advertisers. In Camera: Why Locomotive Cabs Need 40 Video and Voice Recorders

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From the Editor / L. Ian MacDonald Public Service in the Digital Age

elcome to our special issue tario “the most open and transparent has failed not only First Nations and on the public service in government in the country.” Leni- aboriginal people, but by extension W the Digital Age, which we han writes that “citizens and stake- Canadian society at large.” are publishing in partnership with holders can bring all kinds of knowl- In a Guest Column, former TD Bank the Public Policy Forum, one of edge and experience to the table that Group CEO Ed Clark, recently chair Canada’s leading independent think- can greatly enhance a government’s of an Ontario task force on crown cor- tanks. Several of the articles in the ability to make decisions.” porations, writes that governments cover package are drawn or adapted Sandra Pupatello, now a senior ex- “face harder choices in this age of aus- from papers or presentations for the ecutive at PwC in Toronto, sat at the terity.” And in a Verbatim, Caisse de PPF’s work on the public service in Ontario cabinet table for 10 years, Dépot CEO Michael Sabia asks, “what Canada, at both the federal and pro- including as industry and trade min- sets people apart as leaders, in govern- vincial levels of government. ister, which gave her a window on ment and in the private sector?” global markets. Pupatello references Contributing Writer Kevin Lynch, a In our Canada and the World section, former Clerk of the Privy Council, sets a PwC-PPF report Agile government: our lead political writer, Robin Sears, out the daunting challenges facing Responding to citizens changing needs. looks at Alberta after the political the public service in the “new global An overwhelming majority of public earthquake. Alberta voters returned normal” of change. He enumerates servants participating in the survey a stunning NDP majority govern- five global trends that are re-shaping thought government could be more ment led by Rachel Notley, whose our world: Globalization, technology, agile and less risk-averse. optimism and common sense won energy, demographics and governing/ Terry Stuart, head of innovation at voters over, and whose debate perfor- governance. “The bottom line,” he Deloitte Canada, considers the chal- mance proved to be a big moment. writes, “is that change is the new con- lenges of disruptive innovation. As he While she had a lot of help from stant, adaptation the new necessity, writes: “The development and appli- Conservative stumbles, Notley won and short-termism the new risk.” cation of advanced technology is ac- the election on her own. “Notley has University of Toronto’s Mel Cappe, celerating at such an exponential rate another asset that is almost unheard also a former Clerk of the Privy Coun- that people have difficulty coming to of in Canadian politics,” Sears writes. cil, writes of supply and demand for grips with the sheer pace of change.” “She owes no one anything. This is ideas and evidence in public policy. her victory; not the party’s.” Now for Madelaine Drohan, Canada cor- “Quality public policy,” he con- the hard part—governing. respondent for The Economist and cludes, “requires a fine understand- Prime Ministers of Canada Fellow at From London, Contributing Writer ing of the nature of the problems that the PPF, writes of the explosion of Andrew MacDougall considers an- afflict us, of the impacts of alternative social media and Internet platforms other stunning political outcome— policies and analytic basis for inform- in the news media. The 24/7 news the majority victory of David Cam- ing public policy.” eron’s Conservative government. But beast has revolutionized the media now, he writes, Cameron faces two PPF President and CEO David Mitch- business, particularly with regard to big issues—Scotland and devolution ell looks at re-branding the public public policy. But the problem, she as well as Europe and whether the UK service and asks how it can become writes, “is not too little journalistic should remain in the EU. an employer of choice for a new gen- output but too much, and the seem- eration of Canadians. The PPF’s Sara ing impossibility of being able to sort Finally, on the important issue of rail Caverley gives us a Top 10 List for through it all.” safety, Railway Association of Canada leadership in the public service. President Michael Bourque recom- Dale Eisler, senior fellow at University mends that rail safety oversight leg- Don Lenihan of Canada 2020 has of Regina’s Johnson Shoyama School islation be amended so that railways spent the better part of his career of Public Policy, offers a case study of can install video and voice systems in working on public engagement in First Nations and public policy, citing locomotive cabins to improve safety. the public policy process. He was ap- a legacy of failure with blame shared pointed by Ontario Premier Kathleen all around. “It is abundantly obvi- Enjoy your summer reading on the Wynne to chair a panel to make On- ous,” Eisler writes, “that public policy dock. See you in September.

July/August 2015 4 Canada’s Public Service and the New Global Normal of Change Kevin Lynch

In a world in which constant ne key factor shaping policy services, is immune to its impact. making in the 21st centu- change is the new normal, ry is the reality that change Global trends (Chart 1) are literally O reshaping our world, creating a new Canada must decide wheth- is now an unrelenting constant. Con- sider Tom Goodwin’s prescient ob- global normal, and rendering status er to be an early adapter servation (Techcrunch.com, March quo planning a questionable long- and disruptive innovator or 2015): “Uber, the world’s largest taxi term strategy for all ﬁrms, in all sec- be left behind. Among the company, owns no vehicles. Face- tors. But, they are also challenging book, the world most popular media the status quo in governance, in edu- trends reshaping our world, owner, creates no content. Alibaba, cation, and in public services. Con- we need to manage global- the most valuable retailer, has no sider these systemic trends: inventory. And Airbnb, the world’s ization, technology, energy, largest accommodation provider, 1 Globalization 3.0 A hyper-con- demographics and govern- owns no real estate. Something in- nected, two-speed world—with ing, all of which demand teresting is happening.” Indeed it is. slower growth in developed econ- Disruptive innovations and global- omies and rapid growth in devel- ingenious policymaking. ization are at its core and no sector, oping countries—but with rising including government and public nationalism and parochialism.

CHART 1: Global trends are fundamentally reshaping our world, including governance and public services. Change is the new constant, adaptation is the new necessity, short-termism is the new risk.

GLOBAL GLOBAL DEMOGRAPHICS ENERGY 2.0: DISRUPTIVE GLOBALIZATION ECONOMY GOVERNANCE 1.5: Aging affecting A revolution in TECHNOLOGY 3.0: The hyper- 2015: Uneven, 1.0: Growing simply everything demand, supply + 2.5: Changing connected world volatile and “governance geopolitics everything beset with risks gaps”

Policy 5 Global governance gaps are grow- advantage and geopolitics. How ent, culture, communications and ing, not diminishing, in our G20 do we establish the social licence ideas, which know no borders, and world. As a mid-sized, very open to increase our energy security of today’s sovereignty, which begins economy, our self-interest should demand through diversification and ends with national borders. In be more engaged in strengthening to Asia and beyond? Where does attempting to govern past the bor- global rules-of-the-game. Equally, the environmentThe Internet offit things in the energy der to establish and enforce global Canada’s need for trade diversifi- revolution, and where is Canada’s ‘rules-of-the-game,’ are the inter- cation is self-evident but effective national strategy for both energy Advanced oil and gas national institutions established government and business action and theexploration environment? and recovery after the Second World War, from to that end is not. 4 Demographics 1.5 An aging pop- the UN to the World Bank, up to Energy storage the task? How have these forces 2 Technology 2.5 A knowledge in- ulation in the West, and now Chi- tensive world appears headed for a na, is Autonomousreducing long-term and near- potential of change affected how we gov- new technology inflection point, growthautonomous and putting vehicles a premium on ern within our borders? How well with “disruptive innovations” to talent. But it is also, somewhat par- are our institutions of governance follow in many sectors. Early and adoxically,Mobile shifting Internet political priori- adapting? effective adapters will be dispro- ties to health and other age-related portionate winners. But does Can- spendingCloud at technology the expense of educa- he bottom line of the “new

ada have the technology capacity, tion. The only “growth antidotes” global normal” is that change management skills and entrepre- to aging3D printingare immigration, educa- T is the new constant, adapta-

neurship culture to be a disruptor tion and labour force ﬂexibility, tion the new necessity, and short- Advanced Robotics and early adapter, or simply be and yet what are we doing to miti- termism the new risk. Let’s examine these trends and their implications among the disrupted and a late fol- gate theAutomation pervasive of economic (and for governance further. lower? And, who is worrying about societal)knowledge impacts work of aging?

which outcome it will be? 5 GoverningNext-generation 1.0 The process of gov- First, a globalization reality check for 3 Energy 2.0 A revolution in en- erninggenomics and governance in the new Canada. Despite our national myths,

ergy supply (technology) and en- global normal faces the contradic- Canada is neither a trading nation ergy demand (2-speed world) is tion of hyper-connected world nor a nation of traders. The reality reshaping economies, comparative markets for goods, capital, tal- in a two-speed world is that 90 per

CHART 2: Technology is at an inﬂexion point, again, and disruptive innovations will result—early adapters will reap disproportionate gains.

THE PACE OF DISRUPTION THE “BIG THE “DISRUPTORS” (time to reach 50 million users) QUESTION”

Do we have the The Internet of things technology skills, Phone 75 Years management Advanced oil and gas capacity and exploration and recovery entrepreneurial Radio 38 Years Energy storage culture to be disruptors and early Autonomous and near- adapters, or simply autonomous vehicles TV 13 Years be the disrupted,

and late followers? Mobile Internet Internet 4 Years Cloud technology

3D printing Facebook 3.5 Years

Advanced Robotics Angry Automation of Birds 35 Days knowledge work

Next-generation genomics 0 50 100

Source: McKinsey Source: Citi GPS: Global Perspectives & Solutions ?

July/August 2015

Phone 75 Years

Radio 38 Years

TV 13 Years

Internet 4 Years

Facebook 3.5 Years

Angry Birds 35 Days

0 50 100 6 cent of our trade is still with the slow porting in our SMEs, which limits energy generation, this “second ma- growth (OECD) economies, the high- their (and Canada’s) growth poten- chine age” will transform the nature est share by far in the G7; nearly 50 tial. We lack a productivity and inno- of work, alter who does the work and per cent of our Canada-US trade is vation culture in our private sector, accelerate the pace of everything we intra-firm not through markets; only which limits our competitiveness as a do (to reach 50 million users, TV took 10 per cent of our SMEs trade glob- country, and we have created uncer- 13 years, the Internet trimmed it to ally; and, excluding energy, our share tainty about our foreign investment four years, Facebook was just over of US imports has declined substan- rules at a time when we need foreign three years, and Angry Birds took tially since 2000 (from 18.5 per cent capital and the expertise, networks only 35 days). But Canada today lacks in 2000 to 12.5 per cent in 2012). We and access it brings. Not exactly a the focus on break-through research, need to remember that China, even strategy geared for trade and invest- entrepreneurial culture and constant growing at 6.5 per cent, now adds ment success. more to global demand than the innovation that attracts talent and United States expanding at three per On the technology front, the pace capital and networks. cent, and yet China accounts for less and scale of change is picking up, not than 5 per cent of our exports. All in slowing down, and we ignore at our espite government rhetoric all, not a pretty picture of a medium- peril the old adage that objects in the characterizing Canada as an rear view mirror are closer than they sized, open economy that relies on “energy superpower,” the re- appear (Chart 2). In The Second Ma- D global trade and investment to grow ality is an energy rich country with chine Age, authors Erik Brynjolfsson and prosper. a growing energy security problem. and Andrew McAfee argue that tech- But what are we doing to correct this? nology is at another inflection point, Our energy insecurity (Chart 3) is de- We lack a free trade agreement with driven by big data, big computing mand—not supply—generated. We China (unlike Australia and New power, big analytics and adaptive ma- have a single market for our oil and Zealand). We lack access for our oil chine learning. Whether it is the Inter- gas exports—the United States—and and gas exports to any market other net of things, autonomous vehicles, it is becoming our competitor rath- than the US, which is becoming net mobile Internet, cloud technology, er than an unlimited buyer of our energy self-sufficient and our energy advanced robotics, 3D printing, next growing energy capacity as we have competitor. We lack a culture of ex- generation genomics or advanced long assumed.

CHART 3: The Canadian “energy security conundrum”—our biggest (and only) energy market becomes our newest competitor while all energy demand growth is in markets we do not serve. The result: growing Canadian insecurity of energy.

CANADIAN ENERGY EXPORTS CANADA’S ENERGY SECURITY (2010): SINGLE BUYER FOR OIL, GAS, CONUNDRUM ELECTRICITY

100% reliance on US market for gas, oil % OF TOTAL and electricity exports, with EXPORTS TO US COMMODITY BY VALUE US Hydrocarbon Supply Natural Gas 100.0% US Hydrocarbon Demand Electricity 100.0% + Petroleum* 98.1% Canadian unconventional supply capacity: (oil sands + shale gas) rising Uranium 25.5% + Coal 5.2% Geopolitical energy risks rising and energy price volatility increasing Source: Stats Canada, Natural Resources Canada = *Trade data include crude oil, reﬁned petroleum products and liqueﬁed Canadian security of petroleum gases (LPGs). energy demand falling

Policy 7 The solution is pretty straightfor- • Labour policies will confront too with these issues. And yet, while the ward—diversification to the rapidly few people for new types of jobs, challenge is clear, the strategic plan- growing energy consumers in Asia, rather than not enough jobs for ning by governments is less than evi- particularly China, is key. But we available workers dent. This is surprising, as it is one lack the national energy strategy, thing to be caught unawares by un- • Demand for education seats will broad-based leadership and social li- expected events and quite another decline, demand for hospital beds cence to achieve this and turn Can- to miss clear trends. will increase, and demand for ada’s enviable energy potential into housing will shift Governing, governance and public a reality. We need to shift from pa- services are being impacted by these rochial debates on “projects and pri- • Policy priorities may differ global trends, just like other sectors. vate interest” to a national dialogue A key question for all of us should on “the public interest” in our en- Aging demographics be: how well are governance and ergy future, and what it will take to public service in Canada adapting to achieve this. Leadership is essential affects everything. these global forces of change? in managing change on this scale as By 2030, there will be no net the free trade debateConsumer nearly 30 years 66% Consumer A reasonable starting66% point in at- population66% growth from 63% ago so clearlyPackaged demonstrated. Goods Packaged Goods tempting to answer the adaptation Canadian65% residents, only by 65% Food & Beverage 67% Food & Beverage question is to look at67% global gov- Aging demographics affects every- net immigration.65% By 2020, ernance and our role65% in it. Why? thing. By 2030,Entertainment there will be no net Entertainment people old67% enough to leave Because Canada, as 63%a middle-sized population growth from Canadian 54% 54% Telecommunications the labour63% marketTelecommunications will economy, is heavily61% dependent on residents, only by net immigration. By trade and investment for growth and Banks outnumber56% those old Banks 56% 2020, people old enough to leave the 53% prosperity, and we need59% the certain- labour market will outnumber those enough50% to join it. 50% Automotive 71% Automotive ty of clear and enforceable69% interna- old enough to join it. And the impacts tional rules for Canadian businesses Energy 49% Energy 49% of aging are pervasive and profound: 60% and capital to “go57% global.” And we • Canada’s long-term GDP growth 48% need the leadership48% to address a Pharmaceuticals 61% Pharmaceuticals 63% Canada is not unique among West- rate will shrink, and its public 37% global recovery37% that remains, accord- finances willChemicals be strained by this ern countries57% in confrontingChemicals an ag - ing to the IMF, “uneven,48% volatile and slower growth and age-relatedCanada Globaling population. What we should be 2015beset by2013 risks” some six years after expenditures is 50%uniquely skilful in how we deal the global financial50% crisis (Chart 4).

CHART 4: The “new global normal” is a hyper-connected and two-speed world—with a weak and uneven global recovery, rising geopolitical risks and increasing volatility.

UPDATED IMF ECONOMIC OUTLOOK GLOBAL GROWTH UPDATED ECONOMIC – WEAKER AND WEAKER 2015 MOOD – GLOOMY

5 Global 3.5 Weak economies: Eurozone; Brazil; US <3.0 Russia; South Africa; April 2011 Japan 4.5 Euro area 1.5 Less strongly Japan 1.0 growing economies: April 2012 April 2013 China; Mexico; MENA; Canada 4 UK 2.7 Canada <2.0 Somewhat-more strongly growing China 6.8 economies: 3.5 US; UK; India April 2015 India 7.5 Risks rising: April 2014 Brazil -1.0 Russia-Ukraine; Global GDP Growth Outlooks (percent) 3 security; cyber; Mexico 3.0 pandemics

Russia -3.8 Volatility increasing: 2.5 Oil; commodity prices; 2011 2012 2013 2014 2015 2016 MENA 2.7 exchange rates

July/August 2015 8 As we approach globalization 3.0—a parliamentary committees are dys- where only 31 per cent of Canadians hyper-connected world—we are still functional. Based on their interviews believe politics affects them every operating with global governance with over 50 former MPs of all par- day, with low citizen engagement in 1.0—institutions created in the 1940s ties, McMillan and Loat observed: “At the political process, and where trust and 1950s for a very different world. a time when Canada is facing serious levels in politicians and political par- Are they still “fit for purpose” in the public challenges, we need elected ties are hovering around 40 per cent. new global reality? That is a bit like officials who are willing to embrace trying to compare a 1960s Ford with a their jobs, and describe why politics 2015 BMW, they both drive but there matters. Until we do, we should not As we approach the similarities end. However, when be surprised that so few young people globalization 3.0— the issue turns to Canada’s role in the consider the political arena a worth- a hyper-connected world— renewal of global governance, the in- while place to invest time or an effec- we are still operating with ternational consensus is that Canada tive way to make a difference”. today plays less of a leadership role global governance 1.0— on global issues than in the past. A Canadian perspective on how institutions created in the well our Westminster institutions The recent Samara book by Michael are working comes from the Samara 1940s and 1950s for a very McMillan and Alison Loat, Tragedy Foundation, and it is not a positive different world. Are they still in the Commons, paints a picture of one. Their new “Democracy 360” Re- “fit for purpose” in the new unhappy MPs across all political par- port card accords Canada a less-than- global reality? ties who feel that Parliament is not stellar grade of “C”, with a federal working as it can and should, and voter turnout of only 61 per cent,

CHART 5: Public trust matters for managing substantive change and maintaining social license, and Canadian trust levels (business, government, energy sector) have declined recently.

TRUST IN SECTORS: SHIFT IN TRUST: 2015 CANADA VERSUS GLOBAL CANADA RESULTS 2015 VERSUS 2013

49% Government (Sector) 49% Government (Sector) 48% 58% 47% Business (Sector) 47% Business (Sector) 57% 58% 47% 47% Media (Sector) 51% Media (Sector) 61% 67% 67% NGO (Sector) 63% NGO (Sector) 73%

74% 74% Technology 78% Technology 75% Consumer 66% Consumer 66% Packaged Goods 66% Packaged Goods 63% 65% 65% Food & Beverage 67% Food & Beverage 67% 65% 65% Entertainment 67% Entertainment 63% 54% 54% Telecommunications 63% Telecommunications 61% 56% 56% Banks 53% Banks 59% 50% 50% Automotive 71% Automotive 69% 49% 49% Energy 60% Energy 57% 48% 48% Pharmaceuticals 61% Pharmaceuticals 63% 37% 37% Chemicals 57% Chemicals 48% Canada Global 2015 2013 50% 50%

Source: Edleman Trust Barometer 2015

Policy 9 This issue of public trust is an under- appreciated element of the “soft-infra- The public service plays a core role in our structure” of governing. Public trust in Westminster system of government. It is Canada, as measured by the Edelman nonpartisan, it is permanent, serving governments past, cross-country public trust barometer present and future, of any political party, with equal loyalty (Chart 5), had been well above the US and other Western countries until and effectiveness, and its appointments are merit-based. recently when it fell sharply, led by a decline in trust in government and business which both now have trust levels below 50 per cent. it be confused with an American civil greater centralization and risk aver- service, which is institutionally de- sion. At a time when attracting and What about technology and govern- signed to be partisan and non-perma- retaining superb talent to the federal ing? What has been “disruptive” to nent at all senior levels. public service is facing stiff competi- governing is the combination of ad- tion from the private sector here and vanced communications technolo- These same global trends are impact- abroad, there is ambiguity from the gies such as social media with “big ing Canadian public services, both data” and data analytics. Political federally and provincially. Demo- government itself about the impor- parties have been at the forefront of graphics—our public services are ag- tance of government and governance employing both, particularly in the ing, and recruiting, training and re- to the economy and society in these US, but also in Canada and the UK. taining the next generation of public transforming global times—hardly Such technologies allow political par- servants, and developing its leaders motivating to prospective public ties and governments to identify and are a key challenge. The competition servants. As leading experts on the target segments of voters on micro for exceptional talent is intensifying, public service such as Donald Savoie issues rather than engage the entire and the public service will be able to have stressed, the apparent antipathy body politic on common macro is- attract such talent only if the work en- of the government today toward the sues. The channels afforded by these vironment within government offers public service may have deleterious new technologies also allow huge the ability to make a difference, help long term impacts on the public ser- degrees of voter segmentation, often shape policy options and choices, be vice as an institution. leading to short term “issues manage- innovative in service delivery, and do There is absolutely no reason that ment” dominating longer term pub- great science. Globalization—a public lic policy analysis and management, servant today needs a worldview not Canada cannot compete and prosper and entrenching short-termism and a parochial one, an understanding in this new global normal, provided centralization in the political cycle. that something happening anywhere we adapt. Leadership guru Warren These same technologies offer enor- in the world can have impacts here Bennis once observed that the differ- mous potential to innovate how gov- in Canada. And technology—inno- ence between leaders and managers ernments and their public services vations in ICT, social media, cloud comes down to “those who master deliver services in more interactive, computing, data analytics and adap- the context and those who surren- proactive and personalized modes. tive learning have enormous poten- der to it.” Government—whether tial to reshape both the “back ofﬁce” the prime minister, cabinet, Parlia- he public service plays a of government operations and the ment or the public service—has a core role in our Westminster “citizen-facing” service delivery and key role in helping Canadians mas- T system of government. It is interaction functions. ter today’s context. nonpartisan, it is permanent, serving governments past, present and The public service is under stress, Contributing Writer Kevin Lynch, future, of any political party, with both responding to these demo- Vice-Chair of BMO Financial Group, equal loyalty and effectiveness, and graphic, globalization and technolo- is a former clerk of the Privy Council. its appointments are merit-based. It gy pressures and dealing with a chal- He is also Past Chair of the Board offers evidence-based policy advice to lenging governance environment. of Governors of the University of the government of the day, it admin- At a time when Canada faces many Waterloo, and Chancellor of University isters the policies, programs and reg- longer-term policy issues, there seems of King’s College in Halifax. ulations approved by Parliament on to be little demand for public service a nonpartisan basis, and it provides policy advice. At a time when the the essential services of government. private sector is shifting to distrib- Given its roles, responsibilities, and uted leadership and entrepreneur- accountabilities, a Westminster pub- ship models and risk management, lic service should not be mistaken for the governance model of the federal an administrative service, nor should government is moving towards ever

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Ontario Premier Kathleen Wynne, speaking to Canada 2020 in Ottawa, is committed to an Open Dialogue on public engagement. Canada 2020 photo, Mathew Usherwood Raising the Bar on Public Engagement Don Lenihan

With the advent of social media and the perpetual en- ntario could be on the verge gagement, instant response and agenda-shifting role it of changing Canadian poli- O tics. Premier Kathleen Wynne plays in the public discourse, expectations for public wants to ﬁnd a principled way to give engagement in policy-making are arguably higher than citizens and stakeholders a more mean- they’ve ever been. Don Lenihan, chair of the Ontario ingful voice in the policy process. To see how and why, let’s start with two government’s Open Government panel, describes how examples where conventional policy- government can manage greater public engagement in making has failed. an age when transparency and dialogue are fast be- In the run-up to the Alberta election, coming best practices. Premier Jim Prentice promised to make some tough budget decisions to help the province deal with plummeting oil prices. Albertans were told to brace for the worst.

Prentice then delivered a budget with only modest program cuts, no sales tax, higher personal taxes, and no increases

July/August 2015 12 to business taxes. Reactions ranged from confused to incredulous. Many There are just too many factors at play, too many concluded that Prentice talked a trade-offs that must be made, too many ways that good game, but lacked the instincts things could have been done differently. In the end, citizens of a real leader. And the rest, as they who disagree with the government’s approach are often left say, is history. feeling that the decision was arbitrary or worse, that the In 2010, New Brunswick Premier government had its mind made up from the start. Shawn Graham announced that his government would sell New Bruns- wick Power to Hydro-Québec. The sale would have allowed him to pay ers eventually have to explain their trade-offs and setting priorities in- off the utility’s debt, while freezing choices to citizens, stakeholders and vests them with a sense of ownership energy prices for homes and busi- journalists. Trying to walk them of the decisions, which, in turn, en- nesses for five years. through the rationale behind, say, a sures transparency and legitimacy. decision to build a pipeline through Graham thought it was a slam-dunk, If governments have been slow to an environmentally sensitive area but when he told New Brunswick- embrace this change, it is because can be a communications nightmare. ers, they felt otherwise. Support for of a misplaced fear that public en- There are just too many factors at the premier and his government col- gagement could turn control of their play, too many trade-offs that must lapsed, making Graham the first one- agenda over to interest groups; or be made, too many ways that things term premier in the province’s history. that the “dialogue” will quickly de- could have been done differently. In generate into a free-for-all that para- Prentice and Graham are not the the end, citizens who disagree with only premiers to make disastrous lyzes decision-making or saddles the the government’s approach are often government with bad policies. choices, but I think there is a special left feeling that the decision was arbi- lesson here. If they badly misread the trary or worse, that the government In fact, a growing body of work shows public, it was not just on policy, but had its mind made up from the start. that when such processes are prop- also on process. erly designed and executed, far from Despite all the talk about tough Policymaking in the undermining good governance, they choices, Prentice saw no reason to future will require can make a major contribution to it. Citizens and stakeholders bring all ask Albertans what kind of balance more public involvement. they thought was needed or fair— kinds of knowledge and experience whether, for example, businesses Giving citizens and to the table that can greatly enhance really should get a free ride or if it stakeholders some a government’s ability to make deci- was finally time for an Alberta sales responsibility for making sions. This also ensures transparency. tax. As for Graham, he declared out trade-offs and setting Governments that resist this trend of the blue that he was going to sell priorities invests them with and insist on doing things the old the province’s crown jewel, without way risk provoking mistrust, resent- giving the public so much as a hint a sense of ownership of the ment and conflict—and turning the of his intentions. What made these decisions, which, in turn, next election into a referendum on leaders think the public would sim- ensures transparency and the leader’s governance style. Ask ply go along with their plans? legitimacy. Prentice or Graham. Had they taken the right steps to engage the pub- n the traditional view, premiers lic beforehand, things might have and prime ministers are elected turned out very differently. to make such decisions, and they I As a result, public tolerance for top- usually do so behind closed doors. But once a leader decides to engage down, backroom decision-making That’s what Prentice and Graham people this way, how much of a say has plunged and is being replaced did. Over the last couple of decades, should they get? There is no single an- by a growing appetite for openness, however, public expectations have swer to this question, no one-size-fits- transparency and participation. been changing. As the world has all approach to public engagement. Whether it is Parliament’s secretive shrunk and the pace of change has There is a range of possibilities here, Board of Internal Economy or a pro- accelerated, issues have become en- which goes from a simple opportunity posed pipeline across the interior of tangled, messy and diffuse. The im- to express a view to having the author- British Columbia, the writing is on pact on traditional governance has ity to veto or make important choices, the wall. Policymaking in the future been profound. and various options in between. will require more public involve- In particular, backroom decision- ment. Giving citizens and stakehold- If the choice between these options making has become very risky. Lead- ers some responsibility for making is not to be arbitrary or capricious,

Policy 13 there must be an authoritative and Figure 1: Three streams to Open Government principled way of matching the right process with the task, which brings us to Ontario. Access to Information In October 2013, Premier Wynne announced a nine-person Open Gov- Making Data Dialogue and ernment panel to develop recom- Available Collaboration mendations to make Ontario “the most open and transparent government in the country” (full disclo- sure: I chaired this group). Open “Open Government” is an interna- Government tional movement dedicated to using new digital tools to strengthen government transparency and account- ability, foster evidence-based policy, • Open Data attracts individuals and framework that could guide future de- and engage citizens and civil society organizations with expertise in velopment of Open Dialogue process- organizations in the decision-mak- digital technology and its capacity es across the whole government. ing process. to collect, share and integrate huge Deb Matthews, Deputy Premier and amounts of data In Canada, Open Government is de- Minister for Open Government, re- fined through three separate streams • Open Information is the corner- cently confirmed the Ontario govern- of activity: Open Data, Open Informa- stone of transparent and account- ment’s intention to act on this recom- tion, and Open Dialogue. Open Data able government, from freedom mendation. According to Matthews, calls on governments to make their of the press to FOI legislation, and the Wynne government is preparing data holdings available to the pub- is especially important to journal- to take “an important step toward lic to support transparency and evi- ists, political activists and policy Open Dialogue with the development dence-based decision-making. Open advocates of a public engagement framework… Information calls on governments • Open Dialogue is part of a long tra- We will also launch a series of dem- to advance freedom of information. dition of citizen and community onstration projects…to engage Ontar- Open Dialogue recognizes the need engagement and calls for greater ians in how to move forward on some to engage the public more directly in public involvement in policymak- of our core priorities.” (See “Canada the policy process, especially through ing, especially through digital tools 2020 Open Government Forward,” the use of digital tools. In this view, by Deb Matthews, in Setting the New Open Government results from the The emerging lesson from these dis- Progressive Agenda, at Canada2020.ca). convergence of these three streams. cussions is that, if Open Government Matthews’ project is set to be launched (see Figure 1) is to succeed, it requires a pooling by the end of 2015. of knowledge and skills from these Now, Open Information has a long This appears to be the first time a ma- three communities. The movement history in Canada and abroad, espe- jor government anywhere has com- needs technology people, data ana- cially through Freedom of Informa- mitted to such an Open Dialogue lysts, journalists, political strategists, tion legislation. And over the last project. The Wynne government thus facilitators and community activists. five years, the Open Government looks poised to raise the bar on Open Getting these different communi- movement has made much progress Government for the movement as a on Open Data. Rather than re-invent ties aligned and working together to whole. A lot of people will be watch- these wheels, the Wynne government advance the goals of Open Govern- ing with interest. asked the Ontario panel to spend most ment is a huge task. If real progress Don Lenihan is Senior Associate, Policy of its time thinking through the issues has been made on Open Data, the and Engagement, at Canada 2020, around the third stream, Open Dia- priority now is to advance Open Dia- a leading, independent progressive logue. As the discussion progressed, logue through innovative forms of think-tank. An internationally its critical role in Open Government public engagement. recognized expert on democracy and became increasingly clear. In its final report, Open by Default, the Open Government, his recent projects The three streams are not just dif- panel addressed this need by calling include chairing an expert group on ferent aspects of Open Government. on the Ontario government to launch citizen engagement for the UN and the They are also identified with rela- a series of demonstration projects OECD; and chairing the Ontario Open tively distinct communities of prac- to test and explore different forms Government Engagement Team. titioners, each with its own history, of dialogue and engagement; and to [email protected]. interests and skills: systematize the learning into a policy Twitter: @DonLenihan

July/August 2015 14 Rebranding the Public Service David Mitchell

The public service has a reputation problem. While Of course, the role of government has grown increasingly complex. Global- many of those negatives are both outdated and exagger- ization, new technologies and huge ated, the conventions that once deﬁned the role of public demographic changes are leading to a servants have been over-written by the realities of per- re-evaluation of what citizens expect from the state. And while more au- petual election campaigns, the 24-hour news cycle and thentic forms of public engagement realignments in the responsibilities of political vs. bu- are necessary, governments seem re- luctant to experiment and are averse reaucratic staff. As Public Policy Forum President David to taking risks. The private sector, Mitchell argues, today’s public services offer a compel- not-for-proﬁt organizations and in- ling challenge for the innovators of tomorrow. stitutions of higher learning are more inclined to innovate, especially with the use of new technologies.

overnments don’t make it magine you’re a senior public ser- easy on themselves. As a result vant, currently approaching the G of numerous accountabil- conclusion of your career. A ity measures implemented in recent I years, including the Values and Eth- bright young person whom you truly care about—a family member, ics Code for the Public Sector, the Policy on Conflict of Interest and Post a recent university or college gradu- Employment, the Public Servants Dis- ate—asks for your advice. “I’m think- closure Protection Act, bureaucrats ing of applying for a government job are spending much of their valuable and pursuing a public service career time on process. And while this has and I’d very much value your honest led to smarter management, it raises opinion.” What would you say? questions about why we need a per- Not sure? Try the question on a bu- manent, professional, non-partisan reaucrat you know. I’ve actually done public service. this many times over the past year in different parts of Canada. And the Let’s face it: the answers have been revealing. In fact, public service has a this has emerged for me as a kind of reputation problem. The litmus test on the state of the public services in our country. idealism that may have attracted previous Before I share what I’ve learned, let PPF President David Mitchell. PPF photo me provide a bit of context. generations to work in government has dissipated. Let’s face it: the public service has a longer are public servants focused on reputation problem. The idealism developing policy options for elected The conventions that that may have attracted previous governments and taking medium to previously defined the role of generations to work in government longer-term perspectives on the big the public service have also has dissipated. The conventions that challenges ahead. Instead, the public changed. previously defined the role of the service often seems to have become public service have also changed. For more of an administrative service, example, the growing numbers of implementing policies and decisions political staff in ministers’ and prime that they haven’t directly contribut- minister’s offices increasingly seem to ed to. What’s worse, public servants The explicit efforts to implement aus- be doing work that traditionally was are now increasingly blamed when terity measures over the past number delegated to the public service. No things go wrong. of years, including downsizing and fis-

Policy 15 cal restraint, have also had side effects. Cutbacks, often across the board, At the federal level, the most significant public don’t recognize or reward productivity service engagement program ever initiated in our where it exists in government. Senior country, Blueprint 2020, is now entering its third year, with executives in the public service have impressive momentum and commitment. A great deal of often needed to focus their attention on managing staff cuts in their depart- concerted effort is being made to reposition—or rebrand— ments and lowering the expectations the public services of our country. of external stakeholders. Elected governments have pursued their agendas with an expectation that the professional public service all, a reputation is simply a snapshot value people, listen to their needs and will loyally implement policies. at a moment in time; it’s what other nurture talent. By engaging and em- However, we’re now seeing the emer- people say. In my view, a more impor- powering employees, the public ser- gence of permanent political cam- tant question is: what does the public vice can support innovation and in- paigning in Canada (an unwelcome service say about itself? I’m referring crease productivity, leading to greater influence of American politics). With to its brand. Its promise. Different impact and public confidence. All se- fixed election dates, 24/7 news media from reputation, the public service nior managers today need to be pas- cycles and the pervasiveness of social brand needs to be clearly and cred- sionate talent scouts, always alert to media, elected governments are in- ibly articulated. And it requires some high potential recruits, internally and creasingly calling upon the support reach, some ambition for the future. externally. This essential task can’t be and advice of political advisers. Af- As the Clerk of the Privy Council, the responsibility of the human re- ter all, the public service was neither Janice Charette, noted in the message sources department alone. built nor structured for non-stop po- accompanying her recent annual re- litical campaigning. port, the public service of Canada Yes, the task is a bold one: reclaiming Under these circumstances, how can “can never be satisfied with the status the public services of Canada as em- the public services of our country at- quo—we must always make room for ployers of choice for a new generation tract, retain and harness the talent of new ideas, new realities, new business of leaders. I believe, such a reposition- a new generation of leaders? How can models and new developments.” ing—or rebranding—is ambitious, they compete with other sectors in the timely and necessary. national and global search for talent? s a non-governmental organi- zation, the Public Policy Fo- Now, to return to the advice requested learly, the strategic shifts and A rum has the privilege to work by that bright young person. I asked culture changes required rep- with all levels of government in Can- numerous senior public service lead- C resent very big challenges. ada. As a keen observer of our public ers how they might respond. While Yet, I notice anything but compla- services, I can confidently say that these were private conversations, I cency as I survey the senior ranks that the energy currently being de- have no difficulty in telling you that of the public service across Canada. voted to strategic realignment and initial reactions were quite negative. Virtually every province and territory managing generational change is No one wants to see a bright, promis- has recently been engaged in pro- truly impressive. What’s more, very ing career launched by heading down gram reviews, core mandate analyses few career paths offer the range of op- a cul-de-sac. However, upon reflec- and new forms of employee engage- portunities or challenges that can be tion and with a bit of discussion, the ment. At the federal level, the most found in government. And these jobs responses generally changed to some- significant public service engagement provide a chance to have a real and thing along these lines: “Well, it’s go- program ever initiated in our coun- lasting impact on our fellow citizens, ing to be different than it was in the try, Blueprint 2020, is now entering communities and country. past. And it’s going to be very, very its third year, with impressive mo- challenging. But we’re going to need Rebranding the public service re- mentum and commitment. A great smart, committed and innovative quires continuing outreach and ac- deal of concerted effort is being made people more than ever…” to reposition—or rebrand—the pub- tive engagement. Public service lead- lic services of our country. ers need to be involved in promoting David Mitchell is President and CEO the potential for rewarding careers— of Canada’s Public Policy Forum. The task ahead isn’t going to be easy. and helping to make them happen. He is a former vice-president for external It will require dedicated and persistent People want to work for leaders who affairs and fundraising for three leadership. And it will also require are passionate about what they do. Canadian universities, a former member some committed political champions. Those who take pride in their work of the British Columbia legislature and And while the reputation of the pub- instil the same attitude in others. To a former Deputy Clerk lic service may be tarnished, this build an attractive workplace envi- in the Saskatchewan legislature. doesn’t need to be permanent. After ronment, public service leaders must [email protected]

July/August 2015 16

Astute Strategist Empathetic Facilitator Pragmatic Technophile Catalyzing Agent Prudent Manager

• Understands • Builds relationships • Embraces innovation • Adapts to change • Manages budgets complexity • Communicates • Continues learning • Drives outcomes • Is business savvy effectively • Possesses broad about new technology • Seizes knowledge • Takes a balanced • Finds common • Seeks opportunities opportunities approach • Is a quick thinker ground to leverage technologies • Motivates • Is resourceful • Has good • Manages • Understands risks others to act judgement expectations

Persuasive Shrewd Diplomat Fearless Adviser Passionate Inspirational Entrepreneur Talent Scout Team Captain

• Has a curious mind • Possesses political • Filters relevant • Is enthusiastic • Leads by example • Thinks creatively acuity information about work • Demonstrates • Is thick-skinned • Provides honest authenticity • Believes that • Plays an active advice change is possible • Manages multiple role in talent • Has a positive priorities • Has integrity management attitude • Knows how to sell an idea • Is a good • Understands when • Values leadership • Is a team player negotiator to push and when at all levels to step back • Embraces and leverages diversity A Top 10 List for Public Service Leadership Sara Caverley

In order for Canada to re- ill leadership in the pub- Rather than a definitive list of top main competitive as a na- lic service of the future skills, we’ve developed a select group- W require different skills ing of leadership profiles. What follows tion, Canada’s public ser- than it does today? The impending are combinations of the kind of com- vice must compete for the sea change of leadership in Canada’s petencies that will be increasingly republic service requires an influx of quired across our future public services. most creative, nimble minds talent from younger generations. But 1 Astute strategist: An agile pub- of each generation. Even in new realities demand 21st-century lic service needs leaders who can leadership competencies that aren’t an era of globalization and manage complex situations in- considered to be in abundance today. universal connectivity, for- volving multiple interests, per- More than a process or structural spectives and implications. More mulating and communicat- change, a high-performing public ser- valuable than specialists now are ing public policy requires a vice requires an ongoing investment generalists, with well-rounded highly specialized skill set. in people—a pipeline of new talent to backgrounds and strong analytical shape innovative and impactful pub- skills. Effective leaders have good The profile of the perfect lic services across the country. But judgment and a proactive, strate- public servant is nothing like who are the next generation of public gic approach that involves build- the dusty cliché. sector leaders? ing support and seizing opportunities for change. In our discussions across sectors, the Public Policy Forum explored a 2 Empathetic facilitator: Col- broad range of capabilities, including laboration across the public service acquired skills and innate attributes. requires leaders who are skilled at

Policy 17 mobilizing employees and break- ploring what’s possible. They break Good public policy depends on the ing down silos to achieve com- down complex ideas and convince capacity of the public service to mon goals. However, leading in a others of the best course of action. fill these key competency profiles. horizontal environment may be They understand the issues, are While there’s no shortage of appli- less about competencies and more passionate about their vision and cants for the public service, main- about accepting shared power and resonate with their audience. taining a high-performing organiza- appreciating different viewpoints. tion depends on talent management 7 Shrewd diplomat: Leading to- Public service leaders need empa- strategies that effectively respond to day’s public service demands more thy to understand what motivates shifting demographics and intensify- political acuity. Leaders need to others and humility to embrace ing competition. collaboration both inside and out- understand the interplay among side government. public perceptions, stakeholder Although new competencies are positions and government priori- emerging, a number of the skill sets 3 Pragmatic technophile: To har- ties. They must excel at negotiating highlighted here—such as the pru- ness new tools that support ag- both inside and outside govern- dent manager and inspirational team ile government, the public service ment, and be adaptable to political captain—represent traditional leader- needs leaders who embrace innova- and media scrutiny. This also re- ship qualities that remain relevant. tion, develop technological fluency quires a more pro-active, practical These profiles capture a blend of ex- and build organizational capacity. approach to limit unnecessary risks pertise, experience, soft skills and Savvy leaders are practical and stra- and contain potential crises. traits that may not all be found in a tegic about new technology, and single leader, but could provide the weigh costs against benefits to en- 8 Fearless adviser: Public service leaders must be willing to speak criteria for building a well-rounded sure the greatest return on invest- leadership team. ment. Appreciating these trade- frankly about the issues, provide offs, they can best determine how honest, nonpartisan advice and Because organizational transformation to leverage technology to adapt to have the courage to make tough demands collective effort, leadership changing needs. decisions. However, they need to development across the public service know when to push for change will help ensure that real change can 4 Catalyzing agent: A fluid public and when to step back. Strong lead- be implemented at all levels and sus- service needs flexible, enterprising ers demonstrate integrity and help tained over the long-term. This means thinkers committed to achieving build a healthy organizational cul- challenging the hierarchical culture outcomes, regardless of the ob- ture based on trust and respect. endemic in most bureaucracies to stacles ahead. When faced with maximize talent and knowledge. multiple barriers to change, strong 9 Passionate talent scout: Public leaders determine what’s feasible service leaders need to be involved The public service must also ensure and plant the seeds for buy-in. in rebranding the public service, that performance management and They can rally support around a recruitment and developing future professional development contribute shared vision with the ability to leaders. Talent acquisition is not to greater productivity and innova- build trust, establish respect and just for HR anymore. Good leaders tion. But more importantly, leverag- care about their work and convey empower others. ing talent within the public service that passion to others, inspiring in- requires a genuine commitment to 5 Prudent manager: Business acu- terest through broad outreach and engaging employees, investing in men has become more important instilling pride through meaning- their development and providing for public sector leaders in the cli- ful engagement. They build teams them with opportunities to make a mate of austerity. Effective leaders with complementary skills and ex- real impact. balance out the tension between pertise, harnessing all types of di- managing budgets and supporting versities and different perspectives. The role of the public service is innovation. They are pragmatic changing. Like any large organiza- 10 Inspirational team captain: and proactive in developing smart- tion, it needs to remain relevant and Public service leaders need to fos- er business strategies to maximize resilient by modernizing practices ter a healthy workplace environ- talent, resources, partnerships and and transforming culture. Given its ment, be accessible and demon- opportunities across and outside far-reaching impact, all Canadians strate that employee engagement government for sustainable impact. have a stake in ensuring that the pub- is a priority. They must lead by lic service is adept, flexible and for- 6 Persuasive entrepreneur: An example, challenge the status quo ward thinking. innovative public service needs and encourage risk-taking. The creative thinkers and lifelong attitude, emotional intelligence Sara Caverley, communications learners driven by a desire to do and likeability of good leaders are coordinator of the Public Policy Forum, things better. Enterprising leaders shaped by empathy, authenticity, previously worked for the Department of seek new avenues for improve- self-awareness and a genuine con- Foreign Affairs, Trade and Development. ment by asking questions and ex- cern for the wellbeing of others. [email protected]

July/August 2015 18 ward, they’ll be labelled as an innovator and a forward-thinker. If a gov- Stretch Goals: ernment leader shows that level of bravery, the public response is usually in the form of swift backlash concern- A Case for ing misspent tax dollars. Government appeases public anger by trying to guarantee outcomes, and thus, stays Government Agility on a narrow course, void of ﬂexibil- ity and innovation. This is obviously Sandra Pupatello contrary to the whole idea of agility being able to provide a more nimble, responsive service base, which 75 per cent of the report respondents say is necessary for success.

overnments are very calcu- Agility in government requires one element that has, lated about their risk-taking ironically, been in short supply in this globalized, hyper- G ventures. Public perception about how money is being handled connected environment: a tolerance for risk within the is critical. But what if a government public sector. But as former Ontario minister and cur- announced that they would be ear- rent PwC leader Sandra Pupatello writes, solutions are marking a percentage of their annual budget for risk? Governments have already in the making. to make thousands of decisions every year, across many ministries and services. They aren’t always going to go n the topic of government Should we even want agile govern- right. If these service areas could be agility, there are some agreed- ment? Overwhelmingly, the belief allowed to have a budgetary amount O upon facts. For one, Canada’s from within the public service, is that could, as a loss, be accounted for, public sector is, by measures, becom- “Yes”. In fact, in a recent report jointly then perhaps the public would feel ing more agile. Citizens expect seam- produced by PwC and the Public Poli- less affronted by the way our tax dol- less, integrated services brought to cy Forum—Agile government: Respond- lars were used. Government “waste” them in the ways they see fit. These ing to citizens’ changing needs—91 per could become government “risk”. challenges are starting to be met. Sec- cent of respondents said they believe The term “working in silos” is often ond, stakeholders agree that govern- that agility is achievable. And 75 per applied to the operation of governments need to do more to become cent of participants said that the public service needs to be less risk-averse ment. Ministries, working autono- increasingly more responsive to the in order to be more agile. So, what mously, can miss opportunities to needs of the public. The world is be- concrete things need to happen to cooperatively achieve their own individ- ing shaped by technology and ever- bring about a less risk-averse culture ual goals. By working alone, they can increasing globalization. Everyone in government? also miss the ultimate benefit—and must to do more with less, however, purpose—of effectively serving their so governments require efficient and Someone asked me: “Is there a single public. I have seen a highly effective effective ways of delivering on ser- way to shift into an agile frame of collaborative approach in action while vices. And third, there are plenty of mind? Can a government just say, working with the Ontario provincial ideas on the table, but ultimately no ‘This is what we’re all about now’?” government. In the late 2000s, the one is quite sure just how to kick start In short, no. But there are ways to medical devices sector worked with a widespread change. make what’s already happening more the government on a cross-ministry participation project. Leadership in In the context of the public sector, the obvious. The reality is, governments have been dealing in risk all along, each ministry that impacted on the current environment contributes to a medical devices community came to slower pace of change. There is a low though by small measures relative to what occurs in the private sector. the same table, at the same time. The public tolerance for error, and a high ministries of health, finance, Treasury avoidance of risk within the public In the private sector, a CEO might say Board and Ministry of Government service; every action has its equal and “we’re going to try something new, Services, for example, were in the opposite reaction. Unfortunately for and we don’t know what the result room together with representatives Canadian governments, that means will be just yet; we might even fail.” from industry. In this format, procure- that transformation into agile, re- The CEO can fairly safely plant that ment processes, for example, could be sponsive service faces challenges. signpost in the ground, and as a re- addressed with government services,

Policy 19 and at the same time the health officials could hear about the regulatory Governments are very calculated about their risk- environment and assessment of new taking ventures. Public perception about how medical devices. money is being handled is critical. But what if a government Everyone received information in the announced that they would be earmarking a percentage of same way at the same time. No one their annual budget for risk? could claim to misunderstand what the real issues were that broadly affected the sector in question. In a An increased level of cooperation and livered infrastructure projects across unified approach, we committed to communication between elected offi- multiple levels of government and coming back to the table with solu- cials and public servants should also private enterprise. There can be more tions to key issues. In committing been seen as less of a taboo than it transparency, more excitement and to do the best for the client, govern- is. As the PwC-PPF report points out, positive feeling toward these types of ment created a bridge between service successes should not always be the projects. I hope eventually, we’ll be perspectives, programs and policy to spoils solely of elected officials, nor looking at the future’s ‘business as move business forward. The resulting should failures always be scapegoats usual’ as yesterdays ‘risks’. model is Ontario’s MaRS EXCITE pro- borne in the rank and file of the pub- At the end of the day, there’s one gram, highly lauded within the medi- lic service. The current conversation conclusion: Canadians expect a re- cal devices community. tends to be about an elected govern- sponsive, intelligent, modern public ment delivering on election promises The action was repeated with various service. They expect a trim, efficient on the first try, with anything less sectors and industries. The results system where costs are considered seen as a failure. Risk and innovation were transformative, for business and and more is done with less. This can become part of an embedded cul- for government. The Open for Busi- transformation will only occur at the ture that educates the public about ness strategy was the result, success- expense of old beliefs about how the the usefulness of letting elected offi- fully helping to drive business in the public sector ought to go about its cials and hired employees deal with province of Ontario. In terms of agile work. We know that the public sector one another more freely. thinking, one of the greatest benefits of the future needs to transform into this brought to the government was A spin-off benefit of strengthened a nimble, tech savvy service to truly to transform it from a feeling a need relationships between private and be able to respond to the needs of the to deflect criticism to being a facilita- public sectors would also likely be citizenry which it serves. To do this, tor of tangible progress. increased working partnerships be- old ideals about how a government tween the two sides. This is a factor in should operate must be shed. The A third area that the PwC / Public increased agility. Private Public Part- workforce has to be given the social Policy Forum Report touched on was nerships (PPPs) are nothing new, but license to transform into a creative, that of increasing mobility between the arrangements aren’t always cel- innovative and adaptable entity. private and public employers; that ebrated. More often than not, these this should be encouraged. Canada is often held up globally as arrangements should be lauded as a top example of a modern demo- It is common in the private sector to effective cooperation between excel- cratic society. But there is more we see workers go off on a secondment; lent oversight bodies (government) can do to build on that reputation. gather new skills and new experienc- and an innovative, flexible workforce The difficulty lies in determining the es. Government needs to do better in (private enterprise). true catalyst for change. Will it be a having public service workers move The dated perspective of “them and government showing courage with a across different service areas to gain us” is a roadblock to being able to public declaration of embracing risk? broader experiences. As well, having marry the very best of effective proj- Will it be a swift, dramatic change in government employees work on sec- ect management with risk-enabled public perceptions around govern- ondment within the private sector private enterprises. There is a highly ment should act? Regardless, now is would be hugely beneficial. sophisticated process of procurement the right time to encourage these mo- he benefits are not merely a around PPPs. Whomever is selected mentous shifts, to spark the change

broader understanding for to do business with government that everyone agrees is needed. T the public sector employee of should be regarded as highly com- Sandra Pupatello is the Director of what makes the private sector tick. petent in the eyes of the public, and Business Development and Global There is a critical cross-pollination el- the government should be prepared Markets for PwC Canada. First elected ement as well. The relationship and to stand side-by-side with their pri- to the Ontario Legislature in 1995, she skills building back and forth between vate partners to echo that sentiment. served in Cabinet from 2003-13. As private sector and public can be of From the Confederation Bridge in the minister of Industry and Trade, she led great service to both sides, and should east to the Port Mann replacement in trade delegations in most major markets be explored more often than it is. the west, PPPs have successfully de- around the world.

July/August 2015 20 Advanced technologies are driving the disruptive innovations that will The Age of bring significant and permanent change to Canada’s business land- scape. In a recent report released by Disruptive Innovation Deloitte, Age of Disruption—Are Cana- dian Firms Prepared?, five technologies Terry Stuart were identified for their considerable disruptive potential: artificial intelligence, advanced robotics, networks, advanced manufacturing and collab- Canada’s economy, like others around the world, is facing orative connected platforms. Wheth- rapid advances in technology. The incredible disruptive po- er profound change comes from these specific technologies, others, or some tential of these changes—including, but not limited to, ar- combination that has yet to be seen, tificial intelligence, advanced robotics, networks, advanced the incredible disruptive potential of these five will illustrate the impor- manufacturing and collaborative connected platforms— tance of being prepared. clearly demonstrates the need to be prepared. For over a year, Deloitte studied the Canadian economy to better understand whether or not firms have isruption is coming—and Ca- ly, they are also exiting much more what it takes to withstand significant technology-driven disruption. As part nadian firms are not prepared. quickly. In 1960, the average lifespan D of this research, 700 business leaders of an S&P 500 (Standard & Poor’s) The way Canadians live and work is across Canada were surveyed to gain company was 56 years; by 2014, it about to change profoundly. Rapid ad- their insights into the issue. vances in technology are poised to dis- had dropped to almost 15 years. rupt many of the sectors that anchor Each firm’s performance was evalu- Canada’s economy. The impact will be ated in four areas that are vitally im- HIGHLY PREPARED portant to disruption preparedness: felt across the country—and Canadian Excelling in all four areas of businesses are not prepared for it. preparedness • Awareness: understanding chang- % ing technologies, the accelerating Disruptive innovation has the poten- SINGLE-MINDED 13 pace of change and the potential Taking action in one area of pre- tial to impact each and every firm, no for technology-driven disruption paredness, but not % matter its size, sector or location. The prepared overall 23 in the firm’s industry and business development and application of ad- environment; vanced technology is accelerating at % such an exponential rate that people TENTATIVE 29 • Culture: the extent to which a firm Not wholly unprepared promotes, encourages and pro- have difficulty coming to grips with but still struggling with preparedness vides incentives for innovative be- the sheer pace of change. Among the efforts % key factors propelling these advanced 35 haviours and practices; technologies is the exponential growth UNPREPARED • Organizational agility: the ability Struggling to rapidly redeploy systems, assets in computer processing power—and, in all four areas of in turn, the staggering drop in the preparedness and people to address external op- price of computer chips. In 1992, one portunities or threats; and would pay $222 for a million transis- • Effective resources: the technology, tors; today the cost is $0.06. In the public sector, governments human capital and financial assets Advances in technology have also in- across the country are grappling with that firms can use to enable change. disruption from technology both in creased the rate of business growth— ased on results from the sur- terms of regulatory and legislative and business failure. vey, Deloitte discovered that a frameworks that may no longer speak mere 13 per cent of Canadian Since 2003, a new company has to the technological experience of B reached a $1-billion valuation every firms can be considered highly pre- today, and in terms of the way they pared for disruption, 23 per cent are three months in the United States. Yet do business. The advent of e-govern- the time it takes to reach that valua- prepared in one area, but not others, ment offers both challenges and op- tion has shrunk considerably: Shopify 29 per cent have started, but are strug- portunities as jurisdictions all over took nine years; Slack took one. gling with their overall preparedness the world imagine new ways to con- efforts, and, most disturbingly, 35 per As businesses are growing more quick- nect with and empower their citizens. cent are completely unprepared.

Policy 21 The implications are dramatic. More likely than unprepared firms to re- • Evolve education at all levels: Gov- than four out of five Canadian busi- port revenue growth over the past ernments must use their funding nesses are not well-prepared for five years. and regulatory levers to encourage disruption. The implication? Investments that a shift in how Canada’s students are educated at the elementary, Compounding the essential lack of can improve a company’s productivity today can enhance its prepared- secondary and post-secondary lev- preparedness is the fact that a large els, embracing new education prac- number of firms—almost half—be- ness for the wave of technology-driven disruption tomorrow. tices, models and partnerships. It lieve themselves to be more prepared is also crucial to begin educating than they actually are. This “percep- students on what is possible in fter reviewing the data, it be- tion gap” is based on firms reporting a the new economy, discussing new lack of substantive activity in key areas comes clear that Canadian technologies and business models. of preparedness, while simultaneously firms, be they private, public, A • Alter protectionist regulations in arguing that they are, in fact, prepared. or non-profit, can take concrete steps to dramatically improve their capacity Canada’s visa regime. The govern- To improve preparedness, consider to anticipate, respond to and capitalize ment must review its visa processes looking to Canada’s best-prepared on the disruptive storm that is coming: to ensure our companies can com- firms. One survey result that was par- pete with their worldwide peers ticularly interesting was the diversity • Cultivate awareness: Creating sens- for the best global talent. Improv- of the 13 per cent of highly prepared ing engines to identify and assess ing the speed and efficiency of the firms themselves. They do not fit a the forces that have the potential application process is a start, but single mold. They represent firms to disrupt a business or industry governments must also resist the from every sector, of all shapes and better positions a firm to take ac- tendency to establish protectionist sizes. From a large bank to a small tion today to prepare for disrup- policies that make it more difficult bakery, these firms are as diverse as tion’s impact tomorrow; to work in Canada than in many Canada. However, there is one im- • Build the right culture for pre- other countries. portant similarity: they are all taking paredness: Developing a resilient, • Redesign post-secondary institu- concrete steps to ready themselves innovative organizational culture tions into vibrant, diverse learning for disruption from a future that can can help companies withstand dis- zones. Canada’s post-secondary only be imagined. ruption in the future, and also of- education system was built at a By understanding what sets Canada’s fers important benefits today; time when only a small proportion highly prepared firms apart from • Foster organizational agility: Em- of people attended university. At their peers, it is possible to identify bracing new ways of working and that time, highly specialized learning, housed in silos and based on how the country’s numerous, poor- making decisions can help firms static curricula, proved a successful ly prepared businesses can change. avoid becoming mired in the bu- format for producing successful stu- It has already been stated that the reaucracy that can bring change to dents. However, the past 50 years highly prepared firms excel in all of a screeching halt; and the key preparedness areas: aware- have seen unparalleled change, and • Develop effective resources: Invest- ness, culture, agility and resources. our education system must adapt. ing in advanced technologies and Yet, it was also discovered that these • Invest strategically in building true using resources effectively can in- same organizations exhibit attitudes business ecosystems. Governments crease companies’ resilience in the and behaviours of highly productive must work to deepen the impact face of change. Acquiring and de- companies, as identified in previous of existing clusters of businesses studies on Canadian productivity. ploying the best people, technolo- and help them transform into Specifically, highly prepared firms do gy, and financial resources can help full-fledged ecosystems that sup- the following: firms become more competitive as port and promote business. While they prepare for future disruption. • Remain committed to research having a cluster in every major and development investment, and Canadian city is an excellent goal, hile it can be difficult for more than half of them plan to what’s needed now is a transition governments and academ- boost R&D spending over the next from clusters to world-class busi- ic institutions to directly five years; W ness ecosystems. influence the actions taken by Ca- • Are more likely than their peers to nadian businesses, Deloitte’s report Canadian firms are facing serious, sig- focus on national or international asserts that both can take steps to nificant challenges in their prepared- markets, which brings them into support firms in their preparedness ness for disruption. But they also face contact with new ideas and ap- journey. Areas under government incredible opportunities to improve proaches and gives them a differ- influence, like education or immigra- their productivity and to become bet- ent perspective on how to create tion, can have a significant impact on ter prepared for what is to come. and sustain success; and the way companies in Canada pre- Terry Stuart is Chief Innovation Officer • Were almost 25 per cent more pare. Some key areas of focus are: of Deloitte Canada.

July/August 2015 22

Parliament Hill, where ideas become law. In looking at supply and demand in public policy, writes Mel Cappe, “what we are building here is a model of the market for ideas.” Tourism Ottawa photo Supply and Demand for Ideas and Evidence in Public Policy Mel Cappe

It used to be that the public service had unique sources n trying to develop a “policy on public policy,” we should think of data and privileged access to ministers. That is no I about two things: the production longer the case. The market in ideas is now highly con- function of public policy and the use tested and very competitive. The days of whispering to which the product of public policy in a minister’s ear and launching a new policy initia- is put. tive are long gone. Former Clerk of the Privy Council In the case of the production function: What are the factors of production? Mel Cappe looks at how public policy is formulated How are they transformed through a in 2015. One major change? If you have ideology you production function? And what are the don’t need evidence. outputs we are trying to achieve? From this we can derive a supply function of public policy.

We should then turn to the use to which the product is put and look at

Policy 23 how public policy is applied. Essen- tially, what we are building here is a What are the factors of production? How are they model of the market for ideas. transformed through a production function? And what are the outputs we are trying to achieve? From this we In considering the use of the out- can derive a supply function of public policy. put, we have to consider the increasing complexity of the nature of the problems we face. Then we have to take into account the increasing complexity of the solutions to those problems. This increases the margin- with programs like the Advanced of policy analysis and policy develop- al value of analysis and evidence in Policy Analyst Program, the Recruit- ment. In the elaborated model, one addressing them. ment of Policy Leaders and other could articulate a sophisticated struc- departmental elite recruitment pro- ture of electoral politics, political par- Let’s look first at the internal capac- grams, the public service actually has ties, Parliament, and prime ministers ity of the public service to do serious significant ability and capacity to do through ministers leading to a de- work in the production of evidence serious work developing an eviden- mand curve for ideas in the market for and applying it to policy analysis tiary base for policy development public policy. It used to be that a scrib- and development. It used to be that and doing evidence-based, policy an- bled question by the Minister in the the government telephone book alytic and policy development work. margin of a memo would lead to dedi- (anachronistically, a large, bound, Departments like Finance, PCO and cated research projects and elaborate paper document with everyone’s especially Employment and Social modelling to determine the answers. name, position and telephone num- Development Canada and Industry ber in it, weighing about a kilo) had Canada still have significant policy owever, that requires min- someone with “policy” in their title shops, with highly trained, sophisti- isters to ask policy questions on every page. cated and very clever analysts with H before they find policy so- graduate degrees from top flight uni- lutions. It requires prime ministers versities from around the world. The In the Government to be open to evidence convincing Clerk has made recruitment and poli- them of the importance of the issue Electronic Directory cy her priorities. at hand, an analysis of the effects of System among the the problem on Canadians, and the departments beginning with owever, the public service development of policy options and the letter A (essentially, is no longer the privileged approaches that could be elaborated H source of policy analysis and to deal with the problem. Aboriginal Affairs, advice. Rather, the policy production Agriculture and ACOA) there function is broader and deeper than This model presumes ministers and are 554 people with the in the “good old days”. Academia, PMs asking questions before they have answers: has violent crime in- word “policy” in their title. NGOs, industry associations, think tanks, the private sector, consultants, creased or decreased in Canada and There are literally thousands law firms, public intellectuals, lobby- why? It presumes that we would in- of people who do policy ists, media and non-profits often do vest in data collection with quality work in the Government serious analytic work that can make assurance to ensure that we know of Canada. huge contributions to the public pol- who we are, the problems we face icy debate. It used to be that the pub- and possible policy avenues to ad- lic service had unique sources of data dress them: for instance, a long form and privileged access to ministers. census instead of a voluntary nation- That is no longer the case. The mar- al household survey. ket in ideas is now highly contested In the Government Electronic Direc- and very competitive. The public In this model, the demand curve of tory System among the departments service still has to play its role of fil- ideas in the market for public policy beginning with the letter A (essen- tering out the private pleadings and is robustly shifted out and to the tially, Aboriginal Affairs, Agriculture applying the broader public interest right. It still slopes downwards, but and ACOA) there are 554 people with test, but the days of whispering in a it values ideas. The marginal value of the word “policy” in their title. There minister’s ear and launching a new the last idea is significantly positive. are literally thousands of people who policy initiative are long gone. Unfortunately, now that ministers do policy work in the Government of ask fewer questions and demand less Canada. The capacity on the produc- Now let’s look to the demand side of of their public servants, the marginal tion side is actually quite high. And the market. Who are the demandeurs value of the last idea is very large. But

July/August 2015 24 it is not actually leading to increased nature and essence of the public good can make a clear distinction between use. Curiosity is a prerequisite for vig- was clearly in the science. the science and the policy. The cod orous public debate. expert in Fisheries and Oceans actual- As Daniel Patrick Moynihan famously ly does not know enough about other The more that ideology plays into said, everyone is entitled to his own groundfish, about aquatic ecosystems the picture, the more that answers opinion, but not his own facts. If the and about human use of the resource are provided before the questions are overwhelming scientific consensus to actually speculate on cod policy posed. If you have ideology you don’t of the Intergovernmental Panel on and the total allowable catch for cod. need evidence. Climate Change (including scientists from Saudi, Qatar and Venezuela) is The scientist should be doing what The public service that climate change is anthropegenic, he or she does best and that is advise has maintained a it is not up to the minister to find a on the state of the cod and factors at work that affect them, then let the high level of analytic lone denier and justify inertia by saying it is in dispute. rest of the scientists in DFO and the capacity ... so far. But if the policy analysts integrate it with what muscle is not exercised, And you must think about the pro- will happen in the larger domain. duction function for the creation of sclerosis and paralysis will The resolution of the competing de- set in and the muscle will science and scientific evidence. Qual- ity scientific research requires sci- mands on the resource make the science an important evidentiary basis atrophy. There is a feedback entists to publish their research, to on which to ground a decision. But effect or interdependence reach out to their collaborators and the decision itself is not a scientific competitors and subject their results between supply and one, but rather a political one. Peo- to public and peer challenge. This is demand. ple will say “it’s just politics”, but inherently a public scientific process. politics is a good thing. Decision- making in the presence of uncertain- I firmly believe that ty, political dynamics, and compet- the government of ing interests requires a ministerial, hat we have observed over the day should always not scientific decision. the past number of years is encourage its scientists to Quality public policy requires a fine W a deterioration in the de- engage with their colleagues understanding of the nature of the mand side of the market in ideas. and the public about their problems that afflict us, of the im- The public service has maintained a pacts of alternative policies and an high level of analytic capacity ... so research. However, I am analytic basis for informing public far. But if the muscle is not exercised, equally convinced that policy. This requires a robust eviden- sclerosis and paralysis will set in and government should prohibit tiary basis for the market in ideas. the muscle will atrophy. There is a scientists from getting into It requires a vigorous, analytic and feedback effect or interdependence highly educated public service to do between supply and demand. Hir- the realm of public policy the analysis. And most importantly, ing of high quality analysts will be- debate. That is the role of it requires ministers who will ask come more difficult. The good ones ministers in our Westminster tough questions, be open to the evi- will leave. The quality of their work parliamentary democracy. dence and be prepared to make their will deteriorate and ministers will feel decisions informed by that evidence vindicated in not calling on the ser- and analysis. vice’s advice. Mel Cappe is Professor in the School The same will apply to those who of Public Policy and Governance at produce the evidence. Whether it the University of Toronto and formerly is in Statistics Canada or in the sci- I firmly believe that the government president of the Institute for Research ence community inside government, of the day should always encourage on Public Policy. Previously, he was the production of evidence on which its scientists to engage with their col- Clerk of the Privy Council, Secretary to policy should be based will be in de- leagues and the public about their Cabinet and head of the public service. cline. When I was DM at Environ- research. However, I am equally con- [email protected] ment Canada during Program Review vinced that government should pro- in the mid 1990s, we preserved the hibit scientists from getting into the science and cut deeper in service: a realm of public policy debate. That is courageous decision of the minister the role of ministers in our Westmin- of the day, and the correct one. The ster parliamentary democracy. One

Policy 25

“The problem,” writes Madelaine Drohan, “is not too little journalistic output but too much, and the seeming impossibility of being able to sort through it all.” Dreamstime image Reports of the Death of Journalism Have Been Greatly Exaggerated Madelaine Drohan

ou could almost hear the collec- Despite media fragmentation, the proliferation of cat tive groan from journalists videos and the shrinking of human attention spans, Y across North America last April there is still a demand for the type of journalism that when news broke that Rob Kuznia, informs public policy in a digital world. How it is deliv- winner of a 2015 Pulitzer Prize for local reporting, left journalism for public ered and who consumes it is changing. The difficulties relations because he couldn’t pay his that traditional media organizations are experiencing rent. Kuznia’s story stood out against in the digital world should not be conflated with ap- the flood of bad news about closures and layoffs at once dominant media petite for in-depth, forward-looking news. organizations in the US and Canada. If someone with enough talent to win such a prestigious prize could not make a living wage in journalism, what hope was there for anyone?

July/August 2015 26 Anyone with an interest in good public policy and the belief that an For readers, viewers or listeners of serious informed electorate is essential to a journalism, it is a time of plenty. Never before have strong democracy should sit up and they had access to such a cornucopia of stories, videos, take notice. If Kuznia’s career choice documentaries and analyses on every conceivable topic sounds the death knell on the type of from anywhere in the world. The problem is not too little journalism that informs public policy, we are all in trouble. journalistic output but too much and the seeming impossibility of being able to sort through it all. Fortunately, the headlines do not tell the whole story. They focus on the bad news of traditional media organizations struggling and sometimes fail- ing to find a successful business model in an increasingly digital world; on The waning clout of traditional me- only game in town. News no longer the viral spread of celebrity stories, cat dia organizations has also upended waits for the morning newspaper, the videos and sensationalist news; or on the relationship between policymak- nightly broadcast, or sometimes even the possibility that consuming digital ers and the media. Traditional me- for journalists. When Prime Minis- ter Stephen Harper shuffled his cabi- content is diminishing the traditional dia organizations were gatekeepers, net in July 2013, he announced the audience for such content. Douglas sorting through the news of the day changes first on his Twitter account. Coupland, a writer, artist and thinker, and presenting what editors deemed says the digital world has given rise important on the front page of the to omniscience fatigue (the ability to newspaper or in the top items on ocial media have given politi- find the answer to almost any ques- radio and television broadcasts. As cians the ability to talk over the tion makes information boring). A gatekeepers they had a role in the S heads of journalists directly to recent Microsoft report said goldfish policymaking process, although there their intended audience. They are not now have longer attention spans than is some argument about how large a alone. Companies, advocacy groups, the average human being. role they played. Still, media organi- think tanks, academics—just about zations identified problems, encour- anyone can use social media to tell For readers, viewers or listeners of se- aged public debate, searched for evi- their story the way they want it to rious journalism, it is a time of plenty. dence and critiqued finished policy. be told. In the digital world, journal- Never before have they had access to They informed engaged citizens. ists no longer have a quasi-monopoly such a cornucopia of stories, videos, on information. This was inevitable, documentaries and analyses on every Traditional media although few saw it coming. The In- conceivable topic from anywhere in ternet has allowed upstarts in other the world. The problem is not too lit- organizations were gatekeepers, sorting through industries—think Airbnb with ac- tle journalistic output but too much commodation or Uber with taxis—to and the seeming impossibility of be- the news of the day and cut out the middleman. Why should ing able to sort through it all. presenting what editors journalism be any different? deemed important on the This fragmentation of the news has Senior civil servants, once the traits downside. It threatens to shrink front page of the newspaper ditional source of policy advice to the common pool of information we or in the top items on radio ministers, have also seen their role share. The risk of rising partisanship and television broadcasts. as gatekeepers diminished in the among groups who gravitate to like- digital world. This is partly because minded sources may be overblown. of the deluge of information. And it Research by the American Press In- is partly because policymaking itself stitute indicates it exists more among has undergone a radical shift in the older people than the young, whose last decade or so, which may also be This ability to set the agenda for a wide circle of friends in the digi- related to changes in the media. tal world exposes them to alternate national conversation has not com- views. Still, sharing common pool pletely disappeared. At a roundtable Policymaking in Canada was once knowledge is essential to inform and convened by the Public Policy Forum a much more deliberative process, provide a frame for healthy demo- in May to discuss the future of serious where royal commissions were given cratic debate. Fragmentation of the journalism, participants agreed that mandates to dig into a particularly news means a less all-encompassing the front page of The Globe and Mail thorny problem, examine the evi- national conversation about issues, if or the Toronto Star was still impor- dence, research potential policy solu- indeed that ever existed. tant real estate. But it’s no longer the tions and come up with recommen-

Policy 27 dations for government. The media instantly to news, even if it broke at mittee that his decision to include a played a role, sometimes sparking the 11pm, for fear it would “grow tenta- job credit for small businesses in the commission but also reporting on the cles” overnight. 2014 fall budget update was based hearings, the final report and govern- not on departmental analysis, but ment follow-up or lack thereof. That There is little room in this world for on research done by the Canadian era has ended. The last royal com- thoughtful examination of problems Federation of Independent Business. mission, an investigation led by Su- and long-term policy research. “The preme Court Justice John Major into 24-hour news cycle has dramatically Lobbyists are hardly a new phenom- the bombing of Air India Flight 182, altered the willingness of politicians enon, but they may have more clout reported in 2010. The current govern- and their staff to engage in a slower in the changed policymaking environment. For journalists, they rep- ment has fiercely resisted calls to set process,” says David Dodge, former resent an important audience and a up a commission to investigate miss- governor of the Bank of Canada and source of news. ing and murdered aboriginal women. a former deputy minister of finance. The closest we have come recently to The constant need to respond to the in-depth study of a public issue is the issues of the day also means tradi- hat of the general pub- Truth and Reconciliation Commis- tional policymakers have less time to lic? Research done by the sion, which was set up as part of the devote to longer-term thinking. American Press Institute settlement of a class-action lawsuit. W shows the stories with the longest There is little room online life, which keep bringing olicy now appears to arrive in this world for viewers back to a site, are those ready-formed from the top that involve original ideas, show thoughtful examination of P without the underlying think- evidence of enterprise in the reporting and framework used in more de- problems and long-term ing, and have value for the reader. liberative policymaking. The media policy research. “The 24- Having a story that no one else has role in this new method of policy de- hour news cycle has thought of and that answers a ques- livery is almost purely reactive. Jour- tion important to the reader is the nalists inform the public after the dramatically altered the most important thing media orga- fact. Public debate is curtailed and willingness of politicians and nizations can do to drive their en- sometimes non-existent. This trend their staff to engage in a gagement with customers, says Tom began in the waning years of the last slower process,” says David Rosenstiel, executive director of the Liberal government and has reached institute. full flower under the Conservative Dodge, former governor of regime. A 2011 assessment by Don the Bank of Canada. If original content showing enter- Drummond of Queen’s University prise alone were the answer, Rob found that the policy shops of vari- Kuznia, the Pulitzer Prize winner, ous government departments had would still be reporting for the Daily been pared to the bone during the Breeze in Torrance, California. Yet budget cuts of the 1990s and only the difficulties his former employer partially restored. But just as there are many more and other traditional media organi- sources of “news” there are also zations are experiencing in the digi- Critics suggest policy now reflects more sources of policy ideas. Think tal world should not be conflated the preoccupations of ministers and tanks and policy schools at univer- with a diminishing appetite for seri- is based more on political consid- sities have stepped into the gap left ous journalism. The demand is still erations than on policy concerns. by government, doing longer-term there. Journalists and their employ- A case in point is the Conservative research and producing recommen- ers just need to find their niche in government’s focus on crime legisla- dations for policy change. For exam- the digital world and figure out how tion—more than 30 crime bills have ple, two papers on potash taxation to make it pay. That’s not an easy been passed since 2006—at a time from the School of Public Policy at task. But neither is it impossible. when crime rates are falling. the University of Calgary prompted Madelaine Drohan is the 2015 Yet the media are partly responsible the Saskatchewan government to re- recipient of the Prime Ministers of for this state of affairs. The advent view its rules. Canada Fellowship given by the Public of the 24-hour news cycle means Policy Forum. She is also the Canada Business interests, either alone or as it is not just journalists going with- correspondent for The Economist and part of an association, are also ac- out sleep and having to respond to a regular contributor to the Economist events on the fly. One participant tively involved. We caught a glimpse Intelligence Unit. at the roundtable spoke of the need of this when Finance Minister Joe for political staff to respond almost Oliver told a parliamentary com-

July/August 2015 28

The election of Perry Bellegarde as the new AFN chief provides an opportunity to “re-set the relationship,” writes Dale Eisler. Here, Bellegarde delivers a keynote to a Canada 2020 symposium on First Nations. Canada 2020 photo, Matthew Usherwood First Nations and Public Policy: A LEGACY OF FAILURE WITH BLAME ALL AROUND

Dale Eisler

The relationship between the federal government and here has been no greater failure Canada’s First Nations and aboriginal peoples has of public policy in Canada than T the inability of successive gov- been fraught with misjudgment, mistrust and injustice ernments to deliver social and econom- for as long as our nation’s history has been recorded. ic justice for First Nations and aborigi- The ﬁndings of the Truth and Reconciliation Commis- nal people. Given the facts, it’s long past time for serious soul searching by sion needs to be a turning point that helps shape a na- all involved.

tional commitment to right the wrongs of the past and The social and economic evidence is chart a new path forward. stark and overwhelming. Aboriginal people represent 4.3 per cent of the Ca- nadian population and their numbers are growing faster than the general population. Yet by virtually any measure, the majority are a people apart, discon- nected from the mainstream of the Ca- nadian economy and society.

Policy 29 They suffer from an unemployment rate more than double (14.6 per cent This is not to say there haven’t been extraordinary vs 6.3) the national average. Their individual and collective successes of First Nations educational outcomes lag far behind and Aboriginal people. There have been, which makes their those of other Canadians. Only 40 success all the more remarkable considering the historical, per cent of young adults living on reserves have completed a high school social, economic and systemic barriers they have faced. education. The completion rate climbs to 70 per cent for off-reserve First Nation students, compared to a Canada-wide completion rate of 88 The horrific consequences of a pub- Despite annual funding from the fed- per cent. Only 8.7 per cent of First Na- lic policy that destroyed generations eral government of $6.8 billion in tions Canadians have a post-second- of First Nation families by stripping 2014-15—almost $6.7 billion flowing ary degree, compared to 26 per cent them of their dignity and identity - as grants and contributions—the liv- for the rest of the population. With with the consequences still evident ing conditions for many First Nations education more critical than ever in today—should haunt Canadians. It people remain bleak. amounted to what Supreme Court today’s economy, the outcome is pre- Justice Beverley McLachlin, as well The causes of this reality are docu- dictable. In far too many cases, First as Truth and Reconciliation Com- mented and deeply rooted in our na- Nations people face a life of grinding missioner Justice Murray Sinclair tion’s history. They reach back to the poverty. It’s a truth reflected in other and others have explicitly termed first contact between First Nations ways, not the least of which being “cultural genocide.” people and European settlers. From the that First Nations and aboriginal peo- signing of treaties or encroachment ple account for more than 23 per cent without treaty, colonization through of people in custody in federal insti- It is abundantly the creation of reserves, attempts to tutions, a number that has grown 43 obvious that public assimilate and ultimately eradicate ab- per cent in the last five years. policy has failed not only original culture and history through residential schools, we all see the re- This is not to say there haven’t been First Nations and aboriginal sult. It is played out now as First Na- extraordinary individual and collec- people, but by extension tions struggle to break free from that tive successes of First Nations and Canadian society at large. history by asserting their treaty rights Aboriginal people. There have been, and establish the mechanisms for sus- which makes their success all the tainable self-government. more remarkable considering the historical, social, economic and system- ll that we know. The challenge ic barriers they have faced. This intrusion on the Canadian con- is to find a path forward that science has happened too with the finally begins to change what s you might expect, this all A growing national focus on missing is a stain on the Canadian conscience. translates into dreadful social and murdered aboriginal women. A outcomes that are visible Even more compelling are recurring A good starting point would be to ac- across Canada. Unfortunately, often cases of child poverty, neglect and cept collective responsibility. There the worst results are most evident in the failure of social service agencies is plenty of blame to go around. rural and remote First Nations and to adequately protect children that That is not to suggest all the public aboriginal communities, where pov- come into their care. In Saskatch- policies applied through the decades erty, social dysfunction and a lack of ewan, the province’s Children’s Ad- were done with malicious intent. opportunity can be a part of daily life. vocate Bob Pringle has chronicled in Certainly in some cases they were, The vast majority of Canadians are ei- heart-wrenching terms the suffering as documented by University of Re- ther not exposed to that reality, or if and death of children, many of them gina historian James Daschuk. In his they are aware of it, can keep it out of aboriginal ancestry, in the care of award-winning book “Clearing the of mind because they don’t witness it an over-burdened child welfare sys- Plains” Daschuk describes the “poli- on a regular basis. tem. The most recent was the death tics of starvation” that were used as of a six-year-old boy at the hands of a state-sponsored weapon against the Every so often, though, the reality of a 10-year-old. In Canada, the aborigi- Plains First Nations. But many other life for many First Nations and ab- nal youth suicide rate is six times the decisions were taken based on what original people intrudes on the con- rate for non-aboriginal youth. people thought were appropriate at science of Canadians. But never has the time, however misguided and ill- the emotional impact been greater It is abundantly obvious that public conceived they might appear now. than with release of the summary re- policy has failed not only First Na- port of the Truth and Reconciliation tions and aboriginal people, but by But before a new path can be set, there Commission into residential schools. extension Canadian society at large. needs to be strong and clear-minded

July/August 2015 30 leadership. That means a willingness sembly of First Nations, there’s an is one example of a possible model to admit failure by all involved and a opportunity to reset the relationship. for a path forward. There’s no doubt commitment to not repeat the mis- A cornerstone of Bellegarde’s agenda that successful reform of First Nations takes of the past. is the recognition of treaty rights as education will be costly. But as the the foundation for building a new re- The foundation for effective public bumper sticker says: “If you think ed- lationship between First Nations and policy is public credibility. Credibil- ucation is expensive, try ignorance.” non-aboriginal Canadians. He talks ity is based on trust, and trust begins about the creation of an independent with a belief that all those engaged Treaty Commissioner as an arbiter to nother critical dimension of in the issue are willing to admit their ensure historic and legal obligations the answer is real and sustain- mistakes, take their share of respon- are met. Bellegarde also points to the able economic development. sibility for past failures, learn from A “fiscal gap” that separates First Na- First Nations need access to their them, and demonstrate a willingness tions people from other Canadians. own-source revenues that come from to work collaboratively to tackle what It becomes evident in child poverty investment and entrepreneurship, are daunting challenges. Apportion- rates in First Nations communities or potentially sharing of natural re- ing responsibility for the state of First almost double the national average, source revenues. As Chief Clarence Nations and aboriginal Canadians is always a delicate subject. But recon- where First Nations children receive Louie of the Osoyoos, B.C. First Na- ciliation requires it. 22 per cent less funding for child tion says, the most important thing welfare services than other Canadian First Nations people need is jobs. The guilt and responsibility must be children. “We are caught in a system Without employment, there is little shouldered by non-aboriginal society that has First Nations administering hope. “Every child should wake up and governments. The loss of land, our own poverty,” Bellegarde says. with one parent going to work. A culture, language, way of life and working parent is the first role model identity, as part of being a colonized Before a new path we need,” says Louie. people, has led to today’s reality for can be set, there many First Nations people and com- needs to be strong and clear- These are all worthy and urgent poli- munities. There have been some ef- cy objectives. But the first step down forts to admit mistakes and accept re- minded leadership. That the road to real progress and mean- sponsibility. Chief among them has means a willingness to admit ingful change begins with the admis- been the Truth and Reconciliation failure by all involved and a sion of past failures. The time has Commission itself and $1.6 billion come to accept collective responsibil- in financial compensation that was commitment to not repeat the mistakes of the past. ity for the missteps of past leadership offered to survivors of the residential that have bequeathed our country school system. such a sad legacy. But as part of reconciliation contem- Canadians, both non-aboriginal porary First Nations and aboriginal and aboriginal, need to hear that leaders need to recognize their own Clearly, addressing the fiscal gap is from their leaders. Until they do, challenges. With many First Nations part of the answer, but only part. lacking any serious economic base, A new way forward must tackle the there won’t be the necessary good many are effectively welfare com- need to improve educational out- will and public pressure to finally munities. In some cases, the result comes for First Nations. Until First overcome the grim past and hope- is grossly unequal distribution of Nations students can access the same less present of so many of our citi- wealth, with chiefs and members of quality of education as non-aborigi- zens. Now is the time for good will band councils using their positions to nal students, real, transformational to emerge on all sides and with it a allocate financial resources to them- change will not occur. The collapse focus on public policy that actually, selves and others they designate. This last year of the federal government’s finally, makes a difference. type of behaviour is far from unique attempt to reform First Nations edu- to First Nations, but is more visible cation dealt a damaging blow to re- Dale Eisler is Senior Policy Fellow at the because of the lack of economic op- lations with First Nations. But rather Johnson Shoyama Graduate School of portunity so many face. Indeed, the than inhibit further attempts at on- Public Policy, University of Regina. He Idle No More movement was at least reserve education reform, it should is a former consul-general of Canada partly driven by grassroots discontent serve as a catalyst for both sides to in Denver, Colorado, and a former with existing First Nations leadership. redouble efforts. Former Prime Min- assistant secretary to the Cabinet for ister Paul Martin’s Aboriginal Edu- communications in the Privy Council ith the election of Perry cational Initiative, which focuses on Office. A former political columnist in Bellegarde as the new Na- giving First Nations and aboriginal Saskatchewan, he is also the author of W tional Chief of the As- kids a chance at a quality education, three books. [email protected]

Policy 31

Guest Column/Ed Clark Making Government Work

ing rates of female participation in to look at all our institutions, public the work force fed a period of ex- and private, to see how we can lever- traordinary growth. Politicians in all age two of Canada’s advantages—we parties had the resources to embrace know how to co-operate and we’re the same mission statement: find a not ideological—to build the kind of problem to fix and make the world a knowledge-based clusters necessary to better place. A lot of good came from compete in the 21st century. this period, including Medicare and Old Age Security. n my volunteer capacity with the Ontario government as well as overnment matters. Political ut governments face harder I the city of Toronto, I have the op- leadership matters. And the choices in this Age of Auster- portunity to work closely with officials G civil service matters. B ity. Not just managing in a at both the provincial and municipal world of scarcity, but also dealing levels. I can tell you we’re fortunate to Together, they not only help create with forces that can make society less have political leaders who value their a society that makes us proud, but fair. The combination of technologi- civil servants as advisers and opera- also an environment that supports cal change and globalization exacer- tors. And we have civil servants who an economy strong enough to allow bates income and wealth inequality, are, themselves, smart, dedicated and us afford it. and decreases social mobility. enormously hard working. Public health care is an obvious ex- Today there’s a growing divide be- This bodes well for all of us. It gives ample. Embedded with the Cana- tween what governments can afford us flexible and dynamic government, dian values of fairness and equality, to do, and what they have promised willing to change when the world it contributes to a standard of living to do. And because our population around us does. and quality of life envied around the has a limited willingness to tax them- world. In concert with our public edu- But the onus isn’t all on the civil selves, we need to take a hard look at cation system, it ensures social mobil- service. People in the business com- the kind of government we want and ity and better economic performance. munity must recognize the role and can afford. How can we adapt to the contribution of government, and However today’s public sector faces a times, promoting economic growth those who manage it. They must sup- huge paradox: driven in part by our and preserving social cohesion for port the discussions and decisions aging population, demand for govern- generations to come? required for our society to keep pace ment services is growing rapidly. But This challenge places a big responsi- with an increasingly complex world. a shrinking labour pool and slowing bility on our civil servants. They’re And they must lend a hand, sharing domestic economy are putting down- expected to do more with less; to their own expertise to make better ward pressure on its revenue streams think of innovative solutions; to re- ideas a reality. and constraining its ability to act. engineer the delivery of government Ed Clark is the former president and If we want to preserve the programs services; to manage change. They CEO of the TD Bank Group. In 2014, he that matter most to us, we must be have to think boldly, but remain was named one of the Top 50 Performing prepared to jettison ideology, deal firmly focused on what’s genuinely CEOs in the World by the Harvard with the real issues and pursue solu- doable. Guided by evidence and in Business Review. At his retirement in tions that work in the modern world. pursuit of the best solutions, they November of last year, he was by named need to stand up to political pressure Many of us grew up in a different by Ontario Premier Kathleen Wynne to and constantly ask: “what if”, “why world. Back in the 1960s and 1970s, oversee a task force on Ontario Power not”, and “is that actually possible?” productivity gains, the recovery in Generation, Hydro One and the Liquor Europe, the baby boom and grow- In short, we need a civil service willing Control Board of Ontario.

July/August 2015 32

Verbatim/Michael Sabia Thinking Differently

The job of government was defined The good news? There’s lots of cre- in terms of its “efficiency.” And the ative thinking coming from leaders— emphasis placed on the minimal especially at the local level. Case in “must do” instead of the aspirational point: Medellin, Colombia. In 1992, “can be”. one of the most dangerous cities in Of course governments have to dem- the world. Today? One of the world’s onstrate good stewardship of public most innovative—in its architecture, resources. But if all they do is count its transportation systems, schools change, it limits their ability to effect and libraries. change. Or here in Canada. The Winnipeg hat sets people apart as The fact is when big problems arise — Boldness Project. A neighbourhood- leaders, in government whether it’s a financial crisis like 2008 based, early childhood development W and the private sector? or a tragedy like Lac Megantic —peo- initiative. Government, non-profit ple’s first instinct is to look to govern- foundations and aboriginal leaders They all think differently about what ment for a solution. they do. They question. They innovate. coming together to address a complex Yet opinion researchers tell us that social issue. One child at a time. Why does it matter? Because of the people are increasingly disappointed There are other examples. The creativ- world in which we live, and the na- with our collective response to the ture of the challenges we face: A world ity driving Boston’s Office of New Ur- issues that matter most—income in- ban Mechanics. The mission of New in which innovation and creative equality, health care for the aged, destruction are the norms—and mo- York’s Innovation Delivery Fellows to climate change. They’re withdrawing execute new ideas. tors—of our times. A world where from public affairs and wondering if technology and the sheer volume of we still have the ability to tackle big Yes, all small steps. But, they’re a start. data are setting a pace of change un- challenges. To do big things. like anything we’ve seen before. In today’s world, progress comes in- And that’s important. crementally. Step by step, sometimes Innovations that destroy businesses as one step back. Until you make a Because big, pan-societal issues like cli- fast as they create new ones. Think of breakthrough. And then another. No 3-D printing. Truly revolutionary—af- mate change are not going to yield to individual effort. There are no apps for silver bullets. No more once-and-for- fecting everything from the manufac- all solutions. ture of airplane engines to the future those. We still need institutions that of regenerative medicine. can bring together ideas and organize Fortunately, young leaders are really responses big enough—and compre- good at this. They’re used to working In this world, the only way to harness hensive enough—to make a difference. collaboratively. Interactively. Itera- change—the only way to lead—is to tively. Across networks. Tackling prob- think differently. lems through an open source world. That applies as much in government o what to do? S Governments need to catch up. We as it does in business or anywhere Well the answer is not to turn the need them to operate differently. To else. But here’s the paradox. At a time clock back to a time when govern- put a priority on imagination, inven- when creativity is relentlessly driving ment thought it could solve a prob- change in so much of our world, many tion, and innovation. lem unilaterally. It’s not about bigger would limit government to managing government versus smaller govern- And it starts by thinking their way through rather than work- ment. It’s about different government. differently. ing with others to solve problems. One that moves away from a manag- Michael Sabia is President and CEO t started in the 1980’s and 1990’s, er’s obsession with doing things bet- of the Caisse de dépot et placement du when we decided governments ter to a leader’s focus on doing better Québec. He is a former CEO of BCE, I needed to become “more like things. Like fostering innovation. Be- and a former senior federal official in businesses”, adopting the metrics— ing open to new ideas. Encouraging the Privy Council Office. Adapted from and vocabulary—of corporations. Cit- experimentation. Rewarding risk-tak- his address as an honouree at the Public izens became “clients”. Compliance ing. And, frankly, accepting failure as Policy Forum annual dinner in Toronto replaced creativity. a condition precedent to success. on April 16.

Policy 33

Premier Rachel Notley at the swearing-in of her cabinet on the steps of the Alberta Legislature on May 24. A new day for Alberta. Flickr photo, Connor Mah Alberta After the Political Earthquake Robin V. Sears

On May 5, Alberta voters decisively swung the province n an era when polls as election pre- from the predictable outcomes of more than four decades dictors are less reliable than weath- I er forecasts, Rachel Notley and her of Conservative rule to a stunning New Democratic vic- team were wise to resist even private tory. Losing the election wasn’t easy for Jim Prentice and predictions of election victory. After governing won’t be easy for Rachel Notley. But, as vet- all, many public polls had the last two Alberta election results badly wrong. eran NDP strategist and policy sage Robin Sears writes, Her senior communications guru, Brian the Notley premiership is poised to shake things up in Topp, had watched in horror as British Alberta and beyond. Columbia voters made fools of the pollsters in that province in 2014.

July/August 2015 34 Still, they could be forgiven the small private smiles they permitted each other on the ﬁnal weekend, as one poll after another made unanimous the consensus that devastation was ahead for the oldest one-party government in any developed democracy in the G7.

It is already hard to remember the sense of inevitability that surrounded the Prentice government’s future success only months ago. The new premier had landed in the midst of the mess created by the implosion of the Alison Redford government. He came with apparent confidence, vision and a clear game plan. He imported sea- Conservative Leader Jim Prentice and NDP Leader Rachel Notley at the leaders’ debate which soned players from Ottawa and else- produced a defining sound bite when Prentice told her: “I know math is difficult.” PC Alberta where to help rebuild and renew the Facebook photo wheezing 44 year-old Alberta Conser- vative regime. Sadly, Prentice failed this test as well, When Smith and eight of her Wil- saying that not only was he expert on drose colleagues “took the Queen’s But he and his advisers forgot one es- the mistakes that had lead Alberta to shilling”—just weeks after they had sential truth: Canadian voters only its current sad state, but it was not his been passionately excoriating the Al- return governments that old with fault, it was…yours. His “look in the berta Conservatives in a series of bye- some frustration, and only when two mirror” line in March was a stunning lections—the province collectively things are true—the alternatives are example of someone who had been gasped at the effrontery of both the hopeless, and the old guys demon- away from the hard discipline of poli- turncoats and their new patron. strate that have the ability to deliver tics and campaigning for too long. a new vision. Rachel Notley was im- hen there was a budget that mediately obvious as a very serious had been teased for weeks as challenger and the Prentice vision There is another being tough on spending and got old quickly. The Alberta Tories T axiom political likely to require some hard choices. saw a nasty fall and winter ahead as veterans are fond of: “When Instead, it offered $7 billion in deficit oil and commodity prices tanked and the wheels begin to fall off, spending despite new fees and taxes, then decided prudence dictated they and little coherent messaging about get a new mandate before the roof fell they all fall off, one after how the government would dig it- in on the economy. Seasoned pundits another.” The Prentice self out of the deepening oil revenue muttered approvingly of the strategic juggernaut’s wheels began hole. It was dead on arrival. wisdom of a spring election. to get wobbly early on, but A friend and worried adviser of the There is another axiom political vet- it was not obvious until premier’s, reflecting on these mis- erans are fond of: “When the wheels steps on the eve of the election call, begin to fall off, they all fall off, one much later. asked gently if Prentice felt that his after another.” The Prentice jugger- “skates were sharp enough” for the naut’s wheels began to get wobbly tough game ahead. It was a prescient early on, but it was not obvious until Two strategic blunders of magnifi- caution. It was seven years since much later. A new leader of an aging cent scale put paid to a smooth path Prentice had fought an election. He party in power always needs to per- had rarely fought a competitive cam- form a very delicate piece of political to re-election. The first was the sleazy paign in his life. His friend was of an jujitsu—he must signal that they are game of wholesale floor crossing he age to recall John Turner’s shooting new, and the past is past, without engineered with Wildrose Leader star return to politics and saw some appearing to trash the ancien regime. Danielle Smith last December and of the same rusty performance risks. However enthusiastic your core activ- the second was a bizarrely tone-deaf ists are about you and your promise budget in late March completely at The TV debate was proof of the ad- of renewal, they resent suggestions variance with the pre-budget signals viser’s wisdom. that they were dummies to have been he had been carefully seeding weeks supporters of the previous gang. in advance. Harried and verbally outpointed by

Policy 35 Notley almost from the opening min- Notley has another asset that is almost unheard of ute, in response to his opponent’s attack on his tax revenue claims Prentice in Canadian politics: She owes no one anything. said with clear exasperation, “I know This is her victory; not the party’s, not the labour math is difficult….” It was a John movement’s, not local party organizers. Turner moment: patronizing, sexist and proof of serious political rust. To make matters worse, Prentice was fac- tually—and mathematically—wrong. Unless international oil markets rise understand that they will need to do The poll numbers began to swing dramatically, it will be a grim Year more with less. heavily against the Conservatives One ahead for Alberta and the new and their response got increasingly government. This is not a challenge However, the new government has erratic and vicious. A ham-fisted at- that New Democrats have not faced several very powerful assets. First tempt to scare Alberta voters with before. With the exception of the Rae is the reservoir of good will, one of horror stories from other Canadians’ government in Ontario, their record unusual depth, even for a massively experience of NDP governments blew of facing bad times coolly and with elected new government. Alberta vot- up in the Tories’ faces when the Or- discipline is pretty good. Tommy ers in every community, every social ange team’s war room deluged social Douglas turned Saskatchewan back class and generation voted for Rachel media with happy memories of New from bankruptcy, Roy Romanow had Notley. They remain deeply angry at Democrat achievements from several almost as bad a deficit mess handed to the Tory legacy and they want her to provinces. Election night was one of him on election night and performed succeed. They are keenly aware of the those defeats that looked inevitable with similar discipline—with Brian economic challenges ahead and want by the morning after, but was none- Topp at his side, as he is at Notley’s confident, optimistic leadership to theless stunning on the night. now as head of the premier’s office— plot the path back to happier times. but not without serious political pain But as every politician discovers otley has inherited a some- along the way. sooner than they can imagine, politi- what poisoned political cal honeymoons are always short and chalice. If oil prices were still The heart of the wickedly challeng- often end abruptly. N ing balancing act a government must happily at $100 heights, she would Notley has another asset that is al- have still have faced the legacy of perform when its revenues are slid- most unheard of in Canadian poli- decades of fudged and avoided prob- ing and the weak economy is push- tics: She owes no one anything. This lems. Alberta has Canada’s most cen- ing up social costs at the same time is how much to cut without pushing is her victory; not the party’s, not the tralized, rigid and expensive health the economy down even faster. Bor- labour movement’s, not local party system. It has a school and univer- rowing heavily and pushing stimulus organizers. Yes, courtesy and conven- sity sector whose budgets have grown spending to put a brake on the decline tion require that she never say that. faster for longer than any in Canada. is a huge gamble. The Harper govern- Publicly the victory must be a collec- Despite efforts in the good years to ment was lucky in its stimulus spend- tive achievement. diversify, its economy remains criti- ing gamble, as revenues climbed back cally dependent on oil and gas rev- quickly. The Rae government was Her government’s launch was flawless enues, which account for more than clobbered when theirs didn’t. —a celebratory picnic introducing a 22 per cent of provincial GDP. small, 12-member cabinet. She is im- An additional challenge for the Not- porting real talent from everywhere The Notley government has, how- ley team is that you would need to in the province and across Canada to ever, been granted responsibility for be nearing retirement age to remem- beef up the ranks of the bureaucracy the public fisc at a time when oil ber the last time—more than 30 years and ministers’ offices. Her sunny and gas revenues will have fallen by ago—that the Alberta economy had style has wrong-footed the few pro- nearly half in a matter of months. to struggle with a similar sideswipe vincial business and political leaders Notley came to power on a political by global energy prices. foolish enough to grumble publicly tidal wave. Sadly for her young and about the new government’s plans. green young cabinet colleagues, they If your whole life experience is that arrived after an economic tidal wave this year will outperform the last one, Her role beyond Alberta will get very had wrecked the provincial economy. the dramatic shift to managing de- big very quickly, however, even as As that economic tide continues to cline can be paralyzing. It will take she struggles to get a grip on manag- recede, it will reveal to just what de- very adroit political management ing Canada’s third largest provincial gree infrastructure was poorly man- to help Alberta’s hospital managers, economy. In July, the premiers are aged in the good years. school boards and municipal leaders committed to delivering on a prom-

July/August 2015 36 ised national energy strategy. Alberta government, let alone one on a steep Alberta voters saw and were clearly will be a crucial hinge vote in how learning curve about how to govern, taken by the compelling smile and a far they collectively go on climate struggling to shore up a flailing econ- sunny confidence Notley brings to ev- change, carbon pricing, and national omy, and joining a set of discussions ery stage. It’s an optimism grown out co-operation. That decision, and the when their partners are already well of beating adversity, not out of vanity; sales efforts the premiers will collec- on their way to decision. out of a lifetime of meeting and over- tively make to defend it against Ot- coming challenges, not innocence. tawa’s very different vision will also But it would be unwise to bet against feature the new Alberta premier. this improbable Alberta premier. As leaders similarly endowed—Tom- Within weeks after that will come the She has had an excellent formation my Douglas, Ronald Reagan, Peter federal election, during which New for the role—the daughter of Alber- Lougheed—knew well, that kind of Democrats federally will look to their ta’s pioneering NDP leader, Grant serenity grounded in the confidence new star for support as they launch Notley, whom she watched battle the of tough life experience will help get odds for years to establish his place their first serious attempt at winning you through many a political storm, in the province’s history. The child nationally. and can serve as the foundation of a of a strong, socially, politically and long and successful career. And again, with a break of only weeks, intellectually confident mom, Notley Alberta will need to decide what role was immersed in the political debates Contributing Writer Robin V. Sears, to play in the Paris meetings of world and social currents swirling across Al- a principal of the Earnscliffe Strategy leaders seeking a consensus on climate berta as a young girl. A lawyer with change. She and her fellow premiers a strong reputation as a negotiator Group in Ottawa, is a former national may be accompanying a new Cana- and experience in government as a director of the NDP during the Broadbent dian prime minister, himself with young official in B.C., her career has years, and later served as chief of staff to only weeks on the job. It is a mind prepped her well for the challenges of Ontario Premier Bob Rae. boggling set of cross-pressures for any political leadership. [email protected]

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Policy 37

British Prime Minister David Cameron outside 10 Downing Street following his majority victory in the May 7 election. The Prime Minister’s Ofﬁce, Flickr photo To Succeed in His Second Term, Cameron Must Solve Two Big Problems: Europe and Scotland Andrew MacDougall

In the 1972 campaign classic, “The Candidate”, Robert he passage of time has done lit- Redford’s unexpectedly victorious senatorial candidate tle to dampen the shock of the T United Kingdom’s May 7 elec- asks his campaign manager the perfect post-upset question result. Despite months of polling tion: “What do we do now?” It’s a moment more reso- predicting a hung Parliament and at- nant with ﬁrst-time candidates than incumbents, but it tendant political and market instability, the people of the United Kingdom may well have been on David Cameron’s mind on May instead returned Prime Minister Da- 8. After his stunning upset, Cameron now faces loom- vid Cameron to Number 10 Downing ing existential crises over Scotland’s future in the United Street to helm a majority Conservative government. Kingdom and Britain’s future in the European Union. From London, political veteran Andrew MacDougall of- Armed with his majority, Cameron now has the luxury of ignoring his political fers some potential answers. opponents; if he keeps his side united he will control the legislative agenda. To succeed in his second term, howev-

July/August 2015 38 er, David Cameron must do a much better job of managing a backbench No matter the final shape of Scotland’s deal, it is he has, to date, largely ignored. clear Britain will eventually need to have an adult conversation about finding a new, more equitable With his opposition either facing leadership or internal strife, Cameron constitutional arrangement. is reaching out to cement his position both within his party and the country. To wit, the engine of government is already in gear: a new cabinet has land’s deal, it is clear Britain will While the so-called “four freedoms” been appointed and a Queen’s speech eventually need to have an adult —the free movement of persons, outlining the government’s agenda conversation about finding a new, goods, services, and capital—won’t has been delivered. more equitable constitutional ar- be up for negotiation, there is room Cameron has returned key figures rangement. In post-election remarks for movement on other fronts. Cam- to marquee posts to implement his Cameron said his plans are to “create eron knows he won’t be able to pla- agenda: George Osborne remains the strongest devolved government cate the hard-line group of 60 or so of Chancellor of the Exchequer; Theresa anywhere.” He’ll have a long way to his MPs that want out of Europe no May remains Home Secretary; Philip go to match jurisdictions like Can- matter what; his task will be to put Hammond will again handle foreign ada, however, where the provinces something substantive on the table affairs; and Michael Fallon retains have control over taxation, health, for the remaining 270 in order to try his post as Defence Secretary. There education, and the implementation to claim victory. is also continuity in other key de- of justice. partments: Jeremy Hunt once again If Cameron has his leads at health; Iain Duncan Smith Cameron won’t, however, want to get bogged down in extended con- way, he will secure at the Department of Work and Pen- his deal with Europe as soon sions; and Nicky Morgan returns to stitutional wrangling at home; he’s Education. got treaty change with Europe on his as possible. The longer the agenda and the result here will frame process drags out, the more Now that he has his team, Cameron his legacy as prime minister. must now get on with business. Hav- his hold over his caucus ing ruled out a third run for prime Thanks to the rise of the UK Indepen- weakens, and the more minister, he must deliver key mani- dence Party, the prime minister must impact it has on his overall festo policies before succession talk attempt to lance the Eurosceptic boil program. overtakes his final term. that sits on the body politic of the United Kingdom. Cameron hopes The government knows that the el- that, by offering and winning a refer- ephantine questions of Scotland endum, he can remove the European and Europe could soon be squashing question from the British political whatever long-term legislative agen- agenda for years to come. The shape of the ensuing deal is da it has planned. widely presumed to be immediate The war will unfold over two battles: concessions on issues like migrant Cameron moved quickly to turn the referendum itself; and the pre- benefits, with eventual, albeit ill- last year’s Scottish referendum vic- ceding negotiation to secure “a better defined, treaty change at some un- tory into a plan to temper Scottish deal” from Europe. specified future moment. nationalism by offering English MPs English votes for English laws. While The main challenge in this ere, the unexpected majority pas de deux immensely popular with his party, it will be to keep the entire negotiation election result has greatly appeared to put party before country. from looking like a stich-up. The re- strengthened Cameron’s H bellious Conservative backbench hand. Even with a slim majority he espite Scotland sending 56 knows it isn’t likely to get significant holds a stronger position than he Scottish National Party MPs European treaty change, but it will would with a coalition partner at this to Westminster, the Caledo- need to feel that its interests are be- D side. Every single Tory ran on a mani- nian contingent will exert little or no ing pursued with maximum sincerity festo pledge to offer the British peo- influence on the formal parliamen- and vigour by the government. ple a choice on Europe. As a result, tary agenda. The SNP will get the de- every single European leader knows If Cameron has his way, he will se- volution measures proposed by Lord that a reckoning is coming and that cure his deal with Europe as soon Smith’s Commission, and no more. it is in their interest to sweeten Cam- as possible. The longer the process No matter the final shape of Scot- eron’s pot ahead of a vote. drags out, the more his hold over his

Policy 39 a weak Miliband in hock to the big- spending Scottish nationalists. This attack neatly piled on voters’ pre- existing views of Miliband as a neb- bishy wonk who was unprepared for the hard choices of government.

The external polls might not have caught the swing in key marginal seats, but Conservative campaign guru Lynton Crosby’s internal polling did. While Labour continued to talk about their much vaunted target seat strategy, the Conservatives went ahead and executed theirs to perfection.

The reward? A troubled United Kingdom.

Nothing derails a political agenda Prime Minister Cameron meets with French President François Hollande at the Élysée in Paris, like an existential crisis. The prime as part of a post-election tour of four European capitals to launch his EU re-negotiation talks. Flickr photo minister faces two—Europe and Scot- land—in this, his second term. They caucus weakens, and the more im- Scotland and gave David Cameron a will be the fight of Cameron’s politi- pact it has on his overall program. powerful talking point at the door- cal life and will define his legacy. But He has promised a referendum by steps of middle England. they will hardly be his only battles. the end of 2017 but would greatly Britain’s finances remain in a parlous prefer to hold it in 2016. So, it turns From the moment it became clear state. A lack of productivity threatens out, would Bank of England Gov- Miliband and Labour couldn’t gov- the long-term recovery of the econo- ernor Mark Carney, the Canadian ern without an SNP assist, Cameron my. The armed forces are threadbare. whose job of calibrating British mon- had his route back to 10 Downing. Syria is in flames and ISIS’ terror is etary policy is made infinitely hard- For the last two weeks of the cam- spreading ever wider. Vladimir Pu- er thanks to the political instability paign a dedicated team of Tory vol- tin’s revanchism shows no signs of caused by haggling over Europe. unteers took to the streets of target seats and pounded the SNP nail into abating. Greece could yet send the And if he gets it wrong, Cameron Labour’s coffin. European Union down the drain. will forever be the leader who sleep- And then there are the usual nagging walked Britain out of Europe. He will scandals of government: misspend- curse the day he won the election no- From the moment it ing, inept performance by ministers, one ever predicted he’d win outright. became clear and tin-pot rebellions. In addition to the Labour Party and Miliband and Labour David Cameron’s leadership will be Liberal Democrats, the other group couldn’t govern without an tested to a degree with which he is who indisputably got the election SNP assist, Cameron had his unfamiliar. He must approach Europe wrong were the pollsters. route back to 10 Downing. and Scotland with strategy, and not his usual bag of tactics. If he displays Month after month, pollsters pub- For the last two weeks of the leadership and marshals his allies he lished polling showing a dead heat campaign a dedicated team can win both fights. between Labour and the Conserva- tives. Come election night, 36.9 per of Tory volunteers took to the In so doing, he would cement his cent of Britain’s pulled the lever for streets of target seats and place in history and leave the Con- Cameron, versus 30.4 per cent for La- pounded the SNP nail into servatives as the dominant party in a bour Leader Ed Miliband. Labour’s coffin. United Kingdom. Contributing Writer Andrew MacDougall, former director of hat happened? In a word: communications for Prime Minister Scotland. W Harper, is a senior executive consultant Here, the Scottish Sgian Dubh cut two The Conservative campaign was ab- at MSLGROUP in London, England. ways: it took away 40 Labour seats in solutely ruthless in its portrayal of [email protected]

July/August 2015 40 of the same factors observed in many In Camera: highway vehicle accidents. t is easy to understand how recorded information would be of Why Locomotive Cabs I great value to investigators after an accident has occurred. Consider the importance of the cockpit voice- Need Video and Voice recorder information to an aviation accident investigation (or indeed, to reflect on the recent Amtrak derail- Recorders ment in Philadelphia, in a situation where the locomotive engineer him- Michael Bourque self can’t recall the events leading up to his fatal over-speed operation of a train). Canadians, like citizens the world over, have grown grim- Both the TSB, and its US counterpart, the National Transportation Safety ly familiar with the incalculable value of cockpit voice Board (NTSB), have issued recom- recordings to determining the causes of airline disasters. mendations calling for railways to Canadian railways are united in wanting to install simi- use LVVR technology, for both inves- tigative and preventative purposes. lar technologies in locomotive cabs. The government of Canada says the technology needs more study. The Rail- There is no doubt that this technology will assist investigators when way Association of Canada says, “What’s to study?” human factors have played a role in an accident. And there have been many: Chatsworth, Calif. (2008—25 fatalities); Burlington, Ont. (2012— 3 fatalities); the Bronx, N.Y. (2013— 4 fatalities); Philadelphia, Pa. (2015— or more than two years, Cana- and Canadian Pacific, are moving 8 fatalities); to name a few. More im- da’s railways have been advo- ahead, working with their employ- portantly, the very presence and use cating for the right to use a F ees and unions to address privacy of this technology, as part of govern- proven technology to prevent acci- concerns. Indeed, the latest railroad ment-mandated railway safety man- dents. Not only will this technology to announce that it will employ the agement systems, would help prevent improve our understanding of ac- technology is Amtrak, following the accidents from occurring. cidents after they occur—it will save recent fatal Philadelphia derailment. lives by helping to prevent them in Some critics have questioned how the first place. Locomotive video And in Canada? We’re “studying it,” this could be. First, LVVR would al- and voice recording (LVVR) systems under the joint direction of the Trans- low for immediate review of inci- can be installed in locomotive cabs, portation Safety Board of Canada dents such as emergency brake ap- so that railways can identify and (TSB) and Transport Canada. Which plications, speeding and passed stop eliminate factors that contribute to leaves Canada’s rail industry asking: signals, all of which can now be accidents. But under the current Ca- “What’s left to study?” observed in real time by other loco- nadian Transportation Accident Inves- motive and wayside systems. LVVR According to the TSB, “A number of tigation and Safety Board Act, railways would also act as an additional layer railway accident investigations in are not permitted to use this technol- of audit and testing, as required un- North America have led to findings, ogy for safety management purposes, der each company’s mandatory safe- recommendations and other safety even though they are required by law ty management system. By their very communications that have identified to have safety management systems. presence, these systems would also human factors as an underlying safety discourage unauthorized activities LVVR systems are proven and avail- issue.” Often, the human behaviours that distract the crew members’ at- able now, and Canadian railways are and interactions at issue in accidents tention from their duties, such as the ready to install and maintain them at are those that occur in the operating use of cell phones or other personal their own expense. So—why are we cab of the train’s locomotive. Exam- electronic devices. They could also be not implementing this safety enhanc- ples include distraction, speeding or linked to new technologies to help ing technology? In the US, many rail- other unauthorized operation, or fail- identify early signs of fatigue. And, fi- roads, including Canadian National ure to follow signals. These are some nally, they could be used to highlight

Policy 41 the train, listen to radio communication or review videotapes of yard operations. And LVVR is a proven technology. A recent study conducted at San José State University’s Mineta Transportation Institute followed some 20,000 transit buses equipped with audio-video equipment. The study found that the technology re- sulted in a 40 per cent reduction in collisions per million miles travelled, and a 30 per cent reduction in passenger injuries. They also reported ﬁndings of up to a 50 per cent reduction in unsafe driving events. Practically speaking,

The high-tech interior of a CN locomotive. The addition of voice and video recordings, writes the use of onboard Michael Bourque “would help railways identify and eliminate” causes of accidents. CN photo cameras is no more invasive than having a railway training, ergonomic, equipment, or within strict guidelines. Local man- supervisor ride the train, procedural gaps when systemic issues agement would not have direct access listen to radio to this information. are observed. communication or review When required by Second, when required by the TSB, a videotapes of yard regulatory agency such as Transport operations. the TSB, a regulatory Canada that is conducting an inves- agency such as Transport tigation, or a law enforcement agen- Canada that is conducting cy, the recorded information would an investigation, or a law be subject to strict chain of custody requirements. Canada’s freight and passenger rail- enforcement agency, the ways would like to install LVVR recorded information would Third, the hard disks currently avail- systems in their locomotives. But be subject to strict chain of able for use with these systems are on-board recordings are currently automatically over-written in about privileged and can only be used for custody requirements. a week. In the absence of an incident post-occurrence investigations by the or audit, the recorded information TSB. Legislative change is required in would be disposed of within a short order for railways to be able to use timeframe. this technology to prevent accidents nderstandably, railway op- and increase safety. Fourth, the review of recorded infor- erating employees and the mation would necessarily be limited. “What’s left to study?” Perhaps how groups that represent them U It would be focused on risk, or on an many accidents we’ve prevented, af- have legitimate privacy concerns incident or trend basis. One example ter we install these devices. about the use of such recorded infor- would be to focus on areas where mation. Canada’s railways are com- Let’s get on with installing this life- both freight and passenger trains op- saving, injury preventing, and envi- mitted to ensuring that recordings erate at high speed. Another would are only used by the TSB for accident ronment-protecting technology, in be to review any time an emergency keeping with the recommendations investigation, and by authorized rail- brake application is made, or where of the TSB and the NTSB. People of way personnel for legitimate safety a signal is missed. Some random au- good will can work out any privacy management purposes. As with any dits could be used to improve safety. concerns, just as we have done for lo- untried tool, the ﬁnal procedures for The idea would be to use this tech- comotive event recorders, yard cam- the use of LVVR information in Can- nology in concert with other systems eras, and forward-facing locomotive ada have yet to be written. But the to add yet another layer of safety to video. In the meantime, safety comes industry believes that certain funda- railway operations. ﬁrst, particularly when the safety of mental principles should apply. Practically speaking, the use of on- many is in the hands of a few. First, access to the information must board cameras is no more invasive Michael Bourque is President and CEO be tightly controlled and only used than having a railway supervisor ride of the Railway Association of Canada.

July/August 2015 PDF/X-1a:2003

En choisissant VIA Rail pour vos voyages d’affaires, vous aidez le gouvernement à réduire ses dépenses et permettez aux contribuables d’économiser. De plus, vous maximisez votre productivité. N’attendez plus, partez en train dès aujourd’hui !

Route Nombre de Distance Temps Temps Coût du voyage Coût du voyage Économies pour départs par jour productif non productif en voiture** en train (à partir le contribuable en train en voiture* de seulement) (voyage en train)***

Ottawa Toronto Jusqu’à 16 450 km 3 h 52 min 4 h 34 min 467 $ 44 $1 423 $

Ottawa Montréal Jusqu’à 12 198 km 1 h 47 min 2 h 27 min 227 $ 33 $1 194 $

Ottawa Québec 2 482 km 5 h 23 min 4 h 39 min 488 $ 55 $1 433 $

Toronto Montréal Jusqu’à 17 541 km 4 h 42 min 5 h 30 min 562 $ 44 $1 518 $

1 Les employés du gouvernement du Canada profitent d’un rabais de 10 % sur les meilleurs tarifs pour tous les trains et classes de VIA Rail Canada. Valable si vous voyagez par affaires ou pour le plaisir. Des conditions s’appliquent. Pour plus de renseignements, communiquez avec les services de TPSGC.

* 30 minutes ont été ajoutées au temps total du voyage en voiture afin d’inclure les retards dus au trafic et au mauvais temps. ** Le coût du voyage en voiture est calculé selon la formule suivante : (Taux de 0,55 $/km établi par le Conseil du trésor pour l’Ontario pour une voiture conduite par un représentant du gouvernement X distance parcourue) = coût en $ du voyage en voiture + (taux horaire moyen d’un employé gouvernemental de 48 $/h selon un salaire de 100 000 $ par année, y compris les avantages sociaux X durée du voyage) = coût total en $ pour le contribuable. *** L’économie réalisée par le contribuable en voyageant en train est calculée selon la formule suivante : Coût du voyage en voiture – coût du voyage en train = économies pour le contribuable.

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