Five-Year Human Resources Regime Review 2015-2020
Title: Five-Year Human Resources Regime Review 2015-2020
Organization: Parks Canada Agency
Date: February 2022
Version: Final 1.4
Final Report
Table of contents
Key messages
- Greater consistency would enhance the operationalization of the HR Regime.
- Our review revealed a maturing HR Regime. Processes and systems are evolving to address past deficiencies and to meet the changing needs of the Agency and its employees.
- This time of unprecedented change presents a unique opportunity for the Agency to reflect upon and revitalize its 20-year-old values and operating principles.
1. List of acronyms
Acronym | Description |
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BIPOC | Black, Indigenous and people of color |
CVE | Centre for Values and Ethics |
EADI | Equity, Accessibility, Diversity & Inclusion |
EE | Employment Equity |
FUS | Field Unit Superintendent |
HR | Human Resources |
HRD | Human Resources Directorate and Employee Wellness |
ITPR | Independent Third Party Review |
OCOL | Office of the Commissioner of Official Languages |
OL | Official Languages |
PCEO | President & Chief Executive Officer |
PCX | Executive-level positions |
PSES | Public Service Employee Survey |
PSPM | Public Service Performance Management |
RCGT | Raymond Chabot Grant Thornton Consulting Inc. |
TM | Talent Management |
VP | Vice President |
YESS | Youth Employment Skills Strategy |
2. Restrictions and limitations
Parks Canada Agency (Parks Canada, "the Agency") has engaged Raymond Chabot Grant Thornton Consulting Inc. (RCGT) to perform the Five-Year Human Resources (HR) Regime Review.
This report was prepared for Parks Canada based on information and representations that were provided to us by Parks Canada personnel. It summarizes RCGT's assessment of whether the Agency's HR Regime is aligned with the values and operating principles that govern the management of HR and whether adjustments are required to drive consistency. This report is not to be used for any other purpose, and RCGT specifically disclaims any responsibility for losses or damages incurred through the use of this report for a purpose other than as described in this paragraph. It should not be reproduced in whole or in part without RCGT's expressed written permission.
This report, and the supporting work performed by RCGT, does not serve as an affirmation that operational processes and controls and/or technologies of Parks Canada are without defect and does not guarantee that such operational processes, controls, and/or technologies are immune from fraud, abuse, or misstatement. None of the work performed by RCGT or the contents of this report constitute any legal opinion or advice.
RCGT reserves the right, but will be under no obligation, to review and/or revise the contents of this report in light of information which becomes known to us after the delivery date of this report.
3. Executive summary
RCGT was contracted in March 2021 to conduct the fourth review of the Agency's HR Regime covering the period 2015-20. The review assessed whether the Agency's HR Regime is aligned with the values and operating principles that govern the management of HR and was further used to draw conclusions on whether adjustments are required to drive consistency.
The review was structured around eleven (11) themes covering a total of eighteen (18) criteria. Through the review, RCGT noted the following key findings:
- Recent initiatives launched by the Human Resources and Employee Wellness Directorate (HRD) are having a positive impact on the HR Regime;
- Need to further clarify HR roles and responsibilities to ensure accountability and compliance;
- Awareness of the Agency's values and operating principles, flexibilities, and manager accountabilities could be improved; and
- Opportune time to modernize the values and operating principles to improve clarity and relevance, including a comparative review of the values and operating principles and the Agency's Values and Ethics Code.
These findings resulted in the following four (4) recommendations:
- Revitalize values and operating principles and improve awareness;
- Document and communicate the Agency's flexibilities;
- Implement a compliance framework that includes monitoring and reporting of HR activities at all levels of the organization; and
- Clarify accountabilities, roles, and responsibilities of HR professionals to drive compliance and alignment with the HR framework and strategy.
4. Introduction
4.1 Background and context
Parks Canada Agency acts on behalf of the people of Canada, to protect and present Canada's natural and cultural heritage, while expanding public understanding, appreciation, and enjoyment. Parks Canada wishes to ensure the ecological and commemorative integrity of parks across the nation for present and future generations.
The Agency oversees 47 National Parks and Park Reserves, 1 National Urban Park, 5 National Marine Conservation Areas, and 171 National Historic Sites of Canada. The Agency operates under a decentralized model comprising a National Office and multiple Field Units.
The parks and sites are organized into 36 geographically based Field Units managed by 34 Field Unit Superintendents (FUS) who are accountable to seven (7) Executive Directors grouped by portfolios: Atlantic, Québec, Ontario and Waterways, Prairies and Northwestern Territories, Alberta, and British Columbia. The Executive Directors ultimately report to the Senior Vice-president of Operations. Operational human resources services (e.g. mainly staffing and general advice to support HR operations) are largely the responsibility of the FUS, although several specific services are provided by the National Office as well as functional oversight and guidance.
Parks Canada is highly decentralized in terms of its organizational structure. In addition to the corporate functions found in many other federal departments or agencies, the Agency employs individuals in various fields of work such as ecosystem specialists, archaeologists, lock operators, interpreters, asset managers, community managers, wardens, planners, historians, maintenance workers, etc. The Agency's geographically dispersed work locations (including remote and rural locations), as well as its substantial seasonal employee base, creates a unique human resources environment for the organization.
At peak season (i.e. between May and October), Parks Canada employs approximately 8,000 active employees, including over 3,600 temporary employees (terms, seasonal, and casuals) and approximately 1,800 students. This workforce is largely unionized.
National Office, with approximately 10% of the employee base, consists of six directorates, which provide legislative, operational policy, planning, program direction, financial management, and human resources functions and services. The vast majority of employees work outside of the National Capital Region; this includes employees working in satellite offices located in Halifax, Quebec City, Cornwall/Ottawa, and Winnipeg (with small branch offices in Calgary and Vancouver).
Under the Parks Canada Agency Act, the President and Chief Executive Officer (PCEO) has the delegated authority for HR management, to be reviewed every five (5) years (subsection 35 (1)). The successful implementation of the HR Regime is the responsibility of all managers and supervisors within Parks Canada. Three (3) reviews have been carried out by third parties since 1999; the most recent completed in 2014
The values and operating principles (refer to Appendix A, Scoping Guidance) have been in place since 1999 (section 16(1b) of the Act), and are reflective of the Agency's mandate and foundational for Parks Canada's HR management:
- Values: Competence, Fairness, Respect
- Operating Principles: Effectiveness, Accountability, Consistency, Openness, Efficiency, Adaptability, and Simplicity
The Office of Internal Audit and Evaluation (OIAE) was responsible for the contracting process and acted as the formal liaison with RCGT to conduct the fourth review of the Agency's HR Regime, covering the period 2015-20.
It is important to note that, during the period under review (2015-20), there has been a renewal at the senior management level in several key positions, as well as within HRD. As such, many structures and processes reflected in this report were established under past leadership. The direction of the HR Regime has shifted under new leadership, and was taken into consideration and built upon in our recommendations.
Through the conduct of this review, the Parks Canada project team provided us with exceptional assistance, responsiveness, transparency, and support. We also express our gratitude to every individual who shared their perspectives and experiences with us through interviews and focus groups.
4.2 Objective and scope
Objective
The objective of this independent review was to carry out the fourth review of Parks Canada's HR Regime. This review assessed whether the Agency's HR Regime is aligned with the values and operating principles that govern the management of HR and was further used to draw conclusions on whether adjustments are required to drive consistency.
Scope
The scope of work addressed the following areas:
- Providing sound evidence on the compliance and alignment of the HR Regime at Parks Canada over the past five (5) years (2015-20). This includes a review of Parks Canada's values and operating principles pertaining to HR, including all aspects of HR management across the organization; and
- This report requires a balanced view of general conclusions and recommendations concerning compliance with values and operating principles, while simultaneously providing an in-depth analysis on topics of high significance and priority.
Prior to the establishment of the contract, the OIAE, with support from HRD, led a scoping exercise. The purpose of the scoping exercise was to identify particular areas of focus or concern which should be considered to ensure that the review targets the areas of highest risk and priority for the Agency. This resulted in the themes, review criteria, and scope framework outlined in the Review Criteria section below. The full scoping guidance document can be found in Appendix A.
Notably, the following items were identified as falling out of scope of this review:
- In-depth examination of the processes and challenges related to pay issues due to the body of work that have been addressing the Phoenix pay systemFootnote 1; and
- Organizational classification, given the number of different occupational groups that carry out the work at the Agency.
The review included any important contextual issues surrounding the out-of-scope items above as they arose.
4.3 Approach and methodology
Our methodology was broken down to include three (3) Project Delivery Phases, which are further supported by end-to-end Project Management and Quality Assurance activities.
Phase A - Planning | Phase B - Execution | Phase C - Reporting |
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RCGT used three (3) types of data collection instruments: Planning and in-depth interviews to encourage open discussion, focus groups with employees and students, and a review of documentation and data.
RCGT engaged with a total of 66 individuals across all levels of the organization, representing both National Office and Field Units. Parks Canada coordinated activities related to proposing the representative sampling and the scheduling of interviewees and focus groups attendees across the Agency. RCGT confirmed that representation and participation in interviews and focus groups were sufficient to effectively address the review criteria and carry out the activities outlined in the review program.
RCGT made three (3) documentation requests, with some supplemental information also provided as required. A total of 180 documents were reviewed.
It is important to note that the findings presented in this document are limited to what was observed through the documents reviewed and interviews conducted.
5. Review and assessment
The HR Regime was assessed against eleven (11) themes which were further divided into eighteen (18) Review Criteria,Footnote 2 Findings, Impacts, and Opportunities are included for each theme, as presented below. While findings are discussed theme-by-theme, many themes and review criteria are inter-related. As such, some themes make explicit reference to analysis and findings that fall under other related themes in support of the values and operating principles.
Throughout the review, we observed many positive attributes and practices of the HR Regime. To present a balanced view of our observations, findings include areas where expectations were met, as well as opportunities for improvement that build upon positive initiatives underway.
5.1 Values and Operating Principles Relevance
Our expectation for high performance in values and operating principles relevance would include:
- Periodic, deliberate review of the values and operating principles considering the changing Canadian landscape and societal values; and
- Demonstration that the Agency's values and operating principles continue to resonate with current employees.
It is important to provide further context and understanding of the values and operating principles. To this end, we refer to the preamble when they were established, available on the Agency's public website:
The values and operating principles have been developed with input from employees across Canada. Accordingly, they reflect an understanding of our enduring mandate and the distinctive circumstances in which we work. They apply to all employees at all levels of the organization and will be brought to the attention of third parties as guidance for their interaction with Parks Canada employees.
(…)
Values are the enduring beliefs that determine our actions, attitudes and the choices we make. Operating principles guide the ways in which our values are implemented. Together they are the basis for ensuring the integrity of our Human Resources policies, practices, and procedures.Footnote 3
Further, the last bullet of the Agency's charter reads as follows:
To serve Canadians, working together to achieve excellence guided by values of competence, respect and fairness.Footnote 4
The original intent of the values and operating principles was that they applied to all employees at every level of the agency. This is reinforced by the connection to the last bullet of the Agency's charter.
Values at the Agency should define the behaviours that support the mission and mandate of the organization.
Findings ("What")
Criterion | Findings |
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Criterion a) The existing Values & Operating Principles remain reflective of the core values and ethics of the Agency. |
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Impact ("So What")
The language of the values and operating principles dating from 1999 does not fully reflect the societal changes that have taken place during the period under review. Notably during the period under review (2015-2020), there has been increased awareness on societal and environmental matters, leading to an expectation that organizations have values that reflect current society and to which employees can relate.
As the values and operating principles apply to all employees, there is an opportunity to increase awareness and referencing of the values and operating principles in order to reinforce the associated expected behaviours. This will support consistency when carrying out the initiatives and programs of the HR Regime.
It is important to note that based on legal advice obtained, values and operating principles can be amended following a fair and transparent process and ultimately approved by the PCEO. While there is no provision that prescribes a process establishing or amending the charter, there is an expectation to follow a fair and reasonable process which mitigates any potential recourses.
Opportunities ("Now What")
There is an opportunity to:
- Conduct an exercise to revitalize the values and operating principles ensuring they remain reflective of today's society;
- Ensure the proper labeling of the values and operating principles as stated in the Parks Canada Act legislation; and
- Engage with stakeholders by replication of the initial process of 1999, giving employees and bargaining agents notice and an opportunity to make representations.
These opportunities are further explored in our recommendations section.
5.2 Communications
Our expectation for high performance in communications would include:
- The existence of a documented communications strategy and framework to guide communication efforts, priorities, and approaches;
- The skilful use of tone and channel to effectively capture the attention of team members in various roles and locations; and
- Mechanisms to ensure key messages are received and internalized by audiences.
Findings ("What")
Criterion | Findings |
---|---|
Criterion a) The Agency internally communicates HR information including objectives, responsibilities, and guidance documents to support an effective HR function. |
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Impact ("So What")
While we observed some positive communication practices, without a clear HR communications strategy their effectiveness is limited.
The current approach to communications means that the feedback loop is never closed, which is the key component of effective communications. This limits the ability to validate clarity and understanding, which in turn can lead to a loss of critical information, reducing the intended impact of communications.
It is important to note that since 2019, HRD has implemented some feedback mechanisms to engage with the Field Units, through meetings between HRD executives and their extended management teams with Human Resources Managers, HR Communities of Practice, as well as executives participation in regional scrums. These activities provide an opportunity for National Office HR, Human Resources Managers, and Field Units to share crucial information for improved decision making and Field Unit support.
Opportunities ("Now What")
There is an opportunity to:
- Continue to improve the current HR communication strategy and approach for the Agency to ensure it reaches the target audience with a clear message;
- Communicate with purpose, find the tone and ways to engage with the intended audience - for example, Field Unit HR manager, Senior management, or agency-wide staff;
- Customize communications approach, means, and channels, taking into consideration remote locations where internet bandwidth may be limited;
- Determine when communication requires consultation with HR stakeholders, or input of information and data are to be considered.
- When sending HR communications with action items, implement a tracking mechanism to ensure they are completed and monitor effectiveness; and
- Build upon the existing Agency-wide communications calendar to identify the best moments within the Agency seasonal cycles to optimize the absorption of information by the recipients.
5.3 Awareness
The 2014 five-year HR Regime Review identified that "increasing awareness of the values and operating principles" was an area that required attention (through education) to ensure sustainability and relevancy as the workforce shifted. At that time, it was noted that the executive management committee was aware of this issue.
Our review sought to assess whether employees at all levels were aware of the Agency's established values and operating principles, and how they were reflected in the HR Regime. Our expectation for high performance in this area would include:
- Clear, consistent, highly visible, and memorable communication of the values and operating principles through various channels (e.g., meeting materials, e-mails, Intranet content, physical artifacts) that would reach employees at all levels;
- Employees' ability to describe, in their words, the values and operating principles and their applicability to their role; and
- Mechanisms to ensure key messages are received and understood by audiences.
To assess this theme, our review analyzed documents with the expectation that the values and operating principles would be cross-referenced throughout relevant documentation and easily accessible.
During the interviews, we assessed the extent to which employees at various levels were aware of the values and operating principles. We further probed how individuals experienced and applied the values and operating principles as employees in their interactions with the organization. It is important to note, however, that although we took a critical approach to test this criterion, the fact that employees can or cannot list them or refer to them is weighed against the observed embodiment of the values and operating principles.
Findings ("What")
Criterion | Findings |
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Criterion a) Employees at all levels are aware of the values and operating principles and how they are reflected in carrying out HR-related activities (i.e., the HR Regime). |
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Impact ("So What")
If employees are not aware and reminded of the values and operating principles, and if there is limited communications and control mechanisms to ensure awareness, the Agency will be limited in its ability to ensure proper adherence. As a result, there may be an impact on how the values are balanced to one another when making decisions. Without awareness, employees may act in ways that are not consistent with, or do not respect, the values and operating principles.
Opportunities ("Now What")
There is an opportunity to:
- Develop a clear strategy to promote and enhance awareness, carried through the key HR functions and supported by senior management. This strategy is linked to the opportunities under the values and operating principles relevance theme (Section 5.11);
- Embed the values and operating principles into the Talent Management Framework, through defined criteria in managers' performance review as they carry out the regime;
- Ensure that values and operating principles are appropriately and consistently referenced in letters of offers, training and onboarding material, as well as addressed in any orientation training;
- Ensure consistency in the naming conventions used (i.e., values and operating principles instead of HR values and operating principles) to avoid confusion (connected to the opportunities under the values and operating principles relevance theme); and
- Communicate the values and operating principles using memorable graphics and compelling storytelling to aide knowledge retention.
5.4 Talent Management
Our expectation for high performance in talent management (TM) would include:
- Evidence of a TM Strategy or plan;
- Data collected to inform TM needs and orientations;
- Supporting TM documentations such as communications, training and educational presentations, and curriculums;
- Strong employee sentiment (greater than 75% agreeing or strongly agreeing) that the Agency does a good job of supporting career development (as per Public Sector Employee Survey (PSES) results);
- A lower proportion of employees intending to leave the Agency within the next two (2) years to pursue opportunities in other federal organisations or outside of the core public service as compared to the core public service (as per PSES results); and
- Demonstration of new initiatives to enhance TM regime in response to employee feedback obtained via the PSES.
The TM framework for all employees has gone through incremental improvements during the 2015-20 period. During the review period, a more systematic approach to performance and TM for the PCX classification (Executive-level positions) was implemented. We observed evidence of formal succession planning exercises for some managerial and HR roles. In October 2020, the Agency launched the Public Service Performance Management (PSPM) application. The PSPM introduces more rigour and consistency to performance management.
Additionally, a new Directive on Performance and TM for Executives was implemented in April 2021. While this falls beyond the review timelines, it is an initiative worth acknowledging as it will provide alignment in the HR Regime activities. We also understand that a TM program for non-PCX employees is planned for development in the future.
Findings ("What")
Criterion | Findings |
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Criterion a) The Agency demonstrates a commitment to a performance management culture to attract, retain, and develop employees. |
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Criterion b) A talent management regime is in place that supports the current and future career development needs of employees and the Agency. |
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Impact ("So What")
An organization-wide TM regime is a powerful tool that can be used to align employees' skills and potential with the organization's strategic objectives. Enhanced commitment to a performance management culture can better equip individual team members to work in the direction of the Agency's goals, while at the same time deepening employees' sense of meaning, growth, and accomplishment. This is essential to creating a positive employee brand proposition, attracting and retaining talent, and to help mitigate risks of losing high-performing employees for a lack of engagement as well as spending a disproportionate amount of time managing poor performance versus developing employees.
To achieve these results, promoting a performance management culture should be a constant practice at all levels of the organization, with all managers fully equipped to carry out their critical roles in the TM regime. By officially implementing a TM regime, the Agency will have the ability to gather critical information on its current and future talent needs, while at the same time influencing the behaviours that are aligned with the values and operating principles.
Opportunities ("Now What")
Under the theme of TM, the following improvement opportunities exist for Parks Canada. These may be considered as part of an Agency-wide TM program, which we understand is planned for development in the coming years.
- Align the TM Framework with the values and operating principles and a focus on developing people management skills to positively influence and maintain the Agency's culture:
- Schedule the "Management 101" training modules periodically at all supervisory levels to equip managers with the knowledge necessary to implement and maintain a TM program for their employees; and
- Ensure that TM material and communications reference the values and operating principles appropriately and consistently and that their connection to the HR Regime are reflected as part of training modules.
- Conduct an exercise to; 1) identify future TM needs and trends, while 2) gathering TM data to inform decision making and initiatives:
- Define leading indicators for TM and begin tracking them to support future talent and skills needed (e.g., HR analytics skills);
- Implement a succession plan which provides compelling development opportunities by identifying critical roles and skills and developing a career journey map to supplement the career development offerings;
- Address the changing workforce demographics and expectations in connection with Equity, Accessibility, Diversity, and Inclusion (EADI) initiatives; and
- Consistently identify and communicate short term assignments that benefit both the organizational and individual development needs.
- Explore and include as part of the TM regime taking advantage of non-traditional types of employment when applicable and possible.
5.5 Integrity and Respectful Workplace
Safety and well-being of all Parks Canada team members is of the utmost importance. The Agency ensures that any infringement on employees' integrity is addressed by the proper HR functions (labour relations; work place harassment and violence - as of January 2021) or the Centre of Values and Ethics in a timely manner. Addressing problems promptly and involving the right parties is key to creating a respectful workplace. Managers need to be aware of existing tools and resources and should be ready to act dilligently in order to ensure resolution of such occurrences within the workplace. Our expectations for high performance under the theme integrity and respectful workplace would include:
- Accessible tools and mechanisms for employees to submit complaints or grievances related to integrity and respectful workplace situations in a timely manner;
- Demonstration of a consistent approach in addressing and reporting on integrity and respectful workplace situations across the Agency;
- Clear, consistent, and accessible process documentation, tools and training for HR specialists and managers; and
- Consistent and responsive guidance provided to managers as part of the resolution process in addressing these situations.
Findings ("What")
Criterion | Findings |
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Criterion a) The Agency addresses situations of integrity and respectful workplace in a formalized and consistent manner. |
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Criterion b) Managers are equipped and supported when addressing issues related to integrity and respectful workplace situations |
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Impact ("So What")
While there are formal approaches in addressing situations around integrity and respectful workplace (including workplace harassment – implemented in January 2021), complaints submitted have not been appropriately captured and reported for the period under review (2015-20). During that same period, employees also made use of the informal conflict resolution mechanisms offered by the CVE. The use of the CVE, coupled with limited reporting on complaints from field units in the Human Resources Management System, has prevented the Agency from obtaining important data for reporting and monitoring purposes. As a result, the Agency has been exposed to potential risks in terms of compliance, and poses limitations to informed decision making and providing consistent guidance across the Agency.
Employee confidence in management to address situations of integrity and respectful workplace has been impacted due to inconsistent approaches across the organization. While information and guides exist (the "what"), the fact that managers don't always know "how" limits their confidence and ability to deal with these situations in an effective manner.
It is important to note that since the implementation of Bill C-65 in January 2021, the complaint and grievance processes for workplace harassment and violence, which falls under the integrity and respectful workplace theme, are now centralized within National Office. Bill C-65 also outlines requirements regarding implementation of a central data registry and the reporting of cases for the Agency (Section 35 of the Act). HRD has recently implemented this new process and put in place the mechanisms to formalize and consistently address harassment and discrimination. For instance, modifications have been made to the instrument of delegation in order that all cases are dealt by National Office. The Centre for the Prevention of Harassment and Violence in the Workplace, which reports to the HRD, is now responsible for the prevention of harassment and violence in the workplace and the resolution of formal incident notices. The Centre also provides support to parties involved in incidents. The CVE provides resources and services related to informal conflict resolution mechanisms complementing the HRD service offerings, while remaining confidential for the CVE. In addition, there is an increase in prevention activities through training and education offered by HRD.
Opportunities ("Now What")
There is an opportunity to:
- Continue with efforts to create awareness around Bill C-65 by educating on harassment prevention, as well as monitoring data related to complaints and cases;
- Building on reporting requirements for Bill C-65, explore ways to improve data collection and reporting of complaints for all remaining integrity situations across the Agency;
- Under the TM theme, and as part of the HR Management 101 suite, ensure that the training currently under development related to the application of Bill C-65 (harassment complaint procedure), the collective agreement grievance process (Section 16), and harassment process (Section 17) are included. This will increase awareness and ensure consistent application of the process;
- Look for opportunities to implement Agency-wide reporting and monitoring on situations of disrespect, to enhance data analysis and improve support offered to Field Units, as well as to inform decision making;
- Become proactive in the handling of these situations by raising awareness on the behaviours that go against the Agency's values so that managers can identify and correct before impacting other individuals;
- Find new ways to re-introduce the HR Management 101 training periodically to support managers (and new managers) in preventing and dealing with situations; and
- Regularly communicate and remind managers of the resources available to them to increase awareness.
5.6 Equity, Accessibility, Diversity & Inclusion (EADI)
Our expectation for high performance in this area would include:
- Strong employee sentiment (greater than 75% agreeing or strongly agreeing) that the Agency respects individual differences and supports a diverse workforce (as per PSES results);
- Strong employee sentiment (greater than 75% agreeing or strongly agreeing) that the Agency implements activities and practices that support a diverse workforce (as per Public Sector Employee Survey (PSES) results);
- Employment Equity (EE) values meeting or exceeding the targets established by the Agency and improving year-over-year;
- Demonstration of new initiatives to enhance EADI in response to EE results, employee feedback obtained via the PSES, and other channels; and
- Demonstration of consistent application of Official Language (OL) requirements and efforts to address any known gaps.
Fostering a representative and inclusive workplace is a key objective for the Agency. For the period under review, the HRD organizational chart displayed (amongst other key points) functional responsibility for EADI. In 2015, the Agency adopted a National-level Champions model, which has since evolved into a Co-Champion model.
The Agency's most recent 2018-21 EE Plan includes specific numerical targets to address under-representation and a framework of measures to support managers in their development of plans to create a representative workforce and an inclusive and healthy workplace. EE Agency-wide data are monitored and reported through the EE Dashboard (launched in 2016).
The 2021-24 EE Plan was under development at the time of this review. Also, in 2021, the Agency initiated work on Parks Canada's first Accessibility Plan, as well as the development of a Diversity and Inclusion action plan. Lastly, in September 2021, PCA hired a Senior Director, Values, Ethics, Diversity and Inclusion, reporting directly to the PCEO. These positive initiatives are taken into account in the identification of opportunities below.
Findings ("What")
Criterion | Findings |
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Criterion a) The Agency fosters, promotes and celebrates the diversity of the Parks Canada team. |
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Criterion b) The Agency fosters both a representative and inclusive workplace by acting upon information built from the collection and analysis of equity data. |
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Criterion c) The application of OL requirements is consistent. |
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Impact ("So What")
The EADI approach is well designed and planned in terms of objectives (promoting and celebrating diversity) and focus on implementing specific changes to both the workforce and workplace that will help achieve a more diverse and inclusive workforce.
Increasing engagement with the Field Unit HR and management as a conduit to develop and implement EADI initiatives can lead to better awareness and application of EADI throughout the Agency. Improved data gathering, analysis, and reporting would allow for the tracking and monitoring of the implementation and outcomes of these initiatives to ensure effective integration as well as the identification of areas for improvement.
Good data analysis can identify improvements needed to reach EADI targets as part of continuous improvement. It can also assist in identifying which HR functions (staffing, TM, compensation etc.) can better contribute to integrate EADI into the operational aspects of the organization. Lastly, it can reveal areas that require training, support mechanisms, and increased communications.
Opportunities ("Now What")
There is an opportunity to:
- Improve the organization's EADI awareness by further engaging the Field Units, people from diverse backgrounds and targeted groups when planning execution and rollout, to identify and address potential barriers, optimizing the desired outcomes by carrying out the activities more effectively and encouraging more initiatives at the Field Unit levels;
- Leverage PSES data to review existing processes, policies, and forms with an EADI lens to identify barriers and leverage flexibilities to become a leader in this space;
- Build upon and improve communication regarding anti-racism initiatives and ensure their effective implementation and translation into anti-racism organizational culture change throughout Parks Canada;
- Collect, leverage, and learn from EE data to ensure compliance and monitoring of EE targets and initiatives more effectively through the various levels of the organization;
- Continue to further integrate EADI in all key aspects of the HR function through TM and other initiatives to all employees while holding managers accountable for hiring, developing, and retaining a diverse staff;
- Explore opportunities to leverage tools and technology, such as remote work, to reach a more diverse talent pool; and
- Establish a periodic assessment of language requirements of certain roles, for example review of bilingual imperative roles, to ensure language requirements are still relevant to specific roles and do not become a barrier for certain groups.
5.7 Use of Flexibilities as a Separate Employer
Our expectation for high performance in separate employer status would include:
- Clear and accessible documented definition of the available flexibilities, tailored to the needs of HR specialists and managers;
- Demonstration that HR specialists and managers are familiar and comfortable leveraging flexibilities in a variety of situations within the boundaries of their HR delegated authorities and legislative framework, and are confident in which resources / tools can support them in doing so; and
- Documented rationale when flexibilities are utilized, describing the intended benefits as well as the specific flexibility cascaded down by a policy or process.
The Agency's authorities as a special operating agency are outlined in the Financial Administration Act (Schedule II and V), the Public Service Employment Act (Provisions of Part 7 on political activities) and the Parks Canada Agency Act (Section 13).
Under section 12(1) of the Parks Canada Agency Act, The Chief Executive Officer, under the direction of the Minister, has the control and management of the Agency and all matters connected with it.
In regards to employees and HR management under section 13(a), the Chief Executive Officer has the "power to appoint, lay-off or terminate the employment of the employees of the Agency; under 13(b) establish standards, procedures and processes governing staffing, including the appointment, lay-off or termination of employment otherwise than for cause, of employees; and 13(3c) provide for any other matters that the Chief Executive Officer considers necessary for effective human resources management in the Agency."
It is important to note that the above authorities are framed by requirements under the overall public service function, namely the Official Languages Act, Employment Equity, Pay Equity, Accessibility, Canada Labour Code, Collective Bargaining.
Within these boundaries, the President & Chief Executive Officer (PCEO) can exercise flexibilities to support the Agency's mandate. Through the delegated authorities, the Agency can choose how to operationalize HR management - for instance, electing to align with the core public sector, or to be unique if necessary and permissible.
Findings ("What")
Criterion | Findings |
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Criterion a) The Agency understands how it can exercise and leverage its flexibilities as a separate operating agency, in the context of its HR Regime. |
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Impact ("So What")
Without a clear definition at the senior management level, as well as a documented and communicated approach, the Agency may be limited in taking advantage of the benefits of flexibilities as they relate to efficiency and effectiveness. As noted during interviews, there is an expectation by senior management at the Agency that the flexibilities should be exercised by supervisors and managers within the boundaries of their HR delegated authorities and legislative framework. However, the limited information and guidelines currently available to managers prevents their appropriate and consistent application.
The use of flexibilities supports the Agency in carrying out its mandate.
As an example, the Office of the Chief Human Resource Officer at the Treasury Board Secretariat has undertaken a full review of its Staffing Policy suite, defining and showcasing several of its own flexibilities, notably the extension of the two-year limit for interchange assignments in the core public service. A similar approach to the policy suite refresh would allow Parks Canada to increase awareness on the use of the flexibilities and support their consistent use and application.
Opportunities ("Now What")
There is an opportunity to:
- Document and communicate flexibilities in alignment with HR instrument of delegation and legislative framework;
- Document the rationale when electing to exercise a flexibility, linked to the Agency's strategic outcomes, values, and ultimately its mandate; and
- Use programs, initiatives, policies, and procedures to communicate and prescribe the use of flexibilities, as well as the instrument of delegation when decisions on their application should be made at lower management levels.
5.8 Governance
Our expectation for high performance in governance would include:
- The existence of clearly documented HR accountabilities covering all relevant roles across the Agency;
- Demonstration of clear, consistent, and recurring communication of the HR accountabilities through various channels;
- Demonstration that individuals in various roles and locations hold a consistent understanding of HR accountabilities;
- The completion of centralized monitoring activities to ensure consistent application of HR accountabilities across the Agency; and
- Clear documentation of HR risks and demonstration of mitigation strategies.
RCGT did not review the different types of governance committees in place at the Agency, but rather assessed whether the outcomes and directives of those committees are documented, communicated, and applied. We also assessed whether HR risks are consistently mitigated across the Agency.
Findings ("What")
Criterion | Findings |
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Criterion a) HR accountabilities are clearly identified, communicated, and consistently applied across the organization. |
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Criterion b) Risks associated with HR-related Governance and HR management in a decentralized environment are identified and mitigated as part of decision making. |
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Impact ("So What")
The implementation of a monitoring framework would support the consistent and appropriate application and use of authorities. It is currently difficult to validate that managers maintain the knowledge and information to effectively exercise authorities and make appropriate decisions. Without this monitoring mechanism, the Agency is at risk of potential decisions being made that could have major financial, cultural, or reputational impact.
It is important to note that in 2017-18 a risk framework for HR was developed, in collaboration with Corporate Planning, which included extensive consultations with the extended management team. Many of the risks identified are still prevalent today and have served to inform some of the risk mitigation strategies showcased in the 2021-22 Departmental Plan.
Opportunities ("Now What")
There is an opportunity to:
- Continue to update the instrument of delegation as required and ensure it is well communicated to managers;
- As part of TM initiatives for managers, provide regular refresher training (and even re-certification type of training) to ensure changes to HR delegations are communicated and understood and to clarify accountabilities, where required;
- Implement tracking, monitoring, and assurance mechanisms to ensure that the delegations are being applied appropriately and consistently.
5.9 Strategic HR Management
Our expectation for high performance in strategic HR management would include:
- The existence of an HR Strategy detailing how the Agency will adapt and evolve to future needs, supporting the organizational wide strategy; and
- Evidence that organizational objectives cascade into HR planning activities.
Strong HR planning ensures adequate resources are present to support the strategic goals and orientations through the operational plans, which aims to ensure the best fit between the organization and employees at all levels.
Findings ("What")
Criterion | Findings |
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Criterion a) HR management is integrated with business planning. |
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Criterion b) The Agency actively identifies future HR needs, as well as opportunities for recruitment. |
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Impact ("So What")
While a departmental plan exists, there is an opportunity to develop a long-term Agency-wide strategic HR plan. Without this, the Agency will be challenged to develop and implement an HR strategic management plan in alignment with the organizational objectives that respects and leverages the values and operating principles.
There is also a need for an integrated, consistent, and common approach to HR planning so that it can be rolled up with HRD to enable Agency-wide workforce planning. This would support the Agency having a clear picture of the current state of the organization. Without, it limits the ability to align efforts to ensure a best fit between employees at all levels, as well as HR resources to address needs of the organization. Finally, the continued absence of integrated HR planning may hinder the effective attraction, retention, and skills development of the employees to fulfill the mandate of the Agency
It is important to note that, in response to observations made in the 2014 HR Regime review, HRD has created an HR vision and framework. This is supported by the development of capacity planning and progress monitoring on a quarterly basis. While it falls outside the current review period, it is important to acknowledge that the 2021 HR framework is working to address the risks mentioned above.
Opportunities ("Now What")
Through the mechanisms currently under development, there is an opportunity to:
- Improve the integration of HR planning activities at the Field Unit level as part of overall strategic planning exercise at the Agency
- Leverage technology, for example, to provide a planning template to the Field Units from a central system of record where it is created and allows for access across the Agency and sharing of information.
- Expand the reporting capability to include operational information once data is gathered from Field Units.
5.10 Staffing
Our expectation for high performance in staffing would include:
- The existence of a formal, documented staffing process;
- Clear, consistent, and accessible policy and process documentation, tools, and training for HR specialists and hiring managers;
- Demonstration of efforts made to minimize unnecessary restrictions and streamline processes to promote timely and equitable staffing;
- Consistent and responsive guidance provided to hiring managers through the staffing process; and
- Demonstration that HR specialists and managers are familiar and comfortable leveraging flexibilities related to staffing and are confident in which resources / tools can support them in doing so.
In the National Office, all staffing actions are centralized under HRD, which offers HR staffing advice and support to all National Office Directorates. Hiring managers in National Office have access to Expresslane, which provides a streamlined approach for high-volume, non-complex transactions. The Field Units each run their own staffing processes, with support from HRD when requested. The staffing regime is supported by over 30 related policies. The policies, tools, and resources that support the staffing process are not easily accessible to managers.
The separate employer status provides the Agency with flexibilities to develop its own staffing regime, make quick decisions, and effectively onboard employees in large volumes, which supports the seasonal nature of the Agency's operations. As previously noted, it is broadly acknowledged that these flexibilities are not being leveraged to their full potential through the existing staffing regime.
The Parks Canada team is aware of opportunities to improve the existing staffing regime. Accordingly, a Staffing Modernization Initiative is planned to be implemented in early 2022, which is positioned to improve staffing process efficiency and responsiveness. There is a goal to bring scattered information and resources into a single integrated Intranet presentation and reduce the number of policies around staffing. By transitioning to a "values and principles" based process and increasing awareness and support around flexibilities in the upcoming years, a renewed staffing regime will better equip hiring managers to staff the right fit for the job, support a diverse and inclusive workplace, and meet operational needs in a timelier manner.
Findings ("What")
Criterion | Findings |
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Criterion a) The Agency's staffing processes and tools are efficient, respond to the needs of the clients, and facilitate strategic and timely hiring. |
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Criterion b) The Agency's staffing processes and tools are designed to effectively address identified talent needs and representation targets. |
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Criterion c) The Agency leverages existing flexibilities available to achieve staffing objectives. |
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Impact ("So What")
While current process supports the Agency in filling vacant roles, the challenges of the current staffing regime can prevent the Agency from ensuring that the right people at the right time and in the right roles are selected. The absence of central monitoring of staffing activities limits the opportunity to detect opportunities for continuous improvement.
The current staffing processes have been designed with seasonal operational needs in mind. However, they do not explicitly consider strategic and long-term business needs for talent, nor address the unique requirements associated with meeting the identified EADI representation targets.
By collecting more data and information, HRD will be able to assess the trends in labour market, changing regulations, the evolution of the HR function, as well as the societal changes (in terms of anti-harassment movement, Black Indigenous People of Color (BIPOC) focus and environmental matters) to adapt its staffing activities so they support the Agency in the long-term. This trends analysis can also use historical data at the Agency to inform the future needs.
It is important to note that we observed an initiative to streamline and reduce the number of letters of offers that was launched in 2021.
Opportunities ("Now What")
The staffing modernization will bring efficiencies through a single staffing policy along with a more user-friendly experience for managers. To complement the staffing modernization initiative, the Agency has the opportunity to:
- Include monitoring mechanisms and metrics for the different staffing steps to ensure efficiency and adherence:
- Hiring Manager Satisfaction
- Recruiting Yield Ratio
- Selection Ratio
- Time-to-Start or Time-to-Fill
- Time to Hire
- Develop, as part of the HR 101 learning modules, an "effective staffing practices" module for current and new managers, which remains up to date with changes;
- Standardize data collection across the Agency to enhance the HR data analytics capacity by collecting:
- Hiring and retirement patterns
- Transfers and promotions
- Employee turnover
- Years of service
- Employee demographics
- Education
- Skills and qualifications
- Past work experience
- Further opportunities that encourage more local hiring through mechanisms such as language training, bilingual non-imperative appointments, and telework; and
- Once redefined for staffing, integrate the flexibilities into the overall Staffing strategy to prescribe their use in the situations where they are most required.
5.11 Maturity of the HR Function
Consistent with the Agency's practices, the documentation lays out that the current HR operating model is decentralized, with two streams of HR professionals. National Office has HR staff reporting into HRD, while the HR structure within the Field Units has an HR manager (and support HR staff) reporting to the FUS.
HR staff in National Office, in addition to the strategic function of the directorate, provide advice, support, and oversight, as well as operational support and execution for select HR functions such as compensation, classification, and occupational health and safety, while the HR staff in the Field Units, reporting to the FUS, ensure execution of the day-to-day HR activities at the local level, which includes local staffing and first level grievance handling.
The main objective of the HR function at the Agency is to help deliver its mandate and priorities across the organization. The intent of the current HR model is to provide the Field Units with the ability to carry out the HR regime while allowing the HRD within National Office to analyse and implement larger scale corporate programs and report to central government bodies.
Findings ("What")
Criterion | Findings |
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Views on current HR maturity |
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Further, as highlighted in previous sections and presented in the table below, challenges exist relating to important HR functions. These challenges indicate opportunities to improve consistency and standardization of HR activities and processes, improve the maturity level of HRD, and ensure alignment of the HR Regime with the values and operating principles.
Section | Relevant Findings |
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5.3 Awareness Page 12 |
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5.4 Talent Management Page 14 |
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5.5 Integrity and Respectful Workplace Page 17 |
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5.6, Equity, Accessibility, Diversity & Inclusion (EADI) |
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5.7 Use of Flexibilities as Separate Employer Page 21 |
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5.8 Governance Page 22 |
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5.9 Strategic HR Management Page 24 |
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5.10 Staffing Page 25 |
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Impact ("So What")
The current reporting structure has benefited the Agency's operational requirements, with Field Unit HR managers located within Field Units in order to make the appropriate and timely day-to-day decisions based on their in-depth knowledge and understanding of the operational context.
To ensure the HR model is operating optimally, a monitoring framework that includes data gathering and analysis, assurance activities, and feedback mechanisms is needed. It is also essential that the roles and responsibilities of all involved are clearly documented, shared, understood, and agreed to.
These challenges pose important risks in the Agency's ability to be accountable for and deliver the HR Regime in terms of the following:
- Consistency: There is an opportunity to improve the consistency of the HR Regime delivery across the organization through standardization of processes and activities that are currently executed differently in the Field Units;
- Compliance: There is an opportunity to gather, monitor, and audit (as required) critical HR data and processes to ensure adherence to standards, inform decision making and reporting, and address gaps that could potentially be detrimental to the organization;
- Efficiency: There is an opportunity to streamline some activities and processes that can save time and effort in their execution;
- Effectiveness: While there is Agency-wide monitoring in terms of the applicable government requirements, there is an opportunity to better assess the effectiveness of HR initiatives; and
- Oversight: HRD has an opportunity to improve its oversight function through a system of records and centralized information management for its activities at all levels.
Opportunities ("Now What")
There is an opportunity to:
- Further clarify and document roles and responsibilities of HRD and HR professionals in the field units to ensure a common understanding;
- Ensure that inherent risks associated with accountability and compliance are mitigated through proper HR tracking and monitoring;
- Leverage efficiencies through the implementation of standardized and consistent processes; and
- Stimulate collaboration and knowledge sharing via HR communities of practice.
5.12 Observations from previous regime reviews
We observed trends in the observations from 2009 and 2004 (see table 2 below), which covers the same themes and are in alignment with the themes covered under the present review:
- Awareness (2009, 2014)
- Talent Management (2004, 2009, 2014)
- Staffing (2004, 2009, 2014)
- Integrity and Respectful workplace (2004, 2009, 2014)
- HR Maturity (2009, 2014)
For the 2014 Review, we did not observe any evidence of a Management Response and Action Plan (MRAP) to formally address the opportunities for enhancement from the previous review:
- Sustaining the Agency Values and operating principles
- Formalizing HR Strategy and Performance Scorecard
- Ensuring consistent HR Advice and Support
It is important to note that we have seen renewal commitment from HRD and Senior Management to different HR initiatives starting after 2019, which are taken into consideration and built upon in the recommendations.
Values | 2004 | 2009 | 2014 |
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Competence |
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Fairness |
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Respect |
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Other |
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6. Conclusions
6.1 Overarching findings
The review assessed whether the Agency's HR Regime is aligned with the values and operating principles that govern the management of HR in order to draw conclusions on whether adjustments are required to drive consistency.
While RCGT has taken a critical approach to assess the criteria, it is important to note that we observed most elements of an effective organization, such as a mandate driven culture, passion and engagement from the individuals we interacted with, and a willingness to discuss the themes of this review in a collaborative manner. As such, the assessment aims to encourage the continued modernization of the HR function and the activities of the HR Regime that supports the Agency's mandate.
Processes are, for the most part, in place when it comes to how the values and operating principles are aligned and applied through HR programs and initiatives. However, there are instances where the lack of awareness, compliance monitoring capacity and capability, and feedback mechanisms have negatively impacted the efficiency and effectiveness of the HR Regime and the HRD.
By strenghtening these areas, many of the risks to compliance and accountability as they relate to HR legislation and policy requirements will be mitigated. If accountable delegated managers at different levels across the organization are applying HR practices inconsistently and there is limited information on how their areas of responsibility carry out work, then this could put compliance and specific Values and Operating Principles at risk of not being respected.
It is important to note that, since 2019, there have been various programs and improvement initiatives implemented, notably the HR Modernization, TM Framework, the EADI co-Champions, and the Staffing modernization currently in development. These initiatives provide more clarity in the roles and responsibilities for managers as well as establishing monitoring and tracking of key HR activities. As a result, the above mentioned risks can begin to be mitiagted. These initiatives have been taken into consideration in the development of our recommendations.
RCGT has summarized the overarching observations and findings, organized by theme, in table 3 below.
Overarching Findings | Description |
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No ability to track compliance due to a lack of system records Themes impacted: Integrity Respectful Workplace Talent Management Staffing HR Maturity Strategic HR Management EADI |
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Managers need more clarity on their accountabilities Themes impacted: Integrity Respectful Workplace Talent Management Governance |
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Flexibilities are not well understood and leveraged Themes impacted: Talent Management Equity Accessibility Diversity and Inclusion Separate Employer Status Strategic HR Management Staffing |
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HR Maturity is impacted due to the current lack of clarity in roles and responsibilities Themes impacted: Strategic HR Management Governance |
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Limited Awareness of Values and operating principles Themes: Awareness, Talent Management Communications Values and operating principles |
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7. Recommendations
During the engagement, we collected information on the current state as well as the vision on how HRD can continue to ensure alignment between the HR Regime with the values and operating principles through its service delivery model. Table 4 below summarizes the current state, findings, and analysis.
Current State | Vision | Analysis |
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In order to bridge the gaps, RCGT presents four overarching recommendations which address the opportunities identified in the themes. These recommendations are summarized in table 5 below.
Recommendations | Description | Theme addressed |
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1. Revitalize Values and operating principles and improve awareness |
Leading Practices
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Overarching findings:
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2. Document and communicate the Agency's flexibilities |
Leading Practices
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Overarching findings:
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3. Implement a compliance and monitoring framework that includes monitoring and reporting of HR activities at all levels of the organization |
Leading Practices
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Overarching findings:
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4. Clarify and document accountabilities, roles, and responsibilities of HR professionals across the organization to drive compliance and alignment with the HR framework and strategy |
Leading Practices
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Overarching findings:
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Appendices
Appendix A: Scoping Guidance
Human Resources Regime Review 2015-2020
Scoping Guidance
The Office of Internal Audit and Evaluation is seeking the Senior Management Committee's review and endorsement of the proposed scoping framework for the Human Resources Regime Review (2015-2020).
Context
As stated in the Parks Canada Agency Act, the President and Chief Executive Office (PCEO) must, every five (5) years, assess whether the Agency's Human Resources (HR) regime is aligned and consistent with the values and operating principles that govern the management of human resources. The most recent review was conducted for the period 2009-2014. The Agency is now embarking on a review for the period of 2015-2020.
Objectives
The objective of this independent review is two (2) fold:
- To assess whether the Agency's HR Regime is aligned and consistent with values and operating principles; and
- Determine whether adjustments are required in order to improve the consistency between the HR Regime and one (1) or more of its values and operating principles.
Approach
To ensure that the review abides by principles of objectivity, independence and neutrality, the Office of Internal Audit and Evaluation (OIAE) will manage the contract for the consultant who will lead to review. Prior to the establishment of the contract, and in order to ensure that the review targets the areas of highest risk and priority for the Agency, the OIAE, with support from the Human Resources Directorate led a scoping exercise to identify particular areas of focus or concern which should be considered for this review. This resulted in the scope framework outlined below.
Proposed scope & exclusions
The following are the proposed initial areas/themes of focus for the review. While the areas/themes are highlighted in only one (1) of the values or operating principles, it is recognized that the work and findings will be inherently overlapping or overarching in nature.
Values | Definitions |
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Competence | Competence refers to the knowledge, abilities, personal suitability and other qualities required to perform effectively in the workplace. Competence resides in individuals, working independently or as a member of a team, and in the organization as a whole. |
Respect | Mutual trust, recognition of accomplishments, self-esteem and regard for others are important elements of respectful working relationships |
Fairness | Fairness means that our activities and decisions are just, timely, impartial and objective. |
Themes | Lines of Enquiry |
Awareness |
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Talent Management |
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Integrity |
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Respectful workplace |
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Equity, Accessibility, Diversity & Inclusion |
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Operating Principles | Definitions |
Accountability | The requirement to be answerable for carrying out our responsibilities in accordance with these human resources values and operating principles. |
Efficiency | Making the best possible use of human resources, time, and money. |
Effectiveness | Achieving the expected results. |
Consistency | Acting in a similar manner in similar circumstances. |
Adaptability | Adjusting to circumstances while encouraging innovation and creativity. |
Simplicity | Making things as uncomplicated as possible. |
Openness | Ensuring straightforward and honest communications. |
Themes | Lines of Enquiry |
Separate Employer Status |
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Governance |
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Communication |
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Strategic HR Management |
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Staffing |
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In addition to the above, the review will include an assessment of the existing values & operating principles to determine whether or not they remain reflective of the core values and ethics of the Agency twenty years later. The review will also have an opportunity to define key flexibilities that the Agency should be making use of as a separate operating agency.
Exclusions
The work will not examine in-depth the processes and challenges related to pay issues due to the Phoenix pay system, however the review will include, as it arises, the important contextual impact that pay issues have had on employees. In addition, organizational classification will not be addressed as part of the scope of this review given the number of different occupational groups that carry out the work at the Agency, however similar to pay issues, contextual information may be included.
Methodology
In light of the current context within which we are operating (COVID-19 pandemic), the majority of the work for the review is expected to occur virtually. The review will include:
- Documentation review;
- Data collection and analysis;
- Interviews; and
- Benchmarking against comparable organizations.
Appendix B: Summary of findings
The following tables provides a summary of the findings of the report, mapped to the values and operating principles.
Value and Operating PrinciplesFootnote 7 | Summary of Key Findings |
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Values | |
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Awareness
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Talent Management
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Integrity
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Respectful Workplace
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Equity, Accessibility, Diversity and Inclusion (EADI)
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Operating Principles | |
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Governance
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Strategic HR Management
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Communications
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