Former top bureaucrat calls for major overhaul of the federal government

Wernick is likely the clerk with the most active public role in contributing to debate and discussion regarding government and the need for serious public sector reform. But getting political backing for such reform, given lengthy and contentious discussions with no political benefits within a normal mandate, is virtually impossible.

Those of us who remember the Universal Classification System (UCS) in the 90s will remember the extensive job description rewrites and related efforts, and its abandonment given its unworkability and likely political questioning.

This excerpt focusses on the large number of executives and related levels (of note, the percentage of EX of total public servants has not increased as dramatically as stated in the article: from 2.6 percent in 2008 to 3.0 percent in 2023, and largely flat under the Liberal government):

…Another issue is the expanding number of executives, which has outpaced the growth of the unionized workforce over the last 15 years. There are now over 9,000 executives across five levels, with about 80 deputy ministers above them, ranked by four levels. 

Over time, the executive layer has become thicker with the proliferation of new “half-step” positions, such as senior and associate assistant deputy ministers—a pattern seen across other executive levels, as well. 

This thickening of the executive ranks raises significant questions. Are these appointments narrowing the scope and responsibility of executive roles, or are they necessary due to the increased pace and volume of work? 

Some argue that the proliferation of these positions contributes to high turnover, with many not staying in jobs long enough to learn the ropes, or be accountable for decisions under their watch.  

Additionally, some of the movement stems from using promotions to offer higher pay to keep or attract talent. 

As clerk, Wernick pushed to restructure the executive ranks and overhaul their compensation, but never gained political backing after the Phoenix fiasco. He suggests reducing the five executive levels to three: senior, middle, and junior. This would require a review of the need and scope of each position, potentially taking three years and offering buyouts to those displaced. 

Previously, the most discussed option was collapsing the five levels into three: merging EX-4 and EX-5, as well as EX-1 and EX-2, while keeping EX-3 intact.  

The executive ranks tend to be dominated by policy experts, and Wernick argues more weight should be given to those with skills and experience in operations and service.  

One possible solution is to create a separate track that would allow specialists in fields like IT or data to be promoted for those skills without having to move into management. This would likely mean raising salaries for the lowest tier of executives to make these jobs more appealing to executives while also rewarding specialists for their expertise.  

Source: Former top bureaucrat calls for major overhaul of the federal government

Yakabuski: The federal public service is broken. Is it too late to fix it?

Good long if dispiriting read with no easy or quick fixes:

…Canada is hardly the only parliamentary democracy to witness the degradation of its public service and concentration of power in the prime minister’s office, with a resultant decline in the quality and effectiveness of public policy. Britain’s Commission on the Centre of Government recently released its own report on deleterious impact of this phenomenon. “The centre [of government] in recent years has become far too dominant yet far too ineffective. It has scooped out initiative and all but emasculated Whitehall departments, which alternately try to second-guess what the flip-flop centre thinks and are micromanaged by it,” the commission’s deputy chairman, historian Sir Anthony Seldon, wrote in The Sunday Times. (Whitehall is British shorthand for the public service.)

More than ever, in our darkening age of political polarization, we need a neutral and non-partisan public service to guide major policy decisions. And we need competent public servants to implement them without fear or favour. The Trudeau Liberals have done themselves and Canadians a disservice by failing to recognize that a policy-capable and operationally efficient public service is any government’s best asset. Conservative Leader Pierre Poilievre, who speaks disparagingly of “gatekeepers” of all sorts, has given no indication he understands that either.

What future does that suggest for a country that faces chronic (and related) budget and productivity deficits and desperately needs to develop sustainable, affordable and equitable policies to address them both? We cannot expect them to come out of the PMO. Its dominance is partly what got us into this mess.

Source: The federal public service is broken. Is it too late to fix it?

How to create an adaptive culture in the public service

Perhaps I am getting too removed from the day-to-day realities of the public service but I find the various calls for reform are all too similar without any realistic means of implementation, whether by sophisticated academics or equally sophisticated former clerks and other senior officials.

In the case of the latter, a more reflective examination of how they tried to effect change and the roadblocks they faced would be more useful and practical than calls for change in specific areas:

Public service institutions have long been challenged to deliver a wide array of programs for governments and the public, and they continue to deliver programs and services as technology and public expectations evolve. However, what is driving change and creating anxiety in public services is the frequency and complexity of emerging new policy issues, as well as structural concerns such as competency gaps and the ability to address future issues.

This is not news to those in public management: cabinets and ministers are attuned to the policy agenda and drive policy as best they can with available resources. Climate change and environmental sustainability, working digitally, migration and immigration and an aging population are issues that have risen to the fore of an already heavy public service agenda.

For the public service to cope with these demands requires change in activities, new decision processes and institutional arrangements, and, most fundamentally, adapting its culture. By this we mean improving leadership, responsiveness and innovative capacity in working horizontally such as through a willingness to share information and responsibilities. This will be essential for consistent and productive transformation.

Multiple perspectives highlight the shifts in the way public services will have to adapt which will have implications on technology, approaches to employment and the characteristics of jobs and how public organizations maintain coherence. Four points must be stressed about the role of public services.

1. The changes in the environment will result in structural shifts in how public organizations work. Public service leaders must be skilled at anticipating shifts and conceptualizing innovative institutional arrangements, including adopting new technology, and managing the transition. Structural changes driven by technology also need capable people who can adapt and learn alongside new technology in order to be effective. This also includes rethinking several outdated administrative policies that do not reflect the evolving work environment.

2. A key driver to effective public services is a motivated and capable workforce. This means that sustainable change cannot take hold without engaged, passionate public servants who look beyond the daily grind of tending files and communicating with other public servants. Being engaged not only means contributing to the strategic direction of government and better public policymaking, but also creating and re-creating organizations to meet new needs of their policy environments. It also means attracting, developing and leading the right talent for new challenges.

3. Relying on large consulting houses to carry out policy and organizational change signals a lack of trust in the public service. One explanation could be that decision makers do not believe the public service can think innovatively. The effect is a decline in internal capability and leadership competence due to years of neglect in effective internal recruitment strategies and training. Focusing on improving service rather than perpetuating a transactional culture would go a long way to repair current dysfunctions.

4. There is always a constituency for systematic change in public institutions and we believe that is true of the Canadian public service. Public servants at all levels want to be more responsive to governments and public needs but are frustrated by the lack of support and recognition from senior leaders on ways to innovate and to improve systems and processes. On the other hand, senior leaders want to build an engaged public service, but may be focusing on the wrong things such as compliance and oversight measures.

The pandemic brought about creative ways of generating ideas and delivering public services but there are questions about leaders embracing these changes for the future. The question is how to understand change, generate reform, produce a sustainable and adaptive culture and to prepare for the future.

Lost opportunities, new possibilities

Governments have initiated high-level periodic institution-wide review efforts focused on diverse areas of public sector management. This included human resources in 2019, ongoing changes to procurement practices, changes to government accountability with the Gomery Commission in 2006 or public service operational practices and results delivery beginning in 2007. These reviews were carried out internally or independently, but rarely convinced decision-makers to institute recommended changes. In addition, the reviews did not take the other reviews and functions into account, often recommending changes that were contradictory.

Embedded regularized spending reviews could be used to drive public service reform, but these were abandoned in 2012 in Canada. The United Kingdom, Australia and Netherlands conduct regular reviews of fixed elements of spending focusing on making room for policy priorities while improving efficiencies in existing program areas. It is apparent that the federal government has initiated spending reviews but it is unclear if and how these will be linked in a coherent way to public service reform efforts. Other countries are beginning to think about linking spending reviews and reform to ensure policy and spending coherence.

Reform is multi-level and multi-faceted          

Embracing change requires adopting a dynamic approach. Multi-level reform means accepting that the public service is highly decentralized and operates in diverse areas of responsibility. Organizational structures and operating environments vary widely, and departments and agencies will know best how to respond to them. What gets in the way of relevant reforms are highly centralized systems and a lack of management autonomy to achieve expected results.

The public service depends on several important systems to work properly. Human resources involve recruitment, skills development and competency training and retention. Information and technology management is driven by digitalization, worker’s autonomy and mobility, data storage and sharing. Policy development and advice must acknowledge and balance strategic, administrative and operational elements. There needs to be effective procurement of goods and services along with sound financial management, oversight and monitoring.

Finally, there is the machinery of government and performance indicators that track results and assesses risks for their achievement. All of these must be simultaneously considered in any transformation.

Previous reform attempts, however, have tended to focus on defined problems associated with one or two of these systems. They did not recognize the complexity of how public organizations work, how these systems intersect with others, or the unique operational challenges of departments and agencies.

Reform cannot be a one-size-fits all solution. Significant discretion, in exchange for regular reporting, must be given to deputy ministers and their management teams to support administrative and management reform. As highlighted long ago in the Glassco Commission (1963) and Lambert Commission (1979), “letting the managers manage” involves providing space to public servants to improve services and implement policy without creating unnecessary administrative burden and excessive control by central agencies.

Leaders must be given room to imagine and propose changes to various systems that can be considered by the center of government in a timely way. This does not suggest a patchwork of changes without coherence, but rather a dialogue that gauges how these changes could be adapted to support the achievement of outcomes, and seriously monitors what sort of progress is being made in a tailored way.

This means looking at what has worked elsewhere and innovating with other executives in the public service to find support when there appears to be no workable solution. The central agencies must be willing to ensure tailored coherence for departments rather than uniformity and perpetuating a compliance culture.

Collaboration and coordination are critical

For change to work in such a multi-level embedded system to work effectively, additional conditions must be met. First, there must be engagement and support between ministers and the public service leadership. There also has to be a greater emphasis placed on learning, rather than managing, from the center of government. Central agenciesshould take on the role of enablers and coordinators rather than assuming primary leadership over such change.

There should be clear roles and responsibilities for executives so they can use their discretion to implement appropriate systems and processes in concert with others to ensure coherence. Administrative tools such as the Management Accountability FrameworkPolicy on ResultsDirective on Performance Management and Policy on Service and Digital should provide stronger forward-looking emphasis and support on organizational learning in a coordinated way. Reporting on these must also be joined up to demonstrate outcomes.

These changes require a shift in sensibilities, capabilities, readiness to contribute, senior management commitment and the motivation to drive organizational change. It also needs external input from academics, think tanks and other communities – and not high-priced secretive and ungrounded consulting contracts – to work in partnership. The public service no longer has the luxury to operate as an island.

An adaptive public service for the 21st century

Other countries are using the pandemic as an opportunity to advance reforms. A key criticism of public services is their lack of nimbleness. They are comprised of organizations operating not only in silos but also as rule-bound sub-systems working within centralized, homogenous processes. Although rules and hierarchy are essential for ensuring some level of administrative and management coherence, particularly for democratic governance, they must be balanced with the need for innovation and creativity when change is rapid and often unpredictable.

Our systems must accept that change is constant, and that reform will be ongoing rather than periodic. It also means learning from past mistakes. The public service needs scope to learn and manage, connecting responsibilities more directly to their authorities and resources, joining up otherwise independent reporting, and better monitoring progress. Better monitoring and reporting would ensure that departments are better held to account for their valuable work.

Source: How to create an adaptive culture in the public service

With female and LGBTQ prayer leaders, Chicago mosque works to broaden norms in Muslim spaces

Of interest:

The story of Rabia al-Basri is one that Muslim kids learn early.

She ran through her hometown of Basra, Iraq, with a torch in one hand and a bucket of water in the other. When townspeople asked her why, she said she wanted to burn down heaven with the torch and put out hellfire with the water so that people could worship without fear of punishment or desire for reward, for the sake of God alone.

“The story defines this space,” said Mahdia Lynn, who co-founded the mosque in 2016 in the Loop that bears the name of Rabia, and, more importantly, she said, the responsibility that comes with it.

At Masjid al-Rabia, the difference from mainstream mosques is immediately apparent. Every Friday, a handful of men and women pray shoulder to shoulder. The khutbah, or sermon, is a discussion, and congregants participate in a group circle. There is no consistent imam, or leader in prayer; rather, anyone can volunteer to stand in the front to lead. It is one of very few public mosques in the world that allows and encourages women to lead prayer in a mixed-gender prayer space.

“Our approach says that wanting to lead a prayer in that moment, that is what makes a person equipped to lead,” Lynn said.

In mainstream mosques where men lead the prayer, men pray in the front and women pray behind them, or in some cases, behind a barrier. Sometimes, women pray in a separate room with an audiovisual setup.

While women-only mosques have existed for hundreds of years in China, it is only in the past several years that imams and scholars have begun to organize more inclusive mosques in Indonesia, Europe and the United States — all with varying styles and levels of success. In 2015, the first women’s-only mosque in the U.S. opened in Los Angeles, according to news reports.

Though men and women often attend private prayer groups together, it is difficult to find any mosques in the world that publicly advertise having a prayer space with no barriers to gender, like Masjid al-Rabia.

“Most of the places it is happening, people are organizing based on who wants to worship and not because they want to publicize it,” said Amina Wadud, an Islamic scholar who has worked for decades at the intersection of Islamic theology and women-centric movements. “Sometimes you do a thing because you feel the thing is good and you don’t need any attention for it. Sometimes you have to combine that intention with some advertisement because how else do you open people up to the story?”

In Chicago, Lynn said the group is moving to a larger space that, in addition to hosting prayers, will serve as a hub for the social justice work the mosque began several years ago. The most important work the mosque does, Lynn said, is its prison ministry, which has grown to more than 600 participants in the past two years.

“Like Muslims who are queer and trans, (incarcerated people) are our family members who are forgotten. And the fact that they are forgotten is both unacceptable and changeable,” said Lynn, who is transgender. “In the faith tradition, there is a strong idea of freeing prisoners and serving those who are oppressed. You are ultimately helping the oppressor by preventing them from oppressing people.”

‘Embodied ethics’

Lynn’s work is only the latest in a long tradition of global attempts to broaden mainstream prayer norms.

Twenty-five years ago in Cape Town, South Africa, Wadud, who is retired and lives in Indonesia, for the first time led a part of the Friday prayer, which is generally performed by a male leader.

She waited more than 10 years to do anything as public as that again, though she was asked. She said she took time in the interim for “spiritual reflection and intellectual research,” to figure out her own intentions. The next time she led a Friday prayer service, it was in New York in 2005 and it made headlines because of the size of the congregation — more than 100 people participated — and a protest was held outside.

She said it was important to take a public step at that time.

“It was about embodied ethics, where it’s not enough to say, ‘I believe women are equal to men.’ I have to demonstrate it with my body,” Wadud said. “Sometimes you have to do that.”

Imam Ibrahim Khader of the Muslim Community Center organization, which has three locations in the Chicago area, said the separation of men and women in a prayer space is based on hadith, or sayings, of the Prophet Muhammad, one of which states that, in a congregation, the best place for a man during prayer is the front row, and the best place for a woman during prayer is the back row. He also pointed to the requirement of Muslim men to attend Friday prayers, which, according to hadith, does not exist for Muslim women.

“At the end of the day, these are narrations,” Khader said. “We can try and reason with these and understand the context, but we still follow them.”

Scholars, particularly those who say they prioritize inclusion over other ideas, lean on the Quran, which they say has higher authority than either the words or the actions of the Prophet Muhammad, to make their case.

“In Muslim patriarchies, men’s authority is underwritten by specific interpretations of ‘Islam.’ I put ‘Islam’ in quotes because, if we are speaking about the Qur’an, then there is nothing in it — not a single verse — that says women cannot lead a prayer and only men can,” Ithaca College professor Asma Barlas, who studies patriarchal interpretations of the Quran, said in an email. “Nor is there a single statement to the effect that men are morally or religiously or ontologically superior to women. Not one.”

Chicago activist Hind Makki runs a blog called Side Entrance, through which she encourages Muslim women to document women’s prayer spaces in mosques around the world: “the beautiful, the adequate and the pathetic.”

“Certain prayer spaces can be spiritually abusive, and we need to collectively create our own spaces,” Makki said.

As some Muslim communities struggle with inclusion, Makki encourages people to create third spaces, away from mainstream mosques and the secular world, where they can follow their faith without some of the cultural baggage.

“In the here and now, people have shown that they need to create their own spaces that are healthy and welcoming for spiritual sustenance, which you can’t get at mosques where your spirituality is not part of the picture,” she said. “Whether that’s creating a mosque like Masjid al-Rabia, or just gathering in someone’s living room, it’s so important for your spiritual health.”

An interfaith environment

Lynn, 31, who is from southeast Michigan, said she has always had an instinct toward community organizing, and she found Islam in her early 20s, at a time when she was living a very different kind of life than now.

“I was not good at being a human being. I was just not understanding what my place in the world was. Who to be, how to live, what to do,” she said. “Islam gave me an understanding and an order.”

She said the first year of being Muslim was a journey she took alone, but in 2014, she attended an LGBT Muslim retreat in Philadelphia.

“It felt like I was among people who knew the importance of the tradition, what it meant to be a transgender woman practicing Islam, what it means to be someone on the outside looking in,” she said. “That got me back into the community organizing and activism, back to troublemaking.”

This year, Lynn conducted her first nikkah, or wedding ceremony, and the masjid’s (mosque’s) first one — for two queer Muslim men in a prison hundreds of miles away. It was a wedding, she said, that ended up being a stack of papers an inch or two thick mailed to Lynn that contained some of the essentials for an Islamic wedding: written statements from witnesses, an exchange of vows, a mahr statement (a financial agreement in the case of separation). Later, she and others from the mosque threw a party that doubled as a proxy wedding with stand-ins for the grooms.

This week, the masjid, which is run by Lynn, who is a part-time employee, and a few other volunteers, moved into a space at GracePlace in the South Loop, sharing a prayer hall with Christian congregations, and hosted its first Friday prayer. At the final prayer before the move, congregants discussed their new home.

“Are they also progressive?” asked one attendee.

“Yeah, we had to make sure they were OK letting all the gay Muslims in,” said Hannah Fidler, a volunteer program coordinator at the mosque. The group laughed, even though for a community like this, security can be a real concern.

The move to a more public forum is a big change for the community, and Lynn said she hopes it will allow Masjid al-Rabia to become more established in Chicago. The focus for the past couple of years has been mission-based activities, like the prison ministry, a joint Eid and Pride celebration, and Quran study groups, she said. But with a larger space, it’s possible to intentionally grow Friday attendance and make sure it’s accessible to everyone.

Wadud, the Islamic scholar, said this kind of space marks an evolution.

“We are seeing, what does it take to start a movement? What does it take to spread a movement?” she said. “What does it take for it to no longer be a movement because it’s just par for the course?”

Source: With female and LGBTQ prayer leaders, Chicago mosque works to broaden norms in Muslim spaces

Finding a Place in Women’s Mosques

Of interest:

These are heady times for Kahina Bahloul, organizer of a women’s mosque in France, a country that is home to the largest Muslim population in Europe. Practical considerations dominate the spiritual — a search for an affordable location, a flurry of radio and television interviews marking the rise of a vanguard of women imams leading pop-up mosques from Berlin to Berkeley, Calif.

Ms. Bahloul, 39, who was trained as a lawyer in Algeria, said she stopped attending formal prayer services in Paris about three years ago because “I didn’t feel respected.”

She said she was taken aback by mosques that isolated women, steering them to back doors and relegating the worshipers to basements or seats hidden behind screens. She gave up after one mosque directed the women to pray in a nearby garage.

“I felt excluded by the mosques,” said Ms. Bahloul, who is earning a doctorate in Islamic studies from France’s École Pratique des Hautes Études and intends to be one of two imams leading prayers at the mosque. “I felt excluded by my community — and a lot of other women felt the same way.”

Together with Faker Korchane, 40, a high school philosophy teacher and a freelance journalist, she is developing the Fatima Mosque while searching for rental space in the Paris region. Their concept is a liberal mosque that will host weekly prayers led alternately by a female and male imam with worshipers of both sexes separated on either side of the same prayer hall.

Ms. Bahloul is building on an evolving tradition of women imams with history dating from the 19th century in China among the Hui Muslims. There, women lead mosques exclusively for women. But in the last three years, women imams elsewhere have begun to organize women’s mosques with varying styles in Denmark, Germany, Canada and the United States.

In 2016, the Mariam mosque opened in central Copenhagen, with the call to prayer sung by women. A year later, Seyran Ates, a Turkish-born German lawyer and activist, founded the Ibn Rushd-Goethe mosque in Berlin. To great fanfare and speeches, a women’s mosque started in Berkeley, Calif., in 2017 at Starr King School for the Ministry, a graduate school and Unitarian Universalist seminary.

Rabi’a Keeble, a Muslim convert and graduate of that seminary, founded the Berkeley mosque, Qal’bu Maryam. But she quickly faced challenges. It was not easy to attract Muslim women, who were wary of the organizers, she said.

“You assume there must be other like-minded people all over the place,” Ms. Keeble said. “What woman wants to continue to sit behind, walk behind, listen to men interpret scripture to their benefit? There must be a bunch of women waiting for someone to step up and kick those doors down. Well, that’s just not true.”

The Berkeley mosque’s location was always tenuous. After a year occupying free space, the group moved to a temporary home, she said, and recently found new quarters at First Congregational Church of Oakland.

Real estate is the critical issue that determines the strength of reform mosques. In 2012, Ludovic-Mohamed Zahed opened a mosque in Paris designed to be inclusive to women and welcoming to homosexual Muslims. Faced with insults and some hostility, Mr. Zahed said members preferred to be discreet, moving locations every three months to avoid being targeted. The mosque closed after three years, and Mr. Zahed has since resettled in Marseille in the south of France to run an institute to train reform imams.

“We had threats and people identified the places,” Mr. Zahed said of the Paris mosque. “Then owners didn’t want us to stay any longer. They were very happy to have us in the beginning, but they had so much political pressure that they wanted us to leave. It was always like this.”

Ms. Bahloul has not faced that kind of pressure for the Fatima Mosque, a concept she has openly promoted since January with a series of television interviews in France that have provoked hundreds of comments. She has also drawn coverage in Brazil, Italy and Canada, and in Northern Africa in Morocco, which characterized her concept as revolutionary.

“Among Muslims there are two reactions,” she said. “Most are very favorable — ‘finally a breath of fresh air. We have been waiting for this for a long time.’ There are others who are insulting and accuse us of trying to change the real Islam. But what is real Islam? Those critics have a very simple approach and have a superficial understanding of Islam.”

Ms. Bahloul’s views are shaped by her eclectic background, divided between France and Algeria, where she grew up in northern Kabylia, the child of an Algerian father and French mother. Her maternal grandmother was a Polish Jew and her grandfather French Catholic.

“Since I was young, I have always posed questions,” Ms. Bahloul said. “What really struck me was the evolution of the practice of Islam of my paternal grandparents, who were very traditional, cultural and spiritual. And after that I watched the spread of the conservative Salafist movement and the first veils worn by women in the 1990s.”

For now the organizers are preoccupied with practical concerns — renting a location, eventually organizing a crowdfunding campaign, reaching out to city officials who could aid in the search for space for Friday prayers and community meetings.

In the meantime, Ms. Bahloul teaches about Islam online through her association, Parle-moi d’Islam, with lectures on how to read the Quran or prosaic themes such as: “Does the Quran say to hit wives?”

Mr. Korchane, the co-founder, also says they must work to reach another pivotal group. He wants to create special videos to attract young Muslims, who he says sometimes lack deep knowledge of Islam. “They think, for example,” he said, “that eating halal or wearing a veil are part of the pillars of Islam.”

Source: Finding a Place in Women’s MosquesOrganizers of reform mosques are building on an evolving tradition of women imams that dates back centuries. But some Muslim women remain wary.