The return-to-work pushback of Canada’s public servants could lay the groundwork for the most radical change in the federal government’s relationship with its employees in a century.
The resistance reveals a grassroots shift taking place in the public service that’s all about power and control.
The public service is one of the most hierarchical employers in the country. It has operated the same way for decades. Management decides everything about staffing; how and where people work. Employees have little choice but to toe the line.
The pandemic that sent public servants home to work challenged that hierarchy by giving federal employees a taste of controlling their time and job location – factors that had been largely out of their hands.
After more than two years of working remotely, public servants like it and resent the idea of giving up the newfound control of time. They feel more productive, enjoy better work-life balance, have more child-care options. It’s also cheaper: no commuting, no parking, no restaurant or takeout lunches.
And for the first time, they had control of their space. No more cubicles. Hundreds took jobs without having to move to Ottawa and many others picked up and moved around the country.
But that flexibility has come with a price, and no city has felt the pinch like Ottawa, the nation’s capital and home to most departmental headquarters. The Ottawa Board of Trade estimates one-quarter of the city’s workforce worked downtown pre-pandemic and 55 per cent of those downtown workers were public servants sent home, leaving ghost offices behind. (A CBC radio broadcast on Aug. 25 talked about the topic.)
It also forced the biggest rethink of the future of work and the government’s relationship with employees as it officially shifted to a hybrid workforce this fall.
It will not be an easy ride.
Lori Turnbull, director of the school of public administration at Dalhousie University, called the shift to a hybrid workforce the most disruptive change in decades.
The public service has had its share of disruptions over the years – unionization and collective bargaining in the 1960s, massive downsizings and restructuring in the 1990s, the Y2K bug, 9/11, even the disastrous Phoenix pay system. This, however, could be as seismic a shift for the employer-employee relationship as when patronage was abolished a century ago and replaced with the merit system for the hiring and promotions of public servants.
“As far as disruptions go, this is the biggest one in decades, if not ever, because it’s a completely different ballgame when it comes to relationships, and how people manage their lives,” Turnbull said.
Turnbull said remote work gave workers flexibility and the value of that newfound freedom flowed more to their personal lives than their work lives. The government can’t expect to “put that genie back in the bottle,” without a fight, she said.
“Now, people, even the lowest rungs of the organization and seen as the least powerful, were given the sense of autonomy about their time and space and that is having fundamental repercussions on how the organization and management works,” said Turnbull.
The big question is whether the return-to-office will end this flexibility or will it spark worker rebellion? Before the pandemic, the thought of working only two days at the office was beyond the wildest of dreams. Today, it’s not flexible enough.
Public servants are openly voicing their displeasure about returning to the office. A growing number are mobilizing internally, speaking out on social media, signing petitions and writing letters to MPs. Some are resorting to access to information requests to get to the bottom of the decision to send them back.
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Employees who want to work remotely feel the return-to-work guidelines are arbitrary and imposed top-down from management with no rationale. They feel unheard and that there is no evidence supporting why employees have to spend specified days in the office unless to satisfy political pressures, said one union official who is not authorized to speak publicly.
“If there’s a need to have public servants in the office, what is it?” the official said. “What we’re seeing right now is people being called back for the sake of being called back for political reasons.”
It will be a top issue at the bargaining table. Unions are hoping to enshrine remote work provisions into the collective agreement to give employees more say in determining where they work. Just as important is inflation, and unions, which are emboldened by a global talent shortage, are asking for big raises.
The unions’ long game is that employees will permanently have the option to work remotely. That’s a big and controversial change, however, which would mean rewriting rules, policies and collective agreements. Not to mention that Treasury Board President Mona Fortier has already said working at home is a privilege, not a right. She insists Treasury Board won’t give up its power to organize the workplace, including where employees work.
Unions hope to find some negotiating room around where public servants work. They also want less arbitrary decisions about who can work from home and what they can do remotely. That could mean explanations in writing beyond the blanket “operational requirements” that workers are hearing.
Turnbull warns a workforce feeling management exercises too much control over their time can breed mistrust and resentment that undermines productivity.
But flexibility is unknown territory for the government. More than any other employer, it has little experience with flexible work models. A study by Jeffrey Roy showed that the senior echelons are most comfortable with the traditional in-person office model – from ministers’ offices to deputy ministers and central agencies.
Flexibility on where people work opens a pandora’s box of issues. What happens to the value of work? How does it affect the 7.5-hour work day, overtime and pay? How are employees accountable when they no longer report to the office? How to track productivity, performance or deal with discipline when working from home.
Meredith Thatcher, cofounder and workplace strategist at Agile Work Evolutions, said the unfolding workplace evolution will depend on the “maturity and skills of the individual managers and whether they have the trust of their employees.”
“It is a societal earthquake that has happened, and the fallout will be years to come,” she said. “Assuming everyone will just fall in line and return to the office either full-time or mandated time is naive. The world of the office has shifted on its axis and many executives have not figured that out yet.”
But Donald Savoie, a leading public administration expert at University of Moncton, argues there is a lot more at stake than flexibility. Back in 2003, Savoie wrote Breaking the Bargain, about the unravelling of the traditional bargain underpinning the relationship between politicians and public servants.
He says public servants also have a bargain undergirding their relationship with Canadians. The public is losing confidence in the public service and its ability to deliver services – crystalized by a summer of chaotic delays at airports and passport offices.
He said Canadians are discontent with government, and populist leaders like Pierre Poilievre and anti-institution protest groups are tapping into that mistrust. He said a public service griping about going back to the office is ripe for attack.
Many see public servants asking for the freedom of an independent contractor or entrepreneur to work when and where they want while keeping the job security, pay and benefits few other Canadians enjoy.
“My advice to federal public servants: think about the institution. Think of the public service, not just your self-interest. There’s something bigger at play here. It’s called protecting the institution that you’re being asked to serve. I think too many federal public servants have lost sight of that.”
And Turnbull said Privy Council Clerk Janice Charette, a head of the public service, bears a big responsibility for the institution. She’s out in front urging departments to get employees back to the office.
“The clerk has to worry about the reputation of the public service and the sense that they have been given too much flexibility and now we see services crumbling. Even if there’s no truth to that the perception, it’s something she has to worry about,” said Turnbull.