Minister of Foreign Affairs appearance before the Standing Committee on Foreign Affairs and International Development (FAAE) on Canada’s diplomatic capacity – Briefing material

February 7, 2024
Published: May 29, 2024

Table of Contents

1. Scenario Note
2. Opening Remarks
3. Biographies of FAAE Members
4. Senate AEFA Committee Report
5. Ministerial Q&A – GAC Transformation with FAQ on Implementation
6. Backgrounder on the Transformation Implementation Plan
7. Comparisons to Likeminded Countries
8. HR & Workforce at a Glance
9. Foreign Languages & Expertise
10. Diversifying GAC’s Workforce
11. LES
12. Digital Infrastructure & Cyber Threats
13. Property Infrastructure and Technology
14. Global Footprint
15. Multilateral Influence
16. Overseas Comprehensive and Supplementary Medical Coverage

Annex

1. Address by Minister Joly to employees and Heads of Missions of Global Affairs Canada
2. Address by Minister Joly on Canadian Diplomacy Amidst Geopolitical Uncertainty
3. Transformation Implementation Plan
4. Future of Diplomacy

Scenario note

• Minister, you are appearing as part of the Committee’s study on Canada’s Diplomatic Capacity.
• The appearance will last for 1 hour from 4:30 to 5:30PM.
• The following officials will accompany you during the appearance, and may be called upon to respond to questions:
  • David Morrison, Deputy Minister of Foreign Affairs (USS)
  • Antoine Chevrier, Chief Transformation Officer and Assistant Deputy Minister (DMFT)
• There will be a screen directly in front of you which will show the current or most recent virtual speaker. MPs and witnesses participating virtually will be visible to you on a screen in the upper-left corner of the room (showing them in a grid view). If preferred, you may request to the Clerk that the screen in front of you show the grid with the virtual participants.

For your awareness

• This study follows the previous study undertaken by the Senate Standing Committee on Foreign Affairs and International Trade (AEFA), concerning whether the Department and Foreign Service are “Fit for Purpose”. AEFA released its report on December 6, 2023, which calls for greater investment in Canadian diplomacy, and provides 29 recommendations for the Department’s consideration. Please see note 4 for further details.
• The tone of this study amongst Members has generally been less partisan, and more policy oriented. There is broad concern amongst all MPs that Global Affairs generally, and the Foreign Service in particular, are not well suited to the current state of global geo-politics, and that Canadian interests may be at risk without additional resources.
• In addition, Members have been interested in the following:
  • The structure and management of Global Affairs Canada;
  • The level of expertise within the foreign service;
  • If/where the Government should commit further funding;
  • Canada’s credibility abroad vis-à-vis diplomatic resources as well contrasts between rhetoric and substance; and
  • Whether or not the Government would benefit from a foreign policy review (and who should conduct it).

Timeline of this study

• This study began on November 29, 2023, with subsequent meetings on December 11 and 13, 2023. No government officials have appeared thus far.
• The Committee has heard from a series of academics, external experts, and former diplomats including:
  • Allan Rock, former Ambassador and Permanent Representative to the United Nations (PRMNY-HOM);
  • Guy Saint-Jacques, former Ambassador to the People’s Republic of China (BEJING-HOM); and
  • Jennifer Welsh, Professor of Global Governance and Security, McGill University

Motion of study

That, pursuant to Standing Order 108(2), and that given:

• democracy and the rules-based system that has kept Canada and our allies safe facing its greatest challenges in decades;
• the impact of this growing geopolitical turbulence, uncertainty, and unpredictability on Canadians; and
• the launch of the future of diplomacy initiative at Global Affairs Canada;

The committee undertake a study of the capacity of Global Affairs Canada to:

• effectively engage with our allies and partners, as well as demonstrate leadership within key multilateral organizations;
• plan ahead for future geopolitical shifts, crises, and opportunities;
• maintain a talented, well-equipped, and properly supported diplomatic corps; and
• protect Canadians abroad and review the committee report entitled “Strengthening the Canadian Consular Service Today and for the Future”, adopted during the 1st Session, 42nd Parliament and the achievement of its recommendations;

That the study consist of a maximum of four meetings to take place preferably before the end of 2023;

That a preliminary list of proposed witnesses be submitted no later than Thursday, November 16, 2023;

That the Minister of Foreign Affairs and departmental officials from Global Affairs Canada be invited to appear before the committee; and

That the committee report its findings to the House.

Committee membership

• Ali Ehsassi (Chair – LPC)
• Robert Oliphant (LPC)
• Pam Damoff (LPC)
• Hedy Fry (LPC)
• Sameer Zuberi (LPC)
• Sophie Chatel (LPC)
• Omar Alghabra (LPC)
• Michael Chong (Vice Chair – CPC)
• David Epp (CPC)
• Randy Hoback (CPC)
• Ziad Aboultaif (CPC)
• Stéphane Bergeron (Vice Chair – BQ)
• Heather McPherson (NDP)

Biographies of FAAE Members

Ali Ehassi (Chair)
LPC – Willowdale (ON)

Election to the house of commons

• First elected: 2015
• Re-elected: 2019, 2021

Professional Background

• Studies: He is a graduate of the University of Toronto (B.A.), attended the London School of Economics (M.SC.) and received degrees from Osgoode Hall Law School (LL. B) and a masters of international trade and arbitration law from Georgetown University in Washington, D.C. (LL.M).
• Law: Worked as a lawyer in the private
• Public Servant: Was a civil servant at the provincial and federal level

Political and parliamentary roles

• Parliamentary Secretary: Minister of Innovation, Science and Industry (Innovation and Industry) (2019 – 2021)
• Parliamentary Association Vice-Chair: Canada-China Legislative Association (2020 – 2021)
• Parliamentary Association Member: Canada-China Legislative Association (2015 – 2020); Canada-Africa Parliamentary Association (2017 – 2019)

Committee membership

• Chair: Standing Committee on Foreign Affairs and International Development (2022 – Present); Subcommittee on Agenda and Procedure of the Standing Committee on Foreign Affairs and International Development (2022 – Present)
• Member: Standing Committee on Foreign Affairs and International Development (2021 – Present); Liaison Committee (2022 – Present); Subcommittee on International Human Rights of the Standing Committee on Foreign Affairs and International Development (2021 – Present)
• Former Member: Standing Committee on Industry, Science and Technology (2020 – 2021); Standing Committee on Justice and Human Rights (2017 – 2019); Standing Committee on Citizenship and Immigration (2016 – 2017)

Points of interest to GAC

Ukraine

• Mr. Ehassi is a defender of the Ukrainian cause and does not hesitate to criticize in the House the atrocities committed by Russia and he encourages the measures taken by Canada to help Ukrainian civilians.
• From July 8 to 10, 2022, MP Ehsassi travelled to the Baltics (Latvia, Lithuania and Estonia) concerning the war in Ukraine. On May 6, 2022, MP Ehsassi travelled to Kyiv alongside an EU parliamentarian delegation.

Iran

• He has previously been outspoken about Iran and flight PS752, questioning compensation, requesting an assessment on Iran’s draft report and a transparent investigation, and has asked departmental officials if this matter could/should be addressed at the International Court of Justice.

Afghanistan

• In May 2023, MP Ehsassi introduced a petition to support an investigation by the Human Rights Council of the UN into the serial atrocities that are going on against the Hazaras in Afghanistan.

Vaccine Equity and Intellectual Property Rights

• At the April 25, 2022 FAAE meeting on Vaccine Equity and Intellectual Property Rights, MP Ehsassi pushed back on the opposition assertion that the main issue in COVID-19 vaccine procurement is related to supply, and he questioned the effectiveness of a TRIPS waiver at the WTO.

Michael D. Chong (Vice-Chair)
CPC – Wellington – Halton Hills (ON)

Election to the house of commons

• First elected: 2004
• Re-elected: 2006, 2008, 2011, 2015, 2019, 2021

Professional Background

• Studies: Bachelor’s degree in Philosophy
• Advisor: Senior advisor at Greater Toronto Airports Authority (2001 – 2004); Analyst at BZW (Barclays de Zoete Wedd) (1994 – 1997); Assistant to the President at the Canadian Tire Financial Services (1992 – 1994)
• IT: Head of IT at Mackie Research Capital (1997 – 1999)
• History: Member Board Of Directors at Historica Canada (1997 – Present)

Political and parliamentary roles

• Shadow Minister: Foreign Affairs (2020 – Present)
• Former Shadow Minister: Infrastructure, Communities and Urban Affairs (2017 – 2018); Science (Industry) (2018 – 2019); Democratic Institutions (2019 – 2020)
• Former Assistant Critic: Environment (2015 – 2016)

Committee membership

• Vice-Chair: Special Committee on the Canada–People’s Republic of China Relationship (2022 – Present)
• Member: Standing Committee on Foreign Affairs and International Development (2020 – Present); Special Committee on the Canada–People’s Republic of China Relationship (2022 – Present)
• Former Chair: Standing Committee on Official Languages (2011 – 2015); Standing Committee on Canadian Heritage (2010 – 2011); Standing Committee on Industry, Science and Technology (2009)
• Former Vice-Chair Member: Standing Committee on Foreign Affairs and International Development (2020 – 2021); Special Committee on Afghanistan (2021 – 2022)

Points of interest to GAC

Ukraine

• During a House statement in July 2022, MP Chong called on the government to implement strong measures to counter Russian aggression and to strengthen the security of Canada and its allies. He stressed that Canada must continue to advocate for policies that strengthen its relationship with allies like Germany, so they are less reliant on Russian natural gas.

China: Human Rights, Foreign Interference

• From December 2022 to June 2023, MP Chong was one of the most active Conservative MPs during Question Period (QP) on Chinese interference, and asked multiples times for the government to establish a public inquiry, and has called on the government to declare the Chinese diplomat implicated in the attempted intimidation persona non grata. He was also extremely vocal during the Procedure and House Affairs Committee study on the Intimidation campaign made by China against him.
• During QP in February 2023, MP Chong explained the danger related to the Chinese spy balloon and the research interchange with Canadian universities that may be misused in China, urging the government to ban research funding that may be used by China's military.
• During QP in October 2022, MP Chong repeatedly criticized the government for its inaction regarding alleged Chinese police stations in Canada.
• At the May 5, 2022 FAAE session on Tibet, MP Chong pointed to the sanctions imposed on Chinese officials for their human rights abuses/violations against the Uyghur people in Xinjiang, questioned their effectiveness, and whether sanctions should be imposed for similar abuses in Tibet.

Iran: Flight PS752

• During QP in October 2022, MP Chong repeatedly pressed the government to increase sanctions on Iran and to register the IRGC as a terrorist entity.
• On January 8, 2022, MP Chong released a statement accusing the government of “failing to take serious action against the Iranian regime for the downing of Flight PS752.”

Afghanistan

• During the CPC Opposition Day on December 7, 2021, MP Chong characterized Canada’s withdrawal as “a betrayal of the legacy of the hundreds of thousands of soldiers of the NATO alliance who fought in the war in Afghanistan for freedom, democracy and the rule of law.”

Nuclear Weapon

• During QP in May 2023, MP Chong stated that the government should take the opportunity at the G7 to urge its closest ally, the United States, to resume the strategic stability dialogue on nuclear weapons with Russia.

NATO

• During QP in April 2023, MP Chong expressed concern about the information leaked to the American media about the Prime Minister's statement to NATO officials that Canada will never meet the military alliance's defence-spending target.

Peru

• At a FAAE briefing on the Current Situation in Peru in February 2023, MP Chong expressed concern about Peru's institutional challenges and asked what Canada can do to assist the government of Peru to stabilize its democratic institutions and helping to restore Peruvians' faith in their democracy.

Stéphane Bergeron (Vice-Chair)
BQ – Montarville, (QC)

Election to the house of commons

• First elected: 1993
• Re-elected: 1997, 2000, 2004, 2019, 2021

Professional Background

• Studies: Bachelor's degree in Politics and International relations and a Master's degree in Politics and International relations.
• Provincial Politics: Member of Quebec's National Assembly for the "Parti Québécois" (2005 – 2018)
• Military: Served in the Canadian Forces as a naval cadet instructor cadre officer (1984 – 1993)

Political and parliamentary roles

• Critic: Foreign Affairs and International Trade (Foreign Affairs) (1996 – 1998/2003 – 2004/2019 – Present)
• Parliamentary Association Member: National Security and Intelligence Committee of Parliamentarians(2021 – Present); Canada-Africa Parliamentary Association(2019 – Present); Canada-China Legislative Association(2021 – Present); Canada-Germany Interparliamentary Group(2019 – Present); Canada-Europe Parliamentary Association (2019 – Present); Canada-France Inter-Parliamentary Association(2019 – Present); Canada-Ireland Interparliamentary Group(2019 – Present); Canada-Israel Interparliamentary Group(2019 – Present); Canada-Italy Interparliamentary Group(2019 – Present); Canada-Japan Inter-Parliamentary Group(2019 – Present); Canadian NATO Parliamentary Association(2019 – Present); Canadian Branch of the Assemblée parlementaire de la Francophonie(2019 – Present); Canadian Branch of the Commonwealth Parliamentary Association(2019 – Present); Canada-United States Inter-Parliamentary Group(2019 – Present); Canadian Section of ParlAmericas(2019 – Present); Canada-United Kingdom Inter-Parliamentary Association(2019 – Present); Canadian Delegation to the Organization for Security and Co-operation in Europe Parliamentary Assembly(2019 – Present); Canadian Group of the Inter-Parliamentary Union (2019 – Present)
• Former Critic: Finance (International Financial Institutions) (1993 – 1996); Foreign Affairs and International Trade (Foreign Affairs) (1996 – 1998); Government House Leader (Parliamentary Affairs) (1997 – 2001); Industry (Science, Research and Development) (2001 – 2002); Privy Council Office (Intergovernmental Affairs) (2004 – 2005/2019 – 2021); National Revenue (Single Tax Return) (2019 – 2021)

Committee membership

• Vice-Chair: Standing Committee on Foreign Affairs and International Development (2020 – Present); Special Committee on Canada-China Relations (2020 – Present)
• Member: Standing Committee on Foreign Affairs and International Development (2020 – Present); Special Committee on Canada-China Relations (2020 – Present); Subcommittee on Agenda and Procedure of the Standing Committee on Foreign Affairs and International Development (2021 – Present); Subcommittee on Agenda and Procedure of the Special Committee on the Canada–People’s Republic of China Relationship (2021 – Present)

Points of interest to GAC

China

• The majority of MP Bergeron’s statements have been related to China, including the eight-month vacancy of Canada’s Ambassadorship to that country and the related impact on the bilateral relationship.
• MP Bergeron has frequently raised concerns regarding the possible invasion of Taiwan by the People’s Republic of China, which he describes as “inevitable”.
• MP Bergeron is also very critical of Huawei's implementation of 5G in Canada, which he sees as a potential tool used by China for espionage.

Ukraine

• At a FAAE meeting in May 2022, MP Bergeron was critical of the government for not providing a timeline for the reopening of the embassy in Kyiv. He called on the government to enhance its level of transparency in its security assessments.
• On March 29, 2022, MP Bergeron spoke critically of the government’s proposed plan for Ukrainian refugees seeking to come to Canada. He focused specifically on the lack of assurance that health care coverage would be provided.

Afghanistan

• During a CPC opposition day on December 7, 2021, regarding the creation of a Special Committee on Afghanistan, MP Bergeron criticized the government for calling an election as the situation in Kabul was escalating. During this debate, he also linked escalation by Russia at the Ukraine border to Afghanistan, arguing that “countries who do not share Canada’s values are taking advantage of the coalition’s supposed weakness to impose their views.”
• Human Rights: Saudi Arabia , Child Labour
• During Question Period, MP Bergeron asked “What will it take for the government to take action and finally get Raif Badawi released?” He followed this question by stating: “it is scandalous that Raif Badawi is languishing in prison after seven years without having committed any crime. If the government can sit down with Saudi Arabia at the G20, if it can sit down with Saudi Arabia to do business and sell the country weapons, then it can certainly sit down with Saudi Arabia to demand the release of Raif Badawi.”
• During a House debate on Bill S-211, An Act to enact the Fighting Against Forced Labour and Child Labour in Supply Chains Act and to amend the Customs Tariff in March 2023, MP Bergeron mentioned that the bill does not go far enough, and that it does nothing to ensure that the necessary checks will be performed to prevent the importation into Canada of goods made with forced labour, slavery or child labour.

Peacekeeping

• At a FAAE meeting on the Main Estimates in May 2023, MP Bergeron mentioned that in November 2017 the Prime Minister pledged that Canada would provide a rapid response force of 200 troops, asking MINA if Canada still intends to fulfill its promise.

Global Food Crisis

• At a FAAE meeting on the Main Estimates in May 2023, MP Bergeron expressed concern that Canada is reducing its food aid budget despite the global food crisis and suggested to increase Canada’s development assistance budget again, rather than redirecting towards Ukraine part of the funding that would normally be given to countries from the southern hemisphere that are impacted by the food and nutrition crisis.

Reproductive Health Globally

• During a FAAE meeting on the Sexual and Reproductive Health and Rights of Women Globally in February 2023, MP Bergeron mentioned that 45% of abortions performed worldwide are unsafe and asked in what ways Canada is trying to improve the situation for women who undergo these potentially life-threatening practices.

Lachin Corridor

• At a FAAE meeting on the reopening of the Lachin Corridor in February 2023, MP Bergeron introduced a motion calling on the Azerbaijani authorities to reopen the Lachin Corridor and guarantee freedom of movement in order to avoid any deterioration in the humanitarian situation.

Omar Alghabra
LPC – Mississauga Centre (ON)

Election to the house of commons

• First elected: 2006

• Re-elected: 2015, 2019, 2021

Professional Background

• Studies: Bachelor's degree in Engineering and Mechanical and a Master's degree in Business Administration
• Business: President at Northern Compass Co. Ltd (2009 – 2015)
• Energy & Industry: Senior Strategic Consultant at the Ontario Energy Board (2013 - 2014); VP Corporate Development ENBALA Power Networks (2010 – 2012); Business Leader General Electric (1999 – 2006)

Political and parliamentary roles

• Former Minister: Transport (2021 – 2023)
• Former Cabinet Committee Member: Economy, Inclusion and Climate (2021 – 2023); Canada and the World (2021 – 2023); Safety, Security and Emergencies (2021 – 2023)
• Former Parliamentary Secretary: Prime Minister (Public Service Renewal) (2019 – 2021); Deputy Prime Minister and Minister of Intergovernmental Affairs (2019 – 2021); Minister of International Trade Diversification (2018 – 2019); Minister of Foreign Affairs (Consular Affairs) (2015 – 2018)
• Former Critic: Natural Resources (2007 – 2008); Citizenship and Immigration (2007)

Committee membership

• Member: Standing Committee on Foreign Affairs and International Development (2023 – Present)
• Former Member: Standing Committee on Procedure and House Affairs (2020 – 2021); Standing Committee on Natural Resources (2007 – 2008); Standing Committee on Citizenship and Immigration (2007); Standing Committee on Government Operations and Estimates (2006 – 2007)

Points of interest to GAC

Iran: Flight PS752

• During an October 2022 Question Period, MP Alghabra emphasized pursuing justice for flight PS752 victims through all legal and international channels and championing ICAO reforms to prevent future tragedies and honor the victims' memories.

Russia: Ukraine

• During Question Period in March 2022, MP Alghabra emphasized the importance of supporting Ukraine by prohibiting Russian flights in Canadian airspace and barring Russian ships from Canadian waters.

Consular Affairs

• As Parliamentary Secretary from 2015 to 2018, MP Alghabra oversaw numerous consular cases, including Raif Badawi's, giving him a thorough understanding of consular issues.

Trade Agreement: CUSMA

• During the March 2020 third reading debate of Bill C-4, Canada–United States–Mexico Agreement Implementation Act, MP Alghabra underscored the "buy America" issue, detailing Canada's outreach to U.S. officials to emphasize Canada's economic role and advocate for equitable business opportunities.
• He also recognized the vital importance of a trade agreement with the United States in ensuring access to Canada's main trading partner, benefiting Canadian businesses and workers.

Trade Issues: China

• During an April 2019 debate regarding China's sanctions on the Canola industry, MP Alghabra emphasized the trade issue's importance to Canada's economy, highlighting Canada’s science-based engagement, robust inspection systems, trade diversification, and ongoing support for canola producers.

Syria

• During a May 2018 debate, MP Alghabra criticized Syria's presidency of the disarmament conference due to its international norms violations, advocated for rule changes, and emphasized the difference between constructive UN reform and mere cynicism.

Human Rights: Myanmar

• During a debate on human rights in Myanmar in September 2017, MP Alghabra condemned the treatment of the Rohingya, asserting that Canada will consistently work to alleviate their suffering and pressurize the Myanmar government.

Sophie Chatel
LPC – Pontiac (QC)

Election to the house of commons

• First elected: 2021

Professional Background

• Studies: Bachelor of Laws (LL.) from the Université de Montréal; Master of Taxation (M. Fisc.) from the Université de Sherbrooke.
• Finance: Head of the Tax Treaty Unit in the Centre for Tax Policy and Administration at the OECD (2017 – 2021); Director, International Tax and Transfer Pricing at Canada Revenue Agency (2015 – 2017); Associate Chief, Tax Treaties and International Tax at Canada Revenue Agency (2008 – 2015); Senior Advisor, Tax Treaties & International Tax Section at Canada Revenue Agency (2005 – 2008); Senior rulings officer, International Section at Canada Revenue Agency (2002 – 2005); Senior Tax Advisor at Boivin O’Neil (1999 – 2002); Tax Advisor at Verrier.

Political and parliamentary roles

Committee membership

• Member: Standing Committee on Foreign Affairs and International Development (2023 – Present); Standing Committee on Environment and Sustainable Development (2023 – Present)
• Former Member: Standing Committee on Finance (2021 – 2023)

Points of interest to GAC

Canada’s Sanctions Regime

• In a September 2023 FAAE meeting, MP Chatel emphasized the necessity for clearer sanctions guidance and advocated for innovative, collaborative strategies with allies. She also suggested collaboration with financial experts and professionals, ensuring efficiency without major government expansion, upholding fiscal responsibility.

NATO: Climate Change and Security Centre of Excellence

• In a May 2023 FINA meeting, MP Chatel supported establishing the NATO Climate Change and Security Centre in Montreal, citing past floods to underscore the growing importance of climate security.

Global Economy: Net-Zero Portfolios for Financial Institutions

• In a March 2023 FINA meeting, MP Chatel highlighted the global trend towards financial institutions moving towards net-zero portfolios, emphasizing the importance for Canada to prepare and adapt to this change to remain competitive in the global economy and financial market.

Pam Damoff
LPC – Oakville North-Burlington (ON)

Election to the house of commons

• First elected: 2015
• Re-elected: 2019, 2021

Professional Background

• Studies: Bachelor of Arts (B.A.) in Political Science from the University of Western Ontario
• Private sector: 25 years of experience in business/corporate affairs, and 11 years running her own
• Municipal politics: Former City Councillor for Oakville’s Ward 2 (2010 – 2015)

Political and parliamentary roles

• Parliamentary Secretary: Minister of Foreign Affairs (Consular Affairs) (2023 – Present); Minister of Public Safety (2021-2023); Minister of Indigenous Services (2019-2021); Minister of Health (2019)
• Parliamentary Association Member: Canada-Japan Inter-Parliamentary Group (2023 – Present); Canada-Africa Parliamentary Association (2023 – Present); Canada-Europe Parliamentary Association (2023 – Present); Canadian Branch of the Commonwealth Parliamentary Association (2023 – Present); Canada-United States Inter- Parliamentary Group (2023 – Present); Canadian Delegation to the Organization for Security and Co-operation in Europe Parliamentary Assembly (2023 – Present); Canadian Group of the Inter-Parliamentary Union (2023 – Present)

Committee membership

• Member: Standing Committee on Foreign Affairs and International Development (2023 – Present); Subcommittee on International Human Rights of the Standing Committee on Foreign Affairs and International Development (2023 – Present); Access to Information, Privacy and Ethics (2023 – Present); Special Committee on Afghanistan (2021 – Present)
• Former Vice-Chair: Status of Women (2016 – 2019)
• Former Member: Standing Committee on Public Safety and National Security (2016 – 2019/2020-2023); COVID- 19 Pandemic (2020); Status of Women (2016 – 2019)

Points of interest to GAC

Dave Epp
CPC – Chatham-Kent-Leamington (ON)

Election to the house of commons

• First elected: 2019
• Re-elected: 2021

Professional Background

• Business: He learned the business from the ground up, moving from warehouse to office - eventually opening a business of his own.[2] He was co-owner and co-managed Axxess Furniture Inc., an Edmonton-based furniture distribution business, for 12 years
• Recognition: His work on community boards earned him both an Alberta Centennial Medal (2005), and a Queen's Diamond Jubilee Medal (2012)

Political and parliamentary roles

• Parliamentary Association Member: Canada-Africa Parliamentary Association (2021-present); Canada-Germany Interparliamentary Group (2022-present); Canada-France Inter-Parliamentary Association (2021-Present); Canada- Ireland Interparliamentary Group (2022-present); Canada-Israel Interparliamentary Group (2022-present); Canada- Italy Interparliamentary Group (2022-present); Canada-Japan Inter-Parliamentary Group (2022-present); Canadian Branch of the Assemblee parlementaire de la Francophonie (2022-present); Canadian Branch of the Commonwealth Parliamentary Association (2022-present); Canada-United States Inter-Parliamentary Group (2021-present); Canadian Section of ParlAmericas (2022-present); Canada-United Kingdom Inter-Parliamentary Association (2021- present); Canada-Europe Parliamentary Association (2021-present); Canadian Delegation to the Organization for Security and Co-operation in Europe Parliamentary Assembly (2021-2022).

Committee membership

• Member: Standing Committee on Foreign Affairs and International Development (2022-present, 2020,)
• Former Member: Standing Committee on Agriculture and Agri-Food (2020-2022); Special Committee on the COVID-19 Pandemic (2020)

Points of interest to GAC

Ukraine: Fertilizer Tariffs, Resources Access Challenges

• In June 2022, MP Epp focused on the commercial exchanges between Canada and Ukraine, especially on the modernization of the commercial agreement between Ukraine and
• During a FAAE meeting in May 2023, MP Epp introduced a motion asking FAAE to study and report to the House on how Canada can support its allies who are affected by resource access challenges stemming from the invasion and steps that the Government of Canada should take to respond to these

Global Food Insecurity

• In June 2022, MP Epp showed great interest in Canadian grain, energy, expertise in food production given the impacts of Russia’s invasion of He has also been strongly engaged at AGRI regarding fertilizer tariffs.

Sanction Regime: SEMA

• At a FAAE meeting on Bill S-8, in May 2023, MP Epp expressed concern that the government has not implemented the SEMA-related recommendations from the 2017 FAAE report on Canada’s sanctions

Russia: Wagner Group

• During a FAAE meeting on the situation at the Russia-Ukraine Border in April 2023, MP Epp urged the government to declare the Wagner Group as a terrorist

International Great Lakes Fishery Commission

• During a House statement in December 2022, MP Epp mentioned that the international Great Lakes Fishery Commission is now on the razor's edge of collapsing and that the United States are walking away, “fed up with our continued failure to honour our ”

Hedy Fry
LPC – Vancouver Centre (BC)

Election to the house of commons

• First elected: 1993
• Re-elected: 1997, 2000, 2004, 2006, 2008, 2011, 2015, 2019, 2021

Professional Background

• Studies: PhD in Medicine
• Medicine: Family Physician (1970 – 1993); President of the BC Medical Association (1990 – 1991)
• Media: Doctor columnist at CBC Television (1985 – 1988)

Political and parliamentary roles

• Parliamentary Association Director: Canada-Europe Parliamentary Association (2020 – Present); Canadian Delegation to the Organization for Security and Co-operation in Europe Parliamentary Assembly (2017 – Present)
• Parliamentary Association Member: Canadian Branch of the Commonwealth Parliamentary Association (2005 – Present); Canada-Europe Parliamentary Association (2004 – Present); Canada-United States Inter-Parliamentary Group (2005 – Present); Canadian Section of ParlAmericas (2011 – Present); Canada-United Kingdom Inter- Parliamentary Association (2009 – Present); Canadian Group of the Inter-Parliamentary Union (2004 – Present); Canadian Delegation Organization for Security/Co-operation in Europe Parliamentary Assembly (2009 – Present)
• Former Parliamentary Secretary: Minister of Citizenship and Immigration (2004 – 2006); Human Resources and Skills Development with special emphasis on the Internationally Trained Workers Initiative (2004 – 2006); Citizenship and Immigration with special emphasis on Foreign Credentials (2003 – 2004); Multiculturalism & Status of Women (1996 – 2002); National Health and Welfare (Health) (1993 – 1996)
• Former Critic: Canadian Heritage (2006 – 2009); Health (2011 – 2015)

Committee membership

• Chair: Standing Committee on Canadian Heritage (2016 – 2018/2021 – Present)
• Member: Standing Committee on Foreign Affairs and International Development (2020 – Present); Special Joint Committee on Medical Assistance in Dying (2021 – Present); Liaison Committee (2021 – Present)
• Former Vice Chair: Standing Committee on Health (2011 – 2015)

Points of interest to GAC

China

• OnMay 12, 2022, MP Fry tweeted “China surrounds Taiwan with war ships and war planes - Says its ‘just drills’ where have we heard that before?”, regarding the PLA Air Force violation of Taiwan’s

Sanction

• During a FAAE meeting on Bill S-8, MP Fry mentioned that the Committee needs to look at the balance between security, human rights and individual rights when working on the Magnitsky

Ukraine

• MP Fry’s comments regarding Ukraine often focus on the protection of democracy, given her role in the Canadian Delegation to the OSCE Parliamentary Assembly.
• At a FAAE meeting on Sexual and Reproductive Health and Rights of Women Globally in February 2023, MP Fry expressed concern about the fact that many Ukrainian women were raped by Russian soldiers and that many of them are going to neighbouring countries as refugees, where they do not have access to abortion

Vaccine Equity and Intellectual Property Rights

• During the April 25, 2022 FAAE meeting on Vaccine Equity and Intellectual Property Rights, MP Fry focused extensively on the proposed TRIPS waiver at the WTO, COVID-19 vaccine hesitancy, gender equity in vaccine uptake and educating those who are vaccine

Women

• During a FAAE meeting on Sexual and Reproductive Health and Rights of Women Globally in March 2023, MP Fry stated that she was “blown away” about the fact that in South America five women every day suffer from the morbidity and mortality effects of unsafe abortion and asked about the contraception practices in South
• At a FAAE meeting in June 2021, MP Fry questioned what officials will do to protect women and girls’ sexual and reproductive rights, specifically when they are fleeing their countries (and at high risk of being abused).
• MP Fry regularly rises in the House to speak on female genital mutilation (FGM) calling on the government engage with other nations, donors, UN organizations and civil society to take action to eliminate FGM globally.

Randy Hoback
CPC – Prince Albert (SK)

Election to the house of commons

• First elected: 2008
• Re-elected: 2011, 2015, 2019, 2021

Professional Background

• Studies: Certificate in Business Administration
• Business Background: District Sales Manager Southern Alberta at Flexicoil (1990 – 1993); International Marketing Manager Western Europe at CNH Industrial (1996 – 1999); President Hoback Enterprises inc. (1985 – 2005); Chairman at the Western Canadian Wheat Growers Association (2003 – 2005)
• Government: Parliamentary Secretary assistant (Agriculture) to David Anderson under Minister Chuck Strahl

Political and parliamentary roles

• Critic: Foreign Affairs, Trade and Development (2019 – Present); Foreign Affairs, Trade and Development (Canada-U.S. Relations) (2016 – 2017)
• Member: Canadian Section of ParlAmericas (2011 – Present); Canada-Africa Parliamentary Association (2009 – Present); Canada-China Legislative Association (2008 – Present); Canada-Europe Parliamentary Association (2008 – Present); Canada-France Inter-Parliamentary Association (2009 – 2013/2022 – Present); Canada-Israel Interparliamentary Group (2009 – Present); Canada-Japan Inter-Parliamentary Group (2009 – Present); Canadian NATO Parliamentary Association (2008 – Present); Canadian Branch of the Commonwealth Parliamentary Association (2008 – Present); Canada-United States Inter-Parliamentary Group (2008 – Present); Canada-United Kingdom Inter-Parliamentary Association (2008 – Present); Canadian Delegation to the Organization for Security and Co-operation in Europe Parliamentary Assembly (2009 – Present)

Committee membership

• Former Vice-Chair: Standing Committee on International Trade (2015 – 2019/2021 – 2022)
• Member: Standing Committee on Foreign Affairs and International Development (2022 – Present); Standing Committee on International Trade (2011 – 2022); Special Committee on the Canada–People’s Republic of China Relationship (2011 – Present)
• Former Chair: Standing Committee on International Trade (2013 – 2015)

Points of interest to GAC

ASEAN, India

• In June 2022, MP Hoback tweeted about the urgent need for permanent trade agreements with ASEAN,

Defence Relations

• During a FAAE meeting on Main Estimates in May 2023, MP Hoback criticized that the Prime Minister was quoted in the media as saying that Canada would never ever meet its 2% commitment in regard to our spending for military aid and raised concerns that such comments have an impact on Canada’s ability to be involved in groups like AUKUS and the

U.K.'s accession into CPTPP

• During a CIIT meeting in May 2022, MP Hoback asked for assurances from Global Affairs Canada that Canada will not approve the UK's accession to CPTPP until Canada has a bilateral agreement in place with the

Ukraine

• Since the beginning of Russia's invasion of Ukraine, MP Hoback has repeatedly spoken out at CIIT meetings in support of Canada's supply of arms and equipment to

Critical of progressive trade objectives

• MP Hoback is generally skeptical about the effectiveness of progressive trade objectives in trade

Canadian Natural Gas

• MP Hoback promotes the development of Canadian natural gas as a way to replace Europe's dependence on Russian gas.

Agricultural Sector

• At previous CIIT meetings, MP Hoback expresses a particular interest in protecting the interests of the agricultural sector in Canada.

Robert Oliphant
LPC – Don Valley West (ON)

Election to the house of commons

• First elected: 2008
• Re-elected: 2011, 2015, 2019, 2021

Professional Background

• Studies: Bachelor's degree in Trade, Master's degree in Theology and a PhD Theological
• Religion: Minister at the Quyon United Church (1984 – 1986); Associate Minister at the Timothy Eaton Memorial Church (1984 – 1986); Interim Senior Minister at the Bloor Street United Church (1991 – 1993); Minister at the Whitehorse United Church (1991 – 1993); Minister at the Eglinton St. George's United Church (1999 – 2008)
• Management: President and CEO at the Asthma Society of Canada (2011 – 2015)

Political and parliamentary roles

• Parliamentary Secretary: Minister of Foreign Affairs (2019 – 2021)
• Parliamentary Association Vice-Chair: Canada-Africa Parliamentary Association (2022 – Present)
• Parliamentary Association Member: Canada-China Legislative Association (2015 – Present); Canada-Germany Interparliamentary Group (2016 – Present); Canada-Europe Parliamentary Association (2015 – Present); Canada- France Inter-Parliamentary Association (2018 – Present); Canada-Ireland Interparliamentary Group (2016 – Present); Canada-Israel Interparliamentary Group (2015 – Present); Canada-Italy Interparliamentary Group (2016 – Present); Canada-Japan Inter-Parliamentary Group (2016 – Present); Canadian NATO Parliamentary Association (2015 – Present); Canadian Branch of the Assemblée parlementaire de la Francophonie (2020 – Present); Canadian Branch of the Commonwealth Parliamentary Association (2015 – Present); Canada-United States Inter- Parliamentary Group (2015 – Present); Canadian Section of ParlAmericas (2015 – Present); Canada-United Kingdom Inter-Parliamentary Association (2017 – Present); Canadian Delegation to the Organization for Security and Co-operation in Europe Parliamentary Assembly (2015 – Present); Canadian Group of the Inter-Parliamentary Union (2016 – Present)
• Former Critic: Citizenship and Immigration (Multiculturalism) (2010 – 2011); Veterans Affairs (2009 – 2010)

Committee membership

• Member: Standing Committee on Foreign Affairs and International Development (2019 – Present); Special Committee on the Canada–People’s Republic of China Relationship (2022 – Present)
• Former Chair: Standing Committee on Citizenship and Immigration (2017 – 2019); Standing Committee on Public Safety and National Security (2016 – 2017)
• Former Vice-Chair: Standing Committee on Veterans Affairs (2009 – 2010)

Points of interest to GAC

China

• At FAAE on May 5, 2022, PS Oliphant voted in favour of MP Chong’s motion regarding the Sino-Tibetan dialogue, that Canada should support the facilitation of negotiations between the People’s Republic of China and the Central Tibetan Administration, while adding an amendment to “[enable] Tibet to exercise genuine autonomy within the framework of the Chinese”.

Ukraine

• During a FAAE meeting in May 2022, PS Oliphant strongly condemned Russia's invasion of Ukraine, calling it ”barbaric” and stated that Canada will continue to stand in solidarity with

Afghanistan

• On January 1, 2021, PS Oliphant tweeted: “Canada and Canadians cannot and will not abandon the Afghan people. Despite the tremendous challenges on the ground, we continue to get humanitarian assistance through using trusted multilateral partners.”

Sanctions Regime

• At a FAAE meeting on Bill S-8 in May 2023, MP Oliphant recognized the efforts of GAC officials in implementing Canada's sanction regime and stated that the sanctions regime in Canada is one of the most profound in the world. NOTE: let’s add the short title beside S-8 when first referenced.
• During another FAAE meeting on Bill S-8 in May 2023, MP Oliphant mentioned the importance that Canada apply its sanctions in concert with other countries, in order to be more

LGBTQ Rights

• During a FAAE meeting on Sexual and Reproductive Health in March 2023, MP Oliphant recognized the right of lesbian and gay as human rights and asked a member of the Republic of Uganda how they address the human rights, the health and the well-being of lesbians in their

Heather McPherson
NDP – Riding (PR)

Election to the house of commons

• First elected: 2019
• Re-elected: 2021

Professional Background

• Studies: Bachelor's degree in Secondary Education and teaching (English Major) and a Master's degree in Theoretical, Culture and International Studies in Education.
• Cooperation: Volunteer Team Leader Médecins Sans Frontières (MSF) (2001 – 2003); Program Officer at the Canada World Youth (2003 – 2007); Executive Director Alberta Council for Global Cooperation (2008 – 2019)

Political and parliamentary roles

• Critic: Foreign Affairs, Trade and Development (2019 – Present)
• Deputy Whip of the N.D.P. (2021 – Present)
• Deputy Critic: Canadian Heritage (2021 – Present)
• Parliamentary Association Vice-Chair: Canada-Africa Parliamentary Association (2020 – Present)
• Parliamentary Association Member: Canada-Africa Parliamentary Association (2019 – 2021); Canada-Ireland Interparliamentary Group (2019 – 2021); Canadian NATO Parliamentary Association (2019 – 2021); Canadian Branch of the Commonwealth Parliamentary Association (2019 – 2021); Canadian Section of ParlAmericas (2019 – 2021); Canadian Group of the Inter-Parliamentary Union (2019 – 2021)
• Former N.D.P. Deputy House Leader (2019 – 2021)

Committee membership

• Vice-Chair: Special Committee on the Canada–People’s Republic of China Relationship (2022 – Present)
• Member: Standing Committee on Foreign Affairs and International Development (2021 – Present); Special Committee on the Canada–People’s Republic of China Relationship (2022 – Present)
• Former Member: Standing Committee on Canadian Heritage (2020 – 2021)

Points of interest to GAC

Human Rights

• In a June 2023 speech on Bill C-281, International Human Rights Act, MP McPherson expressed her support toward the bill and criticized the decision of the government to vote against her amendment to include a national human rights strategy that would create a benchmark to measure how well the government of the day is doing in protecting human
• During the same speech, she expressed her support to offer Vladimir Kara-Murza honorary citizenship in Canada to help protect him.
• At a FAAE meeting in May 2023, MP McPherson stated that Bill C-41 is used to weaponize international development instead of preventing terrorism from being funded.

Israel and Palestine

• During a FAAE meeting in May 2023, MP McPherson introduced a motion asking that in light of recent events in Israel and Palestine, the committee conduct a study on the actions Canada should take to foster peace and respect for human rights and international law in the region.

Russia/Ukraine

• During a May 3, 2022 SDIR meeting, MP McPherson was very critical of the Russian government and their alleged war crimes and crimes against humanity in Ukraine.

Sudan

• At a FAAE meeting in May 2023, MP McPherson mentioned that she was seized with the violence that is happening in Sudan and that she is worried about a proxy war and that the conflict spill beyond its

Arms to Saudi Arabia

• During discussion around human rights in the House and at committees, MP McPherson has regularly criticized the decision of the government to sell arms to Saudi Arabia despite its poor human rights record.

Disarmament/Cluster Munitions

• During a FAAE meeting on Bill C-281 in March, MP McPherson proposed that Canada show more leadership on disarmament and to encourage other NATO members to increase their ability to limit the use of cluster

Iran

• At a FAAE meeting in February 2023, MP McPherson introduced a motion asking the committee to study the current situation in Iran in term of human rights.

Peru

• During a FAAE briefing on the situation in Peru in February 2023, MP McPherson asked GAC to provide information on how Canada concluded an Arms Trade Treaty with Peru and if the treaty is being evaluated considering the deteriorating human rights conditions in Peru at the

Afghanistan: Women/Girls

• MP McPherson has been a strong voice on Afghanistan, especially on women and girls in the She tweeted on December 16, 2021: “I am completely devastated by this news. A 10-year-old girl, a child, died because her family supported the Canadian military and Canada did not protect them. The Liberals have failed this girl, this family, and all the Afghans who have been abandoned.”

Development

• MP McPherson has also repeatedly raised Canada’s current Official Development Assistance (ODA) levels at both FAAE and SDIR, and has regularly called on the government to meet its target of 7 percent of GNI.

Vaccine Equity and Intellectual Property Rights

• During the April 25, 2022 FAAE meeting on Vaccine Equity and Intellectual Property Rights, MP McPherson was very critical of AstraZeneca and Pfizer for their COVID-19 vaccine procurement practices and asked “when will it be enough money for you” that vaccines could be provided without cost and pointed to Pfizer’s $37 billion profit for their COVID-19

Nord Stream 1 Gas Turbine

• During a June 2022 speech delivered in the House of Commons, MP McPherson strongly criticized the government's decision to allow the Nord Stream 1 turbines to be sent to Germany and returned to Russia and urged the government to reverse this

Sameer Zuberi
LPC – Pierrefonds – Dollard (QC)

Election to the house of commons

• First elected: 2019
• Re-elected: 2021

Professional Background

• Studies: Bachelor's degree in Pure and Applied Mathematics and a Bachelor's degree in Law
• Law: Legal Researcher at Law Office Montreal (2010 – 2012)
• Administration: Diversity & Engagement Officer at the Faculty of Medicine of McGill University (2016 – 2019)
• Military: Reservist in the Canadian Armed Forces Reserves (1997 – 2002)

Political and parliamentary roles

• Parliamentary Secretary: Minister of Diversity, Inclusion and Persons with Disabilities (September 2023 – Present)

Committee membership

• Chair: Subcommittee on International Human Rights of the Standing Committee on Foreign Affairs and International Development (2022 – Present)
• Vice-Chair: Standing Joint Committee for the Scrutiny of Regulations (2022 – Present)
• Member: Standing Committee on Foreign Affairs and International Development (2022 – Present); Standing Joint Committee for the Scrutiny of Regulations (2020 – Present)
• Former Member: Standing Committee on Public Safety and National Security (2021 – 2022); Standing Committee on Veterans Affairs (2021); Standing Committee on Justice and Human Rights (2020 – 2021); Standing Joint Committee for the Scrutiny of Regulations (2020 – 2021)

Points of interest to GAC

Ukraine

• On March 24, 2022, at a FAAE meeting, MP Zuberi asked whether Canada is working with its allies to create an off- ramp for Vladimir Putin that allows him to save face to end the conflict.
• On May 6, 2022, MP Zuberi met with Canada’s Ambassador to the UN to discuss the human rights situation in Ukraine.

China: Uyghurs

• MP Zuberi has repeatedly condemned China's actions against the Uyghur minority at FAAE meetings and supported the use of Magnitsky sanctions to target those responsible for these

Climate Change: NATO

• During Question Period (QP) in June 2023, MP Zuberi explained the impact and the risk of climate change and asked MINA how Canada’s climate leadership through the NATO climate change and security centre of excellence will support the alliance in addressing the consequences of climate change.

Pakistan

• At QP in May 2023, MP Zuberi expressed concern over the developing political crisis in Pakistan and asked MINA about the action Canada has taken to follow the situation in

Global Food Security

• During a FAAE meeting on the Main Estimates in May 2023, MP Zuberi mentioned that as a G7 nation, Canada has an important obligation to give it back to the world and asked MINE what Canada is doing to help shore up food security on the global

Senate AEFA committee report

• On December 6, 2023, the Senate Committee on Foreign Affairs and International Trade (AEFA) released its report entitled, “More than a Vocation: Canada’s Need for a 21st Century Foreign Service”.
• The report underscores the need for reinvestment in Canadian diplomacy and makes 29 recommendations to ensure GAC and the Canadian foreign service are effectively equipped to meet the complex challenges of the future.
• Overall, the report and its recommendations show strong alignment with the findings and actions outlined in the Future of Diplomacy paper and Transformation Implementation Plan.

Background

• In late February 2022, the Chair of Standing Senate Committee on Foreign Affairs and International Trade authorized a study on the “Canadian foreign service and elements of the foreign policy machinery within Global Affairs Canada”.
• During the study, the committee heard from over 50 witnesses during 16 sessions including former and current GAC ministers, deputy ministers, heads of mission, network representatives, other government departments and agencies, and academics.
• The committee also visited Canadian missions in Washington, London, Oslo and Berlin.
• The report has been released but has not yet been formally tabled in the Senate, once it is tabled the government will have 150 days to respond (likely to be due in May/June 2024).

Summary of recommendations:

• Enhancing public communications and outreach (recommendation 1);
• Breaking silos between the different streams of the organization and enhancing development expertise (recommendations 2, 3, 4 and 5);
• Identifying clear policy leads within the Government of Canada (recommendation 6);
• Examining the current senior management structure and ensuring GAC’s senior leadership have in-depth knowledge and experience in international affairs (recommendations 7 and 8);
• HR-related recommendations on recruitment, training/expertise, professional development, mentorship, diversity, secondment/interchange etc. (recommendations 9, 10, 11, 12, 13, 14, 19, 20, 21, 26);
• Taking a more active role in conflict mediation and resolution (recommendation 15);
• Maintaining the Legal Affairs Bureau and Legal Advisor position (recommendation 16);
• Improving official and foreign language capacity (recommendations 17 and 18);
• Providing opportunities for Locally Engaged Staff (recommendation 22);
• Modernizing the Foreign Service Directives and increasing support for families with an emphasis on accessibility (recommendations 23, 24, 25);
• Examining the possibility of seeking separate agency status for GAC (recommendation 27) and affirming GAC’s status as a central agency (recommendation 28); and
• Establishing an advisory group with internal and external participation to assist with implementation (recommendation 29).

Ministerial Q&A – GAC Transformation with FAQ on Implementation

Study on Canada’s Diplomatic Capacity

Anticipated questions & suggested responses for topics not included in other briefing materials.

1. GAC Transformation (general)

1.1 What progress has been made since the launch of the Future of Diplomacy: Transforming Global Affairs Canada discussion paper in June of 2023?

The world is increasingly challenging for Canada, yet GAC is not fit to respond:

• The world is increasingly complex and changing rapidly.
• Canada is facing a shift in economic and political power away from its traditional allies and partners, a return of great power competition, increasing vulnerability to transnational threats, and rapid technological change.
• The scale, scope and pace of recent global crises have demonstrated to Canadians that security and prosperity cannot be taken for granted.
• Canadians expect their government will promote and protect their interests abroad.
• Yet Global Affairs Canada is not fit-for-purpose to respond.
• As per the Future of Diplomacy Report, Canada needs to strengthen its foreign ministry by:
  • Renewing its foreign service and equipping its full workforce to deliver, including better supporting its local staff at Canada’s missions abroad.
  • Strengthening its response to overlapping global crises.
  • Seizing the opportunities and countering the threats posed by emerging technologies.
  • Opening itself up and better connecting with Canadians and the world.
  • Using GAC’s full toolset to collaborate across government in responding to emerging policy issues of national interest like critical minerals and climate change.

What GAC is doing about it:

• To fill these and other gaps, in September GAC launched an ambitious and comprehensive Transformation Implementation Plan focused in key areas:

1. Renewing Canada’s foreign service: GAC needs to invest in its foreign service, including recruitment and staffing, training, making the foreign service more representative of Canada’s diversity and official languages, and supporting the families of diplomats that go abroad, especially to the most challenging contexts.

GAC has hired 200 foreign service officers in the last year, streamlined its assignment process to give officers more time to prepare, and reallocated internal resources to provide official language training to new recruits.

2. Strengthening crisis management: GAC is doing well but can be better. GAC is conducting a review of its crisis management processes so that it can better respond to the new age of permacrisis. We are looking at maximizing the use of GAC’s toolset, including consular services to Canadians, humanitarian aid, and diplomacy. GAC is also working to deploy quickly and align our workforce’s expertise and skills faster when crises occur.

3. Becoming more open and connected to Canadians and the world: GAC needs to be more open and connected to Canadians and outside expertise. GAC will launch an Open Insights Hub later this year to regularly consult academics, think tanks and the private sector to inform GAC’s policies and programs.

4. Building new policy expertise on issues of national interest, including crosscutting challenges like critical minerals and climate change. In November, GAC appointed a new Senior official for Cyber, Digital and Emerging Technology to coordinate across GAC’s toolset, with other government departments and with allies and partners internationally on these issues.

5. Becoming more agile: This year, GAC is taking a tough look at how it is organized and operates to align resources with priorities, make better use of financial resources, and strengthen decision-making overall.

• This includes focusing GAC’s workforce on the highest value work with the recent launch of a red tape reduction exercise. Priorities this year include:
  • Empowering colleagues at missions and HQ to make financial decisions at the lowest possible levels, reducing the time spent in bureaucratic processes.
  • Using AI to efficiently to brief decision-makers in advancing Canada’s interests.
  • Drastically reducing the time it takes to get vital IT equipment to the thousands of employees that change positions at GAC each year.
  • Making procurement processes clearer and easier.
  • Simplifying burdensome approval processes for booking and organizing travel.
  • Streamlining hybrid meetings tools so employees can collaborate faster and better.

6. Increasing our influence where it matters: we need to be present abroad where it matters most for Canada’s influence and footprint, to respond to a rapidly changing world. This requires new and sustained investments. To make the most of these investments, GAC is developing new tools and decision-making approaches this year to regularly assess and adjust Canada’s mission network.

7. All these changes are underpinned by our culture: For the transformation efforts to be lasting, we also need to address the organizational culture. We recently launched the North Star statement, a common vision that outlines our commitment to better deliver our global agenda that spans diverse program lines, functions and contributions, while remaining open, agile and connected with Canadians. I am committed to ensuring the highest ethical standards in keeping with the Clerks’ focus on Values and Ethics. This is why GAC published its first ever annual report on addressing wrongdoing and misconduct at GAC to increase the visibility and confidence of our staff in our systems of accountability. We will also be modernizing our Code of Values and Ethics to consider important issues such as reconciliation.

1. Why is reforming GAC so essential right now?
   • The environment in which Global Affairs Canada operates is increasingly complex, volatile, and uncertain. Economic and political power are shifting away from our traditional allies and posing threats to multilateralism, we are seeing a return of great power competition, rapid technological change, overlapping global crises and increasing transnational threats. The security and prosperity that Canadians have taken for granted since the end of the second world war are at risk.
   • We are increasingly being asked to respond to situations and events that are without precedent using tools, structures and processes designed for a different time.
   • Faced with similar pressures, many of Canada’s allies and partners are re-investing in their diplomatic capacities. Canada must do so now, or risk losing ground to partners and competitors alike.
2. In an environment of fiscal constraint, what aspects of the transformation are being prioritized and will the full scope of transformation be possible without additional resources?
   • Successful implementation of the transformation agenda over the long term will require concerted and consistent reallocation of existing financial resources.
   • We are ensuring that we are doing the most we can with what we have, including internal reallocations towards advancing priorities such as developing a mechanism to adjust Canada’s presence abroad with more agility and flexibility, mapping the skills and competencies of our workforce so we can better train staff and reallocate capacity to respond to emerging issues, supporting a new role for a Senior Coordinator for Cyber, Digital and Emerging Technology, mobilizing employees and managers from across the organization to help reduce red tape, grants and contributions modernization, and looking at how we might need to adjust or restructure the organization to maximize efficiency.
   • Nevertheless, in order to achieve the full scope of the transformation that Canada needs, additional resources will be required.
   • Now is the time to act so that we can equip ourselves to meet the challenges we know are on the horizon.

2. Organizational Culture

2.1 How are you working to ensure that bilingualism is improved within the department?

• I am committed to ensuring a fully bilingual work environment.
• 84% of GAC positions are bilingual, this is about twice the rate of the public service as a whole.
• GAC reflects linguistic duality in its workforce. 41% of GAC’s workforce is Francophone 11 percentage points more than the Public Service average (30,2%).
• Among GAC Executives, 30% are Francophone, as compared to 22.8% of the Canadian population.
• This said, we must create a workplace that truly fosters the use of both official languages, and more work is needed.
• As a key measure to promote bilingualism within Global Affairs Canada, the department will centralize and expand access to official-language training, independent of their professional group. It will also need to increase the linguistic profile of all positions that have supervisory functions in line with both the Treasury Board Secretariat’s directive scheduled to come into force in June 2025 and our obligations under the Act for the Substantive Equality of Canada’s Official Languages.
• More investment is required to ensure that the department takes greater advantage of bilingualism as an undeniable asset of Canada’s international engagement.
• Additional resources would be needed but these investments would ensure greater diversity in the organization, including from across Canada.

2.2 How is Global Affairs demonstrating its commitment to diversity and inclusion in the workforce, including linguistic and geographic diversity?

• It is a government priority to commit to an inclusive workplace where all employees feel welcome and comfortable.
• I know the Department is genuinely committed to surpassing compliance with the Employment Equity legislation and has developed the relevant governance structure to support these initiatives namely the Anti-Racism Advisory Committee and a Diversity & Inclusion Council. Through these initiatives:
  • The department exceeds targets for many equity-seeking groups (ex. Indigenous peoples (5.3% CBS), visible minorities (26.8% CBS) and Black (5.4% CBS).
  • There is an under-representation of Persons with disabilities at GAC, and we are engaging in targeted recruitment and other efforts through our Accessibility Action Plan (launched in November 2023).
  • Women represent 49% of our Executives and visible minorities represent 14.4%.
  • Currently, 48% of Heads of Missions are women and 14% are visible minorities and more efforts are being made to increase our HOM representation for Black people, Persons with Disabilities and Indigenous Peoples.
  • Francophones are well represented at GAC, with 41% of employees who have French as their first Official Language.
• Through the department’s Anti-Racism Strategy, we are ensuring there is a talent pipeline to the executive level through a sponsorship program for racialized groups and Persons with Disabilities. Our first cohort of 9 employees recently graduated to EX level, and GAC is screening in appliances for our second cohort.
• The Transformation Implementation Plan reinforces the department’s commitment to advancing the implementation of the department’s Equity, Diversity and Inclusion (EDI) Plan and apply an EDI and intersectional GBA+ lens to all transformation initiatives including through expanding and accelerating the implementation of the Anti-Racism Strategy, the Action Plan on Reconciliation with Indigenous Peoples and the Accessibility Action Plan.
• I remain committed to creating an equitable and inclusive GAC that is representative of Canada in all of its diversity.

3. Human Resources

3.1 What are GAC’s plans for the reform of post-secondary recruitment and how can this process ensure better geographic and linguistic diversity in the workforce?

• GAC’s goal is to attract, nurture and retain talent, in Canada and abroad, by being a competitive employer, prioritizing career development and learning and investing in the renewal of its workforce.
• Over the past 10 years, recruitment of new foreign service officers slowed leading to the understaffing of foreign service positions. This has eroded diplomatic capacity and reduced influence. Steps are underway to reverse this trend ensuring that regular external recruitment processes and internal staffing exercises take place to bring new talent into the Department and open paths for all employees to move across classifications to fill the existing gaps in the foreign service and to maintain this in the future.
• In 2023, GAC hired 200 Foreign Service Officers through external and internal recruitment exercises. In 2024, we expect to hire up to 100 entry-level Foreign Service Officers and qualify a pool of senior FS03 Foreign Service Officers to fill gaps at that level.
• This coming year, we also aim to begin work on reforming our approach to post-secondary recruitment for entry-level recruitment which will include a new strategy with domestic outreach to Canadian educational institutions to improve representation from across Canada.
• Our aim is to have enough Foreign Service Officers to fill all relevant position while also providing opportunities to pursue training and secondments outside the department and be available for surge capacity if needed.

3.2 The Future of Diplomacy paper noted that GAC would strengthen foreign language knowledge and then subsequently suspended training, how is this being addressed, and will foreign language capacity be made a priority?

• Language proficiency is an important competency for diplomats. It is essential to speak to people in their own language and to understand a society - language opens a window to a country’s mentality and culture.
• One third of GAC’s positions abroad require proficiency in a foreign language and on average there are over 100 staff on full-time language training in any given year.
• Where needed and subject to availability of resources, part-time and maintenance training are also offered and encouraged – overall about 575 staff take some foreign language training every year.
• GAC remains committed to strengthening its employee’s abilities through robust foreign language training and testing programs.
• In line with this, the Transformation Implementation Plan commits to “increase capacity in strategic foreign languages, based on ongoing mapping of existing ones, and ensure staff meet foreign-language requirements prior to posting”.
• However, foreign language training is both expensive for the department and time-consuming for staff, with the current resources available we would not be able to expand our capacities as much as we would like to.
• Due to financial constraints, some part-time training was suspended this fiscal year, but training our staff remains a priority

Some witnesses have noted the benefits of limiting political HOM appointments, how many non-career diplomats are currently serving as HOMs and do you think there are negative impacts to over-reliance on political appointees?

• Heads of Mission are appointed by the Prime Minister, who acts with Canada’s interests in mind when appointing Canadian representatives abroad.
• The vast majority of our Heads of Mission are career diplomats with Backgrounds in statecraft and have robust experience serving Canada internationally.
• In certain cases, outside experience can be advantageous and external individuals may have specific skills and expertise to bring to a HOM appointment.
• It has always been the case that there are some appointees from outside of the career foreign service, and as a method of making GAC more open to other sectors and industries, I think this is a good thing.

3.3 What would be the long-term impacts if we fail to improve the conditions of employment for Locally-engaged staff (LES)?

• Locally Engaged Staff are a critical part of our workforce abroad and essential to Canada’s ability to deliver on its mandate.
• Local staff make up 80% of our staff at missions abroad. They help bring continuity, as well as local knowledge, language and networks that Canada-based staff don’t have.
• The smooth functioning and continuity of Canada’s programs and missions abroad depends to a significant degree on the high quality and commitment of its Locally Engaged Staff.
• In 2021, the department launched a new directive on LES employment and staffing and the LES Benefits Modernization initiative to improve management and benefits for LES. The department provides tailored training to LES.
• Jobs in Canadian missions are typically highly sought after because we are seen as a good employer. Though our missions continue to attract and retain talented candidates for local staff positions, more can be done.
• In particular, more investment is needed to ensure we are meeting the legal requirements of the more than 115 labour jurisdictions we operate in.
• In addition to improving the conditions of employment, Global Affairs has also established protocols to safeguard the well-being of all mission employees in times of crisis, including LES.

3.4 The Senate AEFA committee report recommended that GAC study the possibility of seeking separate agency status, in your opinion, should GAC seek to become its own autonomous employer? What would be the added benefits of this and what would be the challenges?

• Service abroad within Canada’s global network of missions brings unique challenges and moving to “separate employer” or separate agency status may help Global Affairs Canada respond more effectively.
• Studying the possibility of Global Affairs Canada having “separate employer” status is a recommendation of the Future of Diplomacy initiative, and part of the Transformation Implementation Plan. We will have more detailed discussions on this deliverable over the coming weeks and months, involving key stakeholders like the Treasury Board Secretariat.
• Irrespective of the scenario and the modality, the department will work within existing frameworks to ensure Global Affairs Canada can optimally manage its workforce.

3.5 What percentage of the Canada-based workforce is abroad versus at headquarters? How does this compare with our like-minded allies?

• Around 20% of staff at missions are Canada based staff, this means we rely heavily on our local staff who make up 80% of staff at missions abroad.
• Out of all our Canada-based staff, 18% are assigned abroad, while 82% are working at HQ and in regional offices across Canada.
• Partner countries proportion of national-based staff at missions vs HQ:
  • France – 73%
  • USA – 39%
  • Sweden – 38%
  • UK – 29%
  • Netherlands – 20%
  • Australia – 19%

3.6 Should we have a greater presence abroad?

• Canada is in a better position to defend and support its strategic interests when it is present on the ground. Our international mission footprint is made up of 182 missions abroad across 112 countries and is aligned to respond to strategic priorities and deliver on ministerial commitments.
• Most recently, we have established a fully dedicated mission and permanent observer to the African Union in Addis Ababa; we are converting Canadian offices in Estonia, Lithuania, Slovakia and Rwanda into full embassies and high commissions with resident heads of mission; and opened new missions in Armenia, Fiji and Milan. The department will also further strengthen its presence at its embassy in Latvia this year.
• Despite these investments, Canada still has representation in fewer countries than our peers and competitors.  
• As part of the Transformation plan, GAC is developing a mechanism to adjust Canada’s presence abroad with more agility and flexibility, ensuring we are there where it matters.
• However, having more boots on the ground in the right places working with partners to meet our international objectives is expensive. We cannot increase our presence without the addition of new resources.

4. Global Presence

4.1 How often should we be reviewing and adjusting our global footprint? What is the process in place for this?

• Global Affairs reviews Canada’s global footprint annually for positions within GAC as well as consulting with partner federal departments and the provinces who also have a presence abroad.
• GAC is currently undertaking a review of all the tools and governance mechanisms to determine presence abroad and developing a framework that will better integrate trade, political, development, and consular processes to take a more holistic approach to reviewing and adjusting Canada’s presence abroad (including the consideration of innovative models of representation abroad) while ensuring resources are allocated efficiently and sustainably and forward-looking.

4.2 With the decreased salience and efficacy of traditional multilateral spaces, is increased multilateral engagement truly in our national interest?

• Increased multilateral engagement is absolutely in our national interest as a means to safeguard the rules-based international system, address climate change, achieve Sustainable Development Goals, and respond to humanitarian and migration crises.
• Although Canada is a proud founding member of the United Nations, our overall presence and ability to exert influence abroad has not kept pace with evolving global realities nor with recent investments made by countries that don’t share our values.
• Canada’s representation at the UN today is one of the lowest among G7 and G20 partners and competitors alike, despite Canada’s rank as the UN’s sixth largest financial contributor.
• Countries that don’t share our values are using the UN to advance their own agendas including on international norms and standards, and limiting human rights and gender equality- important values to Canadians.
• If we fail to be present at the tables where international norms are created and unable to influence decision-making on key issues across the UN system, the resulting order will undermine Canada’s interests and values.
• Strategically strengthening our presence in the international bodies that matter most to Canada by updating the baseline footprint of our UN missions, and by recruiting and promoting Canadian candidacies to the UN and to other international organizations is critical to our multilateral engagement.
• Continued Canadian engagement will work to ensure a more effective, efficient, relevant and accountable UN which can withstand attempts to weaken democracy, human rights and the rule of law.

4.3 Cultural and parliamentary diplomacy are extremely important in advancing Canada’s interests and values abroad, why wasn’t there a stronger emphasis on this in the Future of Diplomacy paper? Will GAC release a cultural diplomacy strategy? </p

• The Senate Committee on Foreign Affairs and International Trade recently released a report on Cultural Diplomacy that further reinforces the importance of soft diplomacy in our foreign policy.
• Cultural diplomacy is a key tool to advance foreign policy priorities.
• It amplifies our presence abroad, strengthens our leadership on values and priorities, and builds and nurtures relations with foreign audiences.
• It is also a tool to engage pragmatically with countries with which we do not always agree, as the sharing of cultures is a way to open conversations and find mutual areas of understanding.
• Cultural diplomacy remains a key tool to advance Canada’s foreign policy and trade priorities even in light of the Mission Cultural Fund sunsetting last year.
• In particular, missions leverage other existing and ongoing programs available to the mission network, including by working with the Department of Canadian Heritage and its portfolio agencies whose support for Canadian artists and cultural stakeholders internationally can complement the work of cultural diplomacy by missions.

5. Policy Capacity

5.1 Is a review of Canada’s Foreign Policy needed? If so, who should conduct it and what might the timelines be?

• As I highlighted in November of last year at the Economic Club of Canada, Canada’s Foreign Policy has two guiding principles. First: vigorously defending our sovereignty; and second: using pragmatic diplomacy, to engage countries of different perspectives in order to prevent an international conflict.
• At this moment of global crises and deep uncertainty, we need to be focused on these priorities and on ensuring that our diplomatic capacity is fit to respond to the challenges we face.

5.2 With regard to our international engagement, are we spreading ourselves too thinly, do we need to refocus our capacity on a smaller set of areas where we can have a greater impact?

• The world is becoming more complex, and the challenges we face are becoming more demanding.
• Increasingly, we are facing issues that have no borders and require global cooperation, such as climate change, critical minerals, and cybersecurity. The pandemic was another recent example.
• We are developing new tools and approaches to align Canada’s presence abroad with a rapidly changing world to increase our influence and engagement where it matters most.
• We need to be able to engage with all our partners, with countries that share our values but also with countries who challenge them.

5.3 How is GAC working to ensure it is equipped to respond to the increasing number and severity of global crises we face?

• In the past two years alone, GAC has contributed to whole-of-government responses to overlapping and protracted crises including diplomatic, conflict, as well as environmental and humanitarian disasters.
• These include crises that have required heavy lifts across the department such as the fall of Kabul, Ukraine, Pakistan, Türkiye and Syria, Sudan, Haiti, and Israel/Gaza.
• The scale, scope and pace of recent crises have demonstrated that they are complex, challenging to manage and deliver on, and require significantly more resources than before. Crisis management will remain a core and growing business line for GAC over the years to come.
• A comprehensive review of our crisis management capacities, tools and structures is currently underway, aimed at strengthening GAC’s response to the evolving diversity and complexity of global crises.

5.4 How is GAC making efforts to become more open?

• A 21st-century global affairs department needs to anticipate, analyze, understand and address emerging foreign policy issues. To do so effectively, it must be open to the breadth and wealth of globally minded expertise and international experience available, including at universities and think tanks in Canada and abroad, diaspora populations, in other federal government departments and at other levels of government.
• The department is making strides towards becoming more open. Including through new partnerships and a readiness to facilitate exchanges and hiring to increase expertise, coordination and intersection of domestic and global issues.
• We have begun increasing our engagement with external institutions and creating a new Open Insights Hub to facilitate even more connections both internally within the department across all streams as well as outside.

6. Tools and Processes

6.1 How is GAC adapting to address increasing cyber threats and foreign interference?

• This is indeed a serious and increasing threat to Canada’s national security.
• Foreign interference is not new, and we know that we are not the only country facing the issue. We are refining the existing tools and are creating new ways to respond to this evolving threat.
• GAC works extensively with other departments to monitor elections and leads on uncovering and attributing disinformation campaigns. We are also working with our international partners to address transnational repression, a subset of foreign interference.
• GAC is working extensively with Public Safety to establish a Foreign Influence Transparency Registry and to update the existing legislation with a goal to bolster Canada’s ability to prevent and respond to foreign interference.
• We are also working diligently with Shared Services and the Communications Security Establishment to strengthen our cyber security posture and modernize our international IT infrastructure to address growing threats in this area.
• We are committed to protecting Canadian society from all forms of foreign interference.

Responsive: Recent Cyber attack on GAC.

• GAC is a frequent target of sophisticated cyber threats. We continue to equip our personnel with advanced security technologies essential to fulfilling our mandate, while enhancing our cybersecurity capabilities such as:
  • Securely connecting GAC's HQ and all missions abroad.
  • Stabilizing GAC's IM/IT systems and infrastructure to mitigate business risk, while reducing the possibility of critical outages, infrastructure challenges, and cyber intrusions. This requires working more closely with other government departments, such as Shared Services Canada, The Center for Cybersecurity, and Treasury Board.
  • Modernizing GAC's international network and infrastructure to improve user experience, enhance performance, and enhance resilience against cyber threats across GAC's global IM/IT footprint.

6.2 How will the Red Tape Reduction effort help achieve the goals of the GAC Transformation? What is the current status of the work?

• The department is focused on tackling rigid and burdensome policies and business processes that impede efficiency and innovation. In response, the department launched a Red Tape Reduction initiative with the goal of simplifying the bureaucratic processes, incentivizing innovation and encouraging smart risk taking both at missions and Headquarters to better serve Canadians abroad and represent our national interests.
• Efficiencies have already been generated by making it easier and quicker for employees to receive the necessary equipment to do their jobs.
• Immediate next steps include streamlining onboarding process for new employees, using AI to automate basic aspects of briefing notes to allow for more time to be spent on strategic sections, streamlining administrative processes related to travel and procurement, and reducing the administrative requests placed on missions.
• GAC has launched a major exercise to reduce bureaucratic waste and focus our people on higher value work for Canadians. We are advancing some quick wins that will be executed this year. For example, we will drastically reduce the time and resources it takes for employees to get the IT equipment they need to do their jobs; as a department that has a massive annual rotation of staff and relies on tech to deliver for Canadians – we expect this will save hundreds of hours of GAC’s workforce’s time and increase productivity significantly. GAC has launched an initiative to streamline its onboarding processes for all employees, including the foreign service, in order to get new colleagues up to speed more quickly, saving time and resources GAC is planning an initiative to use AI to decrease red tape and increase efficiencies, including to automate basic aspects of our briefing processes, which is a big part of GAC’s business. GAC is also streamlining administrative processes related to travel and procurement, and reducing the administrative requests placed on missions abroad.
• Red tape reduction efforts also includes a major multi-year effort to modernize how the department manages over $5B annually in grants and contributions:
  • This initiative complements the Grants and Contributions transformation which focuses on improving International Assistance operations.
  • The goal is to build a system for International Assistance that is more responsive, effective, transparent and accountable to the needs of its programs and partners—one that generates greater value for every dollar spent.
  • The Grants and Contributions Transformation Initiative reflects an integrated and harmonized approach to Canada’s global engagement efforts.

Backgrounder on the Transformation Implementation Plan

• To adapt to the rapidly changing international environment, Global Affairs Canada (GAC) is implementing a multi-year organizational transformation to ensure that it is well equipped to serve Canadians in meeting the global challenges of today and the future.  
• The Transformation Implementation Plan is organized along 5 pillars: Organizational culture, People, Global Presence, Policy, and Processes and Tools.
• Significant internal reallocation has taken place to enable early progress and this reinvestment culture will continue, but to achieve the full scope of the transformation envisioned, additional resources will be required.

Supplementary messages

• We have taken a hard look in the mirror and developed a multi-year plan to address key challenges. It is comprised of 88 deliverables along 5 pillars.
• We are focusing heavily on our people. We are building capacity in key competencies, investing in long-term career development, and placing emphasis on increasing recruitment of our foreign service, which has not been keeping pace with the changes we are seeing internationally.
• For the transformation efforts to be lasting, we also need to address the organizational culture. The face of GAC has changed in the last decades and our culture needs to adapt to this. We recently launched the North Star statement, a common vision that outlines our commitment to better deliver our global agenda that spans diverse program lines, functions and contributions, while remaining open, agile and connected with Canadians.
• GAC has launched a major exercise to reduce bureaucratic waste and focus our people on higher value work for Canadians. For example, we will reduce the time and resources it takes for employees to get the IT equipment they need to do their jobs; as a department that has a massive annual rotation of staff and relies on tech to deliver for Canadians – we expect this will save significant workload and increase productivity .  GAC has launched an initiative to streamline its onboarding processes for all employees, including the foreign service, in order to get new colleagues up to speed more quickly, saving time and resources 
• GAC also wants to be more open as an institution. GAC is designing a new Open Insights Hub, to be launched in 2024, that will act as a consistent, coherent and coordinated interface with academic institutions, think tanks, and other private sectors in Canada and abroad.
• Keeping up with prolonged and multiple overlapping crises has been a challenge. This year, we are undertaking a review to strengthen our capacity to coordinate responses and manage crises with agility.
• We are developing a methodology and tools for regularly reviewing and rebalancing our presence abroad to ensure we are where we need to be when it matters most. However, increases in our presence abroad will require new resources.
• Given our amalgamated mandate, we are also looking to improve our coordination with other government partners on cross-cutting issues like crisis management, critical minerals and emerging technologies including AI.
• Finally, we are investing in our IM/IT programs, tools, and systems to better make use of emerging technologies and guard against cyber-attacks including by harnessing AI to work better and faster.

Update

• Early progress includes launching the Red Tape Reduction effort to streamline bureaucratic processes and incentivize innovation and encouraging smart risk taking, releasing the North Star Statement and the annual Wrongdoing Report, launching internal foreign services recruitment processes, designing the Open Insights Hub, announcing a Senior Coordinator for Cyber, Digital and Emerging Technologies and developing tools for rebalancing Canada’s presence abroad.
• GAC is developing metrics and indicators to monitor the progress and effectiveness of all its initiatives to ensure a transparent and accountable transformation process.
• Insights from the Senate AEFA Committee’s Report as well as the outcomes of the House FAAE Committee’s study will be incorporated into the TIP to bolster the transformation effort.

Comparisons to Likeminded Countries

• Canada’s overall presence and ability to exert influence abroad has not kept pace with likeminded partners and competitors.
• Other foreign ministries are also reflecting on how to adapt to complex global context. Common themes include human resources; expertise; presence abroad; public engagement; & tech.
• Compared to other countries, Canada spends less per capita on its foreign ministry, is represented in fewer countries and has a smaller presence in key multilateral fora.
• Canada also relies more on local staff than likeminded and has a smaller proportion of Canadian diplomats abroad than likeminded.
• As outlined in the Future of Diplomacy report and the Transformation Implementation Plan, Canada needs to invest in its foreign ministry across the board in order to have influence globally and advance Canada's interests in a tough global environment, including to be more present abroad and to have a strong, effective and capable workforce with the tools needed to deliver.

Background

• Canada is represented in fewer countries than likemindeds (Canada 112 countries; Australia 122; France 168; Japan 196).
• Canada’s representation at the UN is one of the lowest among G7 and G20 partners and competitors alike (Canada 38 FTEs; France 73; Germany 120; China 140; Russia 200).
• Canada relies more on LES than likemindeds [REDACTED].
• Canada has less national-based staff abroad than likemindeds. [REDACTED].
• Only 23% of GAC’s diplomats meet the foreign language proficiency requirements of the position [REDACTED].

In recent years the US, Australia, France, Japan, Germany and Norway have all undertaken modernization/review exercises of their foreign ministries:

United States

• Launched in October 2021.
• 1-2% increase in FTEs per year and 7% budget increase is expected.

[REDACTED] Australia

• Launched in October 2022.
• New funding for Foreign Service ($376.9M over 4 years), [REDACTED].

France

• Launched in October 2022. 300-page report published March 2023, and contains 1,000 recommendations.  
• 700 new positions and a 20% budget increase for a total of 7.9 billion euros in 2027.  

Japan

• Put forward a resolution to strengthen diplomatic power in 2023.
• Increasing the overall workforce of the Ministry of Foreign Affairs by 2.5%, expanding the number of overseas missions by approximately 5%.

[REDACTED] Germany

• [REDACTED]. Also undertook a review in 2014. 

Norway

• Modernization process began in 2020, now in implementation phase.

HR & Workforce at a Glance

• Through its Transformation Implementation Plan, Global Affairs Canada is actively working to address many of the human resource and workforce development challenges that were highlighted in the 2023 Senate Committee Report.
• The Department is actively engaged in seeking new talent for the department to address vacancies. This includes recruitment into the Foreign Service from across the country, as well as traditional Public Service positions.
• Regular internal staffing processes are also providing opportunities for career progression for experienced employees within the Department, building retention and long-term sustainability.

Supplementary messages

• Recruitment and assignment processes are designed to meet the Department’s organizational needs and priorities, taking into account workforce availability, and alignment of skills based on a competency, performance and talent-based approach with clear employment equity considerations.
• Rotational assignments provide the Department the flexibility to assign resources where they are needed, when they are needed, with employees who have the skills and competencies for the job.
• The Department is in the early stages of developing an approach to career management, which will support employees to reach their full potential while identifying talent to respond to the evolving global context.
• Since 2021, GAC has appointed 137 entry-level foreign service officers from across the country through post-secondary recruitment processes.  While some post-secondary recruits are bilingual at the time of application, GAC is currently providing 61 recruits with Official Languages training prior to appointment to ensure that they can provide bilingual service to Canadians.

Supporting facts and figures

• As of December 31, 2023, Global Affairs Canada has 13,586* employees, of which 7,995 (59%) are Canada-Based Staff (CBS) and 5,594 (41%) are Locally Engaged Staff (LES).
  • * Note that some employees find themselves in both an LES position and a CBS position. These employees are counted separately in each group (CBS/LES), but only once for the total at the GAC level.
• Canada-Based Staff comprises both 5,819 (73%) traditional public servants and 2,176 (27%) rotational employees, for whom the disposition to be deployed abroad forms part of the condition of employment.
• Rotational employees include foreign service officers (1,506) and executives (410), as well as information technology (141), administrative (113) professionals and (6) other occupational group.
• More than half (51%) of Department’s total workforce is located abroad. The workforce abroad consists of 1,403 CBS (20%) and 5,594 LES (80%).
• As of December 31, 2023, 22% of all Canada-Based Staff (CBS) positions were vacant. The vacancy rate of CBS traditional positions is 24% and the vacancy rate of rotational positions is 18%.

Foreign Languages & Expertise

• Foreign language requirements of diplomatic positions at missions are rigorously assessed every 3 years.
• Arabic, Chinese, German, Portuguese, Japanese, Russian and Spanish are considered strategic languages for the department.
• The Department’s transformation plan aims at increasing capacity in strategic foreign languages and ensuring staff meet foreign-language requirements prior to posting.

Supplementary messages

• Based on the impact of foreign languages skills on Canada’s ability to compete in a complex global environment, the department identifies key positions where advanced foreign language skills are indispensable.
• To identify these positions, we assess the impact of foreign language skills on the ability of officers to fulfil their functions effectively.
• The majority of foreign language requirements and associated investments are in foreign languages that reflect Canada’s international priorities and operational requirements.

Update

• Certain foreign language maintenance programs were suspended this year due to financial pressures. The department will review this decision in the next fiscal year, recognizing the need to maintain foreign language proficiency when needed.

Supporting facts and figures

• Approximately a third of positions abroad (434) are currently designated as requiring an intermediate or advanced foreign language skills.
• Of these positions, 73% (315) require advanced skills and 27% (119) require intermediate skills.
• 78% of training is delivered for strategic languages (Arabic, Chinese, German Portuguese Japanese, Russian and Spanish).
• 76% of foreign service officers in positions requiring foreign languages have proficiency in the foreign language to varying degrees but 28% of foreign service officers meet the required level of the position.

Background

The Canadian Foreign Service Institute supports the development and maintenance of employees’ foreign language competency to allow them to make full use of their international competencies abroad.

The Institute also administers proficiency testing based on an internationally recognized scale and system.

An average of 150 employees are assigned to full-time foreign language training of various durations each year, from a few months (e.g. Spanish) to a few years (e.g. Chinese).

Diversifying GAC’s Workforce

• Anti-racism, Reconciliation, Equity, Accessibility, Diversity and Inclusion are priorities at Global Affairs Canada (GAC).
• The advancement of these action plans is a foundational piece of the Transformation Implementation Plan. GAC’s plans address culture change, vision, leadership, accountability, and training.
• GAC has made progress in representation and diversifying its workforce. There is still work to do to address gaps at all levels for Employment Equity groups.

Supplementary messages

• Women, Indigenous Peoples and Visible Minorities are represented at GAC, however, there is underrepresentation of Indigenous and Black employees at the executive level and for Persons with Disabilities at all levels.
• GAC’s Deputy Minister Sponsorship program provides career advancement opportunity to the executive level for employees who are Indigenous, Visible Minority and Persons with Disabilities.
• Human resources policies and practices are reviewed and evaluated regularly to address potential systemic barriers. GAC also participates in interdepartmental initiatives and programs to further develop leadership skills for designated groups, such as the Mosaic program.
• The GAC Anti-Racism Strategy and Action Plan 2021-2026 has over 22 initiatives to increase Representation, support Career Development, and support Training and Engagement.
• The GAC Action Plan on Reconciliation with Indigenous Peoples 2021-2025 is a framework that guides efforts to advance the rights, perspectives and prosperity of Indigenous Peoples in Canada and around the world.
• The GAC Accessibility Action Plan 2023-2025 was recently adopted to comply with the Accessible Canada Act.

Supporting facts and figures

EE Data (2023-03-31) among Canada-Based Staff at Global Affairs Canada:

• Women: 56.4% (Workforce availability: 55.9%)
• Indigenous Peoples: 5.3% (Workforce availability: 3.4%)
• Persons with Disabilities: 4.1% (Workforce availability: 9.2%)
• Visible Minorities: 26.8% (Workforce availability: 17.5%)
  • Black employees: 5.4% (Labour Market Availability: 3.18%)
  • Increase in representation of all groups over the past 5 years, except for Indigenous Peoples (-1% in 22-23).

48% Canadian Heads of Mission self-identify as women (62), 14% as Visible Minorities (of whom 2% are Black), 2% as persons with disabilities and 2% as Indigenous.

Locally Engaged Staff

• Locally Engaged Staff (LES) are hired to work at our missions outside Canada in support of the delivery of the programs and services of the Government of Canada, provinces and partners abroad.
• The 5,594 (December 31, 2023) strong workforce with their knowledge of local languages, context and business networks contribute to the delivery of Canada’s programs and services abroad.
• The GAC Transformation Implementation Plan committed to put in place key measures to attract and retain LES, the bedrock of our presence abroad, to continue advancing its global priorities and deliver for Canadians. Global Affairs has established protocols to safeguard the well-being of all mission employees in times of crisis, including LES, and we regularly review these measures.

Supplementary messages

• Modernized Locally-Engaged Staff Employment Regulations are in the final stages of development.
• During recent crises, LES have qualified for existing immigration pathways or special emergency programs in neighbouring countries. In the recent case of Sudan, some LES accepted the offer of relocation to a neighbouring country.

Update

A Benefits Modernization initiative has started with the rollout of the Africa Regional Medical Plan since this was the region with the greatest needs. 

Supporting facts and figures (as at December 31, 2023)

• 80 % of our employees in Canada’s mission network are LES.
• 25% of our LES support other government departments. Of these, 74% support IRCC, followed by DND (4.6%) and CBSA (3.2%).

Background

The Deputy Minister of Foreign Affairs has been delegated broad authority to manage aspects of the Government of Canada’s LES program (classification, staffing, labour relations, compensation and benefits, etc.). LES are excluded from the Public Service Employment Act (PSEA). 

In recent crises in Ethiopia, Ukraine and Haiti, LES were provided with compensation alleviation measures and safe work arrangements to ensure their wellbeing and safety. These posts remain open with CBS presence. 

During the crisis in Sudan in April 2023, LES received compensation alleviation measures and were offered temporary evacuated to a safe country nearby. GAC regularly reviews the full suite of tools available to support LES in crisis situations including evacuation in exceptional circumstances.

Digital Infrastructure & Cyber Threats

• Given its critical mandate and unique access to international information and allies, GAC is one of the three most targeted departments of the Government of Canada.
• Although important steps have been taken over the past two years to protect the department from cyber threats, more should be done.
• Compounding this issue is the fact that Canadian citizens and GAC’s employees now expect modern digital services to increase their global presence and advance Canada’s diplomatic, trade, consular, and development interests, while GAC’s existing architecture, including critical systems, still rely on outdated IM/IT legacy infrastructure.
• As demand for digital tools continues to grow and evolve at a rapid pace, so too do the cyber threat challenges. The Transformation Implementation Plan lays out the steps to tackle these challenges however investments in GAC’s cyber security are needed to respond to the increasingly sophisticated threat landscape and the international risks that GAC and Canada face daily.

Supplementary messages

• GAC is a target for sophisticated threat actors, including nation state actors. Cyber threats continue to increase in scope, scale and sophistication amid mounting geopolitical competition, crises, and rapid technological advancement. Critical government and private sector networks and infrastructure are increasingly vulnerable; we need to continue investing and secure more investment in this field to ensure that we diminish risk and safeguard as much as possible against vulnerability.
• The net result of this remains the same. For Canada to be a high performing organization able to project global leadership, there is a present and ongoing need for critical transformation at GAC – we must continue to leverage investments in digital infrastructure and security.
• The complexity and nature of our international footprint necessitate that such a transformation is unique. However, these changes are needed to avoid prolonged service disruptions internally, to partners, and to Canadians.
• Furthermore, securing the safety of information and data of allied partners, Canadians, as well as trade and development partners both other governmental and private, ensures that Canada is a trusted ally, and a global leader able to engage and influence where it matters most.
• New digital tools, such as Artificial Intelligence, are a double-edged sword. While they alter the cyber landscape by providing threat actors with state-of-the-art tools, they also have the potential to dramatically increase our insights into key global issues.
• With respect to tools and systems, the GAC Transformation Implementation Plan, sets out to:
  • Deliver department-wide AI and data analytics capabilities to meet existing and future demands across business lines.
  • Improve efficiency by investing in solutions to support data collection, management and analysis across various existing departmental systems
  • Implement a streamlined and centralized information management system in Microsoft 365 to improve storing and sharing information and knowledge
  • Enhance IM/IT service delivery and support at missions by increasing automation and employee self-service

Responsive: Recent Cyber attack on GAC.

• GAC is a frequent target of sophisticated cyber threats. We continue to equip our personnel with advanced security technologies essential to fulfilling our mandate, while enhancing our cybersecurity capabilities such as:
  • Securely connecting GAC's HQ and all missions abroad.
  • Stabilizing GAC's IM/IT systems and infrastructure to mitigate business risk, while reducing the possibility of critical outages, infrastructure challenges, and cyber intrusions. This requires working more closely with SSC, CCCS and TBS.
  • Modernizing GAC's international network and infrastructure to improve user experience, enhance performance, and enhance resilience against cyber threats across GAC's global IM/IT footprint

Supporting facts and figures

• Network capacity in most missions is insufficient to support the shift towards new digital capabilities, affecting missions in Africa, the Middle East, South America, and South Asia most critically.
• With datacenters set to close in near future, there are 200+ applications and 1800+ servers that need to either be retired or moved to SSC’s enterprise data center or the Cloud. Appropriate resources are required to properly focus on migration and retirement from legacy systems in the required timeframes.
• GAC’s current Application Portfolio Health Indicator is 22%, which is below the GC average of 38%.
• In 2023 GAC has had to respond and rebuild 77 IT systems that succumbed to a successful cyber-attack.

Background

Global Affairs Canada operates in a complex, global landscape that requires a modern digital foundation that can be responsive to the emerging business needs of today and tomorrow, both at headquarters and across our 178 missions worldwide.  

The “Modernizing GAC” initiative aims to strengthen GAC’s capacity to engage globally so that the department remains well equipped to fulfill its mandates in the long term, in a rapidly changing world. To position ourselves as a global leader in foreign service delivery, GAC needs to continue building a resilient foundation that includes modern Cloud-based architectures, networks, and cyber security.

GAC also relies heavily on the secure and timely delivery of modern digital solutions to respond rapidly to global crises (I.e. Ukraine, Afghanistan). Advances in Cloud and cyber security deliver greater agility and provide secure solutions that enable Canada to share timely information and collaborate effectively with our trusted FVEY partners in response to these global threats.

Property Infrastructure and Technology

• Global Affairs Canada maintains a large international real property inventory of approximately 2,700 assets, including Chanceries and Annexes/Office Space, Office Residences, Head of Mission and staff accommodation. Some of these properties are crown-owned, while others are crown-leased or privately leased.
• Challenges exist in delivering and maintaining this complex inventory. From shifting local security concerns and the need to respond to changing security threats, to fluctuating foreign currencies, reconciling different building standards, and adapting to responding to international supply chain disruptions. As part of the Transformation Implementation Plan GAC is developing a mechanism to regularly review and adjust its footprint abroad to ensure it is aligned with its strategic priorities. This includes ensuring that our portfolio investments are strategic and respond to government priorities.
• In consultation with other government departments and partners, Global Affairs Canada’s real property portfolio is reviewed on an annual basis with a view to continually innovate our models of representation abroad.
• On the IT side, the Department is currently conducting a comprehensive review of technological capacity at missions.

Supplementary messages

• The Treasury Board Fixed Asset Review identified that Much of GAC’s ability to achieve Canada’s foreign policy objectives in this turbulent global era rests on a strong and complex network of real property (and IT) assets that support program delivery. These assets are located in politically and geographically complex, sometimes even hostile regions.
• Challenges exist in delivering and maintaining a complex property portfolio and the ability for the Department to respond quickly to requested changes, given that a long lead time that is required to make modifications to build or fit up an Embassy building or to even open a new Embassy.
• With a view to developing a framework that better integrates all aspects of GAC’s portfolio (trade, political, development, and consular processes) to enhancing Canada’s presence abroad, GAC has initiated a review of all the tools and governance mechanisms used to enhance and deliver its presence abroad.
• Changes in security and threat levels have necessitated enhanced physical security requirements, which is a major focus of the program. The Department received 1.8 billion in “Duty of Care” funding to upgrade the current mission network to enhance security and address seismic issues.
• Moreover, the portfolio strives to maintain Canadian priorities, such as promoting greening and designing/modifying buildings in order to be as close as possible to Canadian standards.
• In terms of IT, the Department is looking to transform the entirety of Digital Service Delivery Internationally through a project called International Digital Service Delivery Transformation, which is run under the Operations Modernization Programme.
• The mission audit process will help validate the effectiveness of GAC’s initiatives to improve digital adoption, literacy and enhance service delivery at missions.

Supporting facts and figures:  Gac Property Portfolio

Global Footprint

• Canada’s network abroad includes 182 missions, ranging from large embassies to small representative offices and consulates, in 112 countries. The largest mission footprint is in Europe, the Middle East and Maghreb with 63 missions, followed by the Americas with 55, the Indo- Pacific with 42, and Sub-Saharan Africa with 22 missions. This footprint has remained relatively constant over the past 20 years, with a modest increase in the total mission count from 174 in 2005 to 182 in 2024.
• Canada’s Network Abroad includes 21 partners (other government departments and Global Affairs Canada), 9 Canadian co-locators (crown corporations and provincial governments) and 6 foreign co-locators (foreign governments and one International Organization). There are about 8,300 employees, with the vast majority (70%) being Locally Engaged Staff (LES).
• Canada’s missions are supported by the International Platform Branch (IPB) via the provision of real property, physical security, procurement, logistics, mail room, material management and mission operations services. IPB is also the client interface with other government departments and co-locators (both Canadian and foreign governments) and coordinate the process for all changes to our Network of missions, including position changes at missions abroad.
• As part of the Transformation Implementation Plan GAC is developing a mechanism to regularly review and adjust its footprint abroad in order to ensure aligned with its strategic priorities.

Supplementary messages

• Global Affairs’ International Platform Branch (IPB) was created in 2008 to manage a global network of infrastructure, people, assets and services at mission abroad. Activities include maintaining a network of over 2,600 properties in 112 countries, requiring investment planning, strategic portfolio management in addition to leading real property project management and delivery, physical security, property maintenance management services, architectural and engineering and interior design advisory services.
• The Branch is also responsible for providing procurement, material management, mail room and logistical services; physical security and local guards, armoured and fleet vehicles to missions and providing functional guidance to Management Consular Officers on common services delivery, including allocating common services funding. IPB is also responsible for the overall management and delivery of common services abroad, including cost recovery, and the management of relationships between the Department and all its partners and co-locators present in the Government of Canada’s diplomatic and consular missions abroad.
• The total cost of supporting and providing services to all staff at missions abroad was $921 million in 2022-23, with the common services costs averaging $173,000 per Canada-based employee. This includes staff quarters, chanceries, security, transportation, IM/IT and procurement of vehicles, among other things. With the inclusion of salary and benefits, such as foreign service directives and relocation costs, the per-Canadian employee cost average for an FS-03 position would be around $450,000 annually, depending on the mission threat level and other factors.

Multilateral Influence

• Multilateral tables multiply our profile, impact and influence, providing access to global decision-making tables and a broad range of countries critical to Canada’s core national interests, from peace and security, addressing climate change, economic stability, and responding to humanitarian and migration crises.
• Although Canada is a proud founding member of the United Nations and the 6th largest contributor, Canada’s overall ability to engage and exert influence has not kept pace with evolving global realities, nor with significant investments made by others, including those that don’t share our values.
• Canada is increasingly lagging behind, as competitor countries are using the UN to erode the global rules, standards and norms which Canadians depend upon, and as they seek to advance their narrow national agendas, undermining core rights like human rights and gender equality.
• As part of the Transformation Implementation Plan, GAC has committed to increasing influence in multilateral organizations to advance Canada’s national interests.

Supplementary messages

• The UN system’s global reach has increased exponentially in recent years; all major international crises, from the invasion of Ukraine to climate change that have profoundly impacted Canada’s foreign, defense, humanitarian, and development engagement, have necessitated significant UN engagement.
• The international rules-based system is increasingly under threat. If Canada is not present at the tables where international norms and rules are developed and defended, and unable to influence decision-making on key issues across the UN system, Canada’s interests, priorities and values will be undermined.
• Canada’s representation at UN missions and headquarters today is one of the lowest among G7 and G20 partners and competitors alike, despite Canada’s rank as the UN’s sixth largest financial contributor.
• It is critical that additional resources be obtained to strengthen Canada’s multilateral capacity, including our presence in international bodies that matter most, beginning with updating the baseline footprint of all UN missions, increasing capacity at Headquarters, and developing a strategy to proactively promote Canadian candidacies for appointment and election to the UN, as other countries do.

Supporting facts and figures

• Without targeted and essential investments, Canada’s UN presence will shrink by 16% in 2024.

Overseas Comprehensive and Supplementary Medical Coverage

• The Government of Canada is aware that some members who are covered under the Public Service Health Care Plan (PSHCP) have faced delays when trying to reach Canada Life’s emergency travel and comprehensive coverage service provider MSH International.
• MSH International is a sub-contractor for Canada Life, the contract for the Public Service Health Care Plan was signed between the federal government and Canada Life. The sub-contractor provides emergency travel and comprehensive coverage services on behalf of Canada Life.
• Global Affairs Canada (GAC) has been informed that Treasury Board of Canada Secretariat (TBS) officials are working with Canada Life and MSH International to address these challenges and have put in place an action plan.

Supplementary messages

• GAC is working with TBS to address the challenges currently being experienced by employees posted abroad who are covered under the PSHCP overseas comprehensive and supplementary medical coverage.
• GAC is providing medical advances through the Foreign Service Directives to employees posted overseas so that required medical care can be sought and bills paid while their medical claims are processed by MSH International.

Background

The Canada Life Assurance Company (Canada Life) was awarded the contract to administer the PSHCP following a competitive procurement process which came into effect on July 1, 2023.  The contract replaces the former administrator of 27 years, Sun Life Financial and its sub-contractor Global Allianz. Canada Life and its sub-contractor, MSH International now administer all medical claims for public servants in Canada and those posted abroad. The PSHCP was negotiated with the public service bargaining agents, pensioner representatives and the TBS. Improvements that modernize the plan were the result of successful negotiations amongst all parties and responds to the needs of a diverse Canadian public sector workforce, its retirees, and dependants, while respecting the publicly funded nature of the benefits members receive.

Annex A: Address by Minister Joly on Canadian Diplomacy Amidst Geopolitical Uncertainty

October 30, 2023 – Toronto, Ontario 

Check against delivery. This speech has been translated in accordance with the Government of Canada’s official languages policy and edited for posting and distribution in accordance with its communications policy.

Hello,

I am pleased to be here to speak about what is happening in the world, and Canada’s role as we look forward.

Before we dive in, I know that we have all been following the latest developments in the Middle East. On October 7, we have seen horrific scenes of unspeakable violence as Hamas launched its terrorist attacks against the people of Israel, which Canada unequivocally condemns, and we continue to ask for the release of all hostages. What has unfolded in Gaza in the last few days is a human tragedy. The humanitarian situation facing the Palestinian people – facing Palestinian women and children - is dire.

Extremist settlers’ attacks continue in the West Bank – and must stop.

Like all states, Israel has a right to defend itself against terrorist attacks. It has an obligation to do so in accordance with international law.

For even in crisis there are principles. Even in war there are rules.

We must be guided by human dignity – all civilians – Israeli and Palestinian, for they are equal - must be protected.

At this point, Canada mourns seven dead. We are still searching for two, who could be being held hostage. 400 Canadians are trapped in Gaza, they are living in fear and despair. As a government, we have a duty to bring them to safety. And that is why we need humanitarian pauses, a humanitarian truce, in Gaza. I have been in contact with Qatar, Israel, Egypt, and the US every day for the past three weeks.

At this point, we need an agreement from all parties to get foreign nationals out, including Canadians. To release all hostages. And to allow food, fuel, and water into Gaza. And Canada will be reaching out to more countries to join in that call.

I have spent the better part of this last month in Israel, Jordan, Egypt, and the UAE, overseeing our efforts to help Canadians leave the region, and working with our partners to address the impacts of this conflict while finding ways to de-escalate.

The region is at a precarious moment, you can feel the weight of the anxiety and pain in the streets and at the highest levels of government.

While we face the immediate, and urgent, impacts of this crisis, we must also look forward to the political horizon, and towards peace. And these conversations - of how we can build a better future, supporting a two-state solution where Israeli and Palestinian civilians can live side-by-side in peace and security, where the Palestinian right of self-determination is respected, are conversations I will never shy away from.

Former Secretary of State Madeleine Albright once said that - “contrary to what many people think, international relations is nothing like a game of chess, where two people sit quietly, thinking out their strategy, taking their time between moves. It is more like a game of pool, with a bunch of balls clustered together.”

Based on my experience over the last two years, I completely agree.

And I would add that, while it has never been perfect, the game has been served well by a set of common rules, conceived from the ashes of war to form the basis of global cooperation. Lines we would not cross to keep our citizens safe. Built on the promise that through stability, would grow prosperity.

Today, this system is cracking. And the stakes of the game have increased. Our world is marked by geopolitical turbulence, unpredictability, and uncertainty. The tectonic plates of the world order are shifting beneath our feet. And the structures that are built upon them are fracturing.

War has broken in Europe, in Africa and in the Middle East.

Each bringing a new cycle of death and destruction.

We find ourselves amidst an international security crisis.

We are also now facing increasingly complex, modern challenges.

Climate change. Artificial Intelligence. Political polarization. Irregular Migration. And Deepened inequality. More than ever, our international institutions are being tested.

The stability that has safeguarded us all is now being challenged by those who seek to change the rules of the game. Undermined by those who believe they can break them without consequence.

The current world order is also being questioned by people and nations, especially from the South, who challenge whether the rules reflect their reality and benefit their people. Some have expressed concerns about double standards. Or whether the current institutions and their decisions meet their needs or are fair.

We see an increasing boldness from bad actors who believe they can tip the scales of power with the weight of their might. These countries and non-state actors seek to re-shape the very rules that have kept us safe. The tools they’re using are not limited to the battlefield. Many actors now wield sophisticated, and often covert, tactics to shift the world order in their favour. And they’re doing so at a time where global issues have local impact.

The crisis in the Middle East has sparked fear in our communities.

Russia’s invasion of Ukraine has cost thousands of lives and spiked the price of our gas and groceries. Climate change filled our summer skies with smoke. And rising global inflation makes it feel increasingly hard to get by, let alone get ahead.

Ahead of us lies a complex, generational challenge. One that will shape the world we leave to our children and grandchildren. They will judge us based on the steps we take next. On how well we were able to prevent global conflict to build a world that is stable and inclusive. One that respects the sovereignty and independence of all states, while recognizing their growing interdependence, and one where progress benefits all of society, not just a narrow few.

This is a test we cannot fail.

At this moment of global crises and deep uncertainty, Canada can make significant contributions to meet this challenge. To do so, our foreign policy will be guided by two principles:

First: Vigorously defending our sovereignty.

Second: Using pragmatic diplomacy, to engage countries of different perspectives in order to prevent an international conflict.

Canada’s sovereignty must be resilient to threats of every nature, regardless of where they originate. Our location on the globe – surrounded by three oceans – can no longer be relied upon to protect us. The evolving threats we face are no longer just physical and economic. They’re digital. And they’re informational.

Our national security depends on a world order where the principles of sovereignty are respected. One where borders cannot be re-drawn by force. One where threats to our people don’t go unanswered. And one where trade and prosperity is ensured through sustainable peace and stability. Defending these rules is critical to defending our national interest, and so we will strengthen the security of our territory, our economic interests, our democracy, and our culture.

We’re working with our allies to bolster international security. And in turn, Canada’s. Now more than ever, soft and hard power are important. We will increase our investments in our military through the Defence Policy Update. Defending our sovereignty means that diplomacy must be part of our security apparatus.

To our South, we will continue working with our closest friend and greatest Ally, the United States, to strengthen the protection of our shared border. We will put in place the agreements we need to implement an immigration strategy that is fair and compassionate. And we will continue to defend our shared skies through a stronger and more integrated NORAD. And the purchase of 88 F-35 fighter jets will help us in this regard.

To the East, we are meeting our transatlantic responsibilities. We are a partner that NATO can count on. This summer alone we have committed to expand our presence along NATOs Eastern Flank and upgrade the multinational battle group we lead in Latvia. We know that Ukraine’s sovereignty is fundamental to the world’s stability. To Canada’s. And so, we will continue to strengthen their position on the battlefield. We will support their pursuit of peace. And we will help with its post-war reconstruction.

As we look West -great power competition is deepening in the Indo-Pacific region. Inter-state tensions, many with historical roots, are flaring or re-emerging. Stepping up as a reliable partner that concretely contributes to peace and security in the region means increasing our military capabilities. Investing in border and cyber security. Increasing our intelligence capacity.

As we look to the future, I believe that we should be as close to Japan and South Korea, as we are to the UK, France, Germany, and Italy. And we should invest in our relationship with ASEAN, just as we have with the European Union.

Indeed, our relationship with India is facing a difficult moment. We stand by the decision to inform Canadians of credible allegations around the killing of a Canadian citizen. This is, at its core, a question of protecting our national sovereignty and Canadians’ safety. In addressing this serious matter, we remain engaged with the Indian government. It is important to remember that this is one moment in a relationship that spans decades and is built upon strong connections between our two peoples.

Turning North -- Canada’s true north is what makes us unique. And we cannot understate the importance of safeguarding the Canadian Arctic. With climate change redrawing maritime routes, more countries are turning their eyes north. The Arctic is becoming more accessible, more attractive to those who want to research the region and do business through it. This is true for Russia. It is certainly true for China, which is now calling itself a near-Arctic state.

Exercising our sovereignty on Canadian Arctic land and waters is a fundamental priority for Canada. This includes safeguarding the Northwest Passage, which serves as the gateway to the Arctic. We will make the investments necessary to reinforce our Northern security and critical infrastructure. We will also invest in economic development in the region, in partnership with Indigenous peoples. We will partner with the United States. And we will invest diplomatically in our relationships with Northern European countries - Iceland, Norway, Denmark, Sweden, and Finland - who also believe that the Arctic is a region where the rule of law should prevail.

Canada is a proud democracy. We have a long democratic tradition, two official languages, a rich multicultural society, a dedication to reconciliation and a deep commitment to the rule of law. This is who we are. And it is a big part of what attracts immigrants from every corner of the world. I know many Canadians are hurting when they look at the state of the world. That is why it’s even more important to protect our democracy. But we cannot take our democracy for granted. Nurturing it is a choice, one we must make every day.

Extremists and populist movements are on the rise around the world. We should not be naive. We are not immune to them. We all have a role to play in defending our democracy, including politicians from both sides of the aisle. What we say matters. And silence speaks even louder. We must be clear in denouncing those who seek to undermine it, and in promoting the importance of the simplest and most powerful expression of it: a vote.

We will protect our people from all forms of foreign interference. We will not tolerate it in our elections, in our media or in social media. Not among our students, nor in our society. Foreign interference is not new. We are not the only country facing the issue. But it is evolving. And so must our approach.

We have created independent panels to monitor elections and established a foreign interference public inquiry. We are establishing a Foreign Actor Registry to protect communities that are often targeted. And, as I have made very clear, any foreign diplomat who engages in this type of activity will be sent packing.

Finally, essential to protecting the health of our democracy, we will continue to protect our cultural sovereignty and defend the integrity of our media.

We’ve talked about the first principle. Now I will speak to our second. Pragmatic diplomacy.

Our sovereignty survives best in a system based on clear and fair rules that foster predictability. And we will continue to champion that system, without ever compromising on our values, but we must be pragmatic.

We must resist the temptation to divide the world into rigid ideological camps. For the world cannot be reduced to Democracies versus autocracies. East versus West. North versus South. Forcing the majority of the world to fit into any one category would be naive, short-sighted, and counterproductive. Naive because the Global South cannot afford to choose one camp over the other. Short-sighted because the challenges we face will require all states, despite their differences, to cooperate and respect fundamental rules. And counter-productive because forcing states to choose one side over the other risks driving potential partners away.

I am inspired by the pragmatic diplomacy of our past. While in North Macedonia, I was struck by a statue of Former Prime Minister Pierre Elliot Trudeau in the halls of the Foreign Ministry – marking the time he invested, as a Western leader, to engage with non-aligned countries.

At a time of great divide between the West and the Soviet Union – Trudeau was determined to connect with countries that did not see themselves, their values or needs reflected in the state of play. And throughout that time of tension, Canada was seen as a credible partner to engage countries in peace and stability.

To me, that’s pragmatic diplomacy - keeping allies close, while also being open to different perspectives as we encourage others to take a chance on peace. We will always defend our national interests. We will always defend our values. But we cannot afford to close ourselves off from those with whom we do not agree. For engagement does not mean that we support or condone the policies and actions of others.

We are not naive about what engagement will accomplish. But – if we refuse to engage, we create additional incentives for those whose actions we strongly oppose to join together. As respect for the rules diminishes, empty chairs serve no one.

Let me be clear: I am a door opener, not a door closer. Therefore, with rare exceptions, Canada will engage.

With the world’s security at stake, our security at stake, we cannot just rely on our old friends. We will double down on forward-leaning engagement. And we will need to extend our hand to new partners amongst a broad coalition of states from around the world. We need to demand that every country respect the sovereignty and territorial integrity of others. This is a defining principle of the UN Charter. Canada will work to promote agreement on these basic principles. Because if Canada succeeds in promoting agreement on the basic rules among a larger group of states, every state and every region of the world will benefit.

How do we propose to do this? We must learn from our history. Canadians have played a key role in creating our international rules and institutions. It is now our responsibility that our international system progress with its time. It must be reformed to address the ever evolving peace and security challenges the world is facing. Therefore, we are committing to increasing our presence at the United Nations and in multilateral institutions. And we will also respond to the frustration and calls for change from low and middle-income countries as we focus on making both World Bank and the IMF more effective.

If we are to build a more stable world, diplomacy is one critical tool. We must use it to strengthen Canada’s security infrastructure, and to rebuild the world security infrastructure.

Ensuring that Canadian diplomacy is fit for purpose in the 21st century is fundamental to our success. Diplomats are on the frontlines of our work around the world. They are our eyes and ears on the ground. Their work is one key to our collective peace and security. And the power of our embassies lies in our ability to advance common objectives. That is why we are increasing our diplomatic footprint with six new embassies along Europe’s Eastern flank, in Armenia, Rwanda and Fiji, for the Pacific Islands. And why we appointed a new Ambassador to the African Union and re-appointed an Ambassador to the Kingdom of Saudi Arabia.

We are also currently taking an honest look in the mirror and undertaking transformational change at Global Affairs Canada through the ‘Future of diplomacy’ work. We will invest so that we have the people, the tools, and the global presence we need to succeed now and in the future.

The world is at an inflection point. We are in the midst of a geopolitical rebalancing. Global powers are shifting their weight to disrupt the peace that Canadians fought and gave their lives for. As increasingly frequent and complex crisis shake the foundation of the system that has kept us safe.

We must now chart a path towards building a steady footing for our children. Reinforce the international system that has brought about global stability. And reshape it to become more inclusive. Canadians can be assured that our eyes are wide open to this challenge. And we are dedicated to ensuring that Canada, and our diplomats around the world, are equipped to tackle these challenges.

And I commit to providing Canadians with an update on this work each year. Let me close with this promise, we will build on Canada’s diplomatic legacy. Harness the strength of our people. Draw from their compassion and creativity.

With humility and determination.

Annex B: Address by Minister Joly to employees and Heads of Missions of Global Affairs Canada

June 7, 2023 – Ottawa, Canada

Check against delivery. This speech has been translated in accordance with the Government of Canada’s official languages policy and edited for posting and distribution in accordance with its communications policy.

Thank you, David Morrison, and thank you.

I am often asked about what it is like to be Foreign Minister during this time.

In answering, I reflect on the great honour of being able to represent the best country in the world, and the privilege in having a front row seat to the incredible work that you do in every corner of it.

I'm also thinking about the speed and scale of the changes that have taken place over the last 18 months of my mandate.

We are at a pivotal point in history.

I know that everyone in this room understands that and feels the weight of it.

Our world is marked by geopolitical turbulence, unpredictability and uncertainty.

The rules-based system that has kept us safe is cracking, placing the institutions that are built upon it under systemic strain.

President Putin's invasion of Ukraine is clear evidence of this.

But we all know here that this geopolitical movement began long before February 24—just ask Kirsten Hillman in Washington—and that it has repercussions far beyond the borders of Ukraine, and even Europe.

Around the world, we see:

• growing boldness by authoritarians
• weaponization of information
• democracies under threat
• countries big and small grappling with climate change
• crises in places like Haiti, Afghanistan, Sudan, Venezuela and Myanmar, and;
• a global refugee crisis.

This is a stark picture, but all of us in this room know that that is only one side of the story.

In the face of these challenges, there is light, and it can be found in the faces of: Ukrainians who refuse to give up on fighting for their freedom, and ours as well; women and girls in Iran, taking to the street to fight for their rights; and human rights defenders, journalists and activists who shine a light in the dark corners of the world and expose the need for change.

Ahead of us is a once-in-a-generation challenge, and how we respond will define the coming decades. 

Ensuring that we have a modernized diplomacy, fit for purpose in the 21^st century is critical.

Doing just that has been a top priority for our government, and for me personally.

A year ago, I told you that we were going to undertake a major transformation here at Global Affairs Canada.

I said we were going to look in the mirror, be humble and ask the real questions.

We've had good discussions with people here internally, organizing over 80 consultations with staff, missions and stakeholders. 

We've also worked with the External Advisory Board, who have had discussions with some of you as well as former Heads of Mission. 

But we've also been looking at what's happening elsewhere in the world, consulting with other countries who are also modernizing their foreign ministries.

Today, I would like to provide you with an update on what we’ve heard through this process, and the direction in which we are headed.

I would like to thank you for sending in your ideas and submissions. For sharing your reflections and advice.

I must say that I was struck by the degree of convergence in what people were saying.

What we heard is that Canada needs a Global Affairs department that is strategic and influential, agile and responsive. One that can effectively articulate, coordinate and deliver a full global agenda. And one that is open and connected to the people we serve – all Canadians – and to the world.

The pace of change we've been talking about demands a modern, 21st-century department, capable of anticipating, analyzing, understanding and managing emerging foreign policy issues.

Able to draw on the breadth and depth of expertise and international experience available in Canada and abroad.

We also heard that our department must be in a position to lead international policy across the whole of government, so that it is coherent and consistent with Cabinet priorities. 

Other departments and agencies will increasingly turn to us because the majority of domestic policy issues now have an international dimension.

Most critically, and I can’t stress this enough, we have heard that we need to invest in our workforce.

Our people are our eyes and ears on the ground. But more than that, you are the heart and soul of our diplomacy.

You, and your families, have dedicated your lives in service of our great country.

And in return, we need to ensure you have the tools and resources to succeed.

We need to build a workforce that is skilled, that is bilingual, healthy and dedicated to excellence. One that sees their work valued and their own path for growth cultivated. And one where every employee feels welcome to bring all of themselves to work.

We know how much our foreign policy and foreign service benefits from a diversity of thoughts, lived experiences and Backgrounds.

We know that we are strong not in spite, but because of our differences. 

I see four main tracks of action. We need to invest in first and foremost in our people, second in our policy expertise, third our presence, and finally, our processes.

1. Investing in our people is crucial. Ensuring they feel supported, heard and valued is needed to improve our workplace culture.

• we know there is a need to revamp recruitment and training;
• to increase diversity;
• to strengthen official language competencies - francophones must be able to speak their mother tongue at the department - and foreign language knowledge;
• and to provide greater support to our staff and families abroad, including in times of crisis.

When we consider our staff, and you have heard me say many times the importance of our locally engaged staff. They are at the core of our missions abroad and we need to better support them. This will be kept top of mind as we develop the path forward.

2. We will increase our policy expertise in key areas such as climate change, energy and critical minerals, cyber, AI and digital policy. We will build a stronger capacity to anticipate and manage Canada’s response to prolonged crises. 
3. We will strengthen our presence abroad – in key multilateral missions, starting with the UN, the G20 and other strategically important countries.
4. Finally, we must ensure GAC has the tools, the processes and the culture of prioritization needed to work efficiently, and to be protected from cyber threats.

Today, we talked a lot about our vision for our department. And I'm glad we were able to set this first milestone together.

Now we need to chart a course to make it a reality.

We have an ambitious plan before us and putting it into action will require a lot of hard work. 

That's why Antoine Chevrier is in charge of the implementation plan. 

I know he and his team are already hard at work. You can expect to see our plan by September 1^st this year.

The team, led by Antoine, will be working throughout the summer on our implementation action plan. You can expect to see it by September 1^st.  

Of course, we are not waiting until then to get started. The work to modernize and adapt is already well underway.

This can be seen in our Indo-Pacific strategy, and in our increased diplomatic footprint.

Since I became Minister, we have announced new embassies in Estonia, Lithuania, Slovakia, Armenia, Fiji and Rwanda.

We have also appointed a new ambassador to the African Union and re-appointed an ambassador to Saudi Arabia.

Altogether, this is six new embassies and eight new ambassadors.

We’ve already increased our consular capacity and boosted climate finance and we’re working to build a healthier, more diverse workplace.

Certainly, there will be challenges to this transformation, and it will take time.

We are embarking on a journey of transformation, of evolution, together.

But you can rest assured that we are tackling this with the level of seriousness, and ambition, that it deserves.

You can count on me to be your champion, particularly at the cabinet table.

Each of you in this room understands the drivers of change that we are facing.

You understand that diplomacy is part of our security architecture.

And that the world’s security is fundamental to not only our interests, but increasingly, to our prosperity.

And now is the time to invest and adapt.

We will only succeed, with this change agenda, if there is a sense of collective ownership. Your leadership will be crucial.

And we need you. You're on Canada's front lines abroad. You can be the leaders of this change and help lead the transformation.

I’m looking forward to hearing from you and working together on this exciting agenda.

Thank you very much for your attention, and I'll be happy to answer any questions you may have.

Annex C: Transformation Implementation Plan

• Introduction
• Our organizational culture: Strengthening our foundation
• Our people: Becoming an employer of choice, in Canada and abroad
• Our global presence: Increasing our influence and engagement where it matters most
• Our policy: Leveraging our strengths to advance Canada’s national interests
• Our processes and tools: Building a high-performing organization
• Enabling the transformation: Commitment, prudence and accountability
• Transformation Implementation Plan summary charts

Introduction

After 3 decades of unprecedented security and prosperity, Canada is grappling with a shift in economic and political power away from its traditional allies and partners, a return of great power competition, increasing vulnerability to transnational threats like climate change and cyber attacks, and rapid technological change. At the same time, the fabric of Canada has evolved: Canadians are much more connected to the world than in the past, and they have higher expectations for how their government will promote and protect their interests overseas. Global Affairs Canada (GAC) stands at the forefront of Canada’s international policies and operations. It has a proud history but now faces the challenge of adapting to this rapidly changing environment. Faced with similar pressures, many of Canada’s allies and partners are re-investing in their diplomatic capacities. Canada must do so now, or risk losing ground to partners and competitors alike.

It is in this context that Global Affairs Canada is implementing a multi-year organizational transformation to ensure that it is well equipped to serve Canadians in meeting the global challenges of today and of the future. The implementation of this evergreen, rolling 3-year transformation plan follows the launch of the Future of Diplomacy: Transforming Global Affairs Canada discussion paper in June 2023. The plan lays out how GAC will transform itself to better deliver on its mandates in foreign affairs, trade, international assistance and consular support.

Our implementation plan outlines an ambitious agenda focused on outcomes under the 5 following pillars:

• Our organizational culture: Strengthening our foundation
• Our people: Becoming an employer of choice, in Canada and abroad
• Our global presence: Increasing our influence and engagement where it matters most
• Our policy: Leveraging our strengths to advance Canada’s national interests
• Our processes and tools: Building a high-performing organization

This is an evergreen plan that will evolve over time. The key actions and deliverables outlined below, which build on work already well underway, are all necessary to achieve the main outcomes of this transformation process. 

Our organizational culture: Strengthening our foundation

Our organizational culture: summary chart

Culture is at the core. The bedrock of GAC’s transformation will be defining our shared values and principles: what drives and defines us as a department and what the key drivers of our transformation efforts should be. By the end of 2023, GAC will publish a North Star statement emphasizing our common purpose, the values and principles that underpin our organization, and the culture we want to uphold and strengthen. We can expect to see a commitment to transparency, accountability, excellence, service and collaboration. We also know that employees want us to take smart risks, break silos and foster a culture of resource reallocation. Finally, equity, diversity and inclusion, official languages and employee well-being will continue to be at the forefront of everything we do. However, publishing a statement does not mean that transforming our organization by strengthening our culture will be complete. The initiative will only be successful if it is followed up by sustained actions that result in changed behaviours, which is why we will recommit to these values and principles each year and take stock of our progress.

Key outcomes include:

• Shared values and principles: GAC embodies the values of taking smart risks, transparency, shared accountability, well-being, excellence, service, equity, diversity and inclusion, effective resource management and collaboration
• Equity, diversity and inclusion: GAC employees are representative of Canada in all its diversity and actively contribute to an inclusive and equitable organizational culture at all levels
• Collaboration and knowledge-sharing: GAC is a learning organization that systematically shares knowledge across the department, learning from and building on its experiences, networks and expertise
• Official languages: GAC’s official-languages capacity is increased across the department and the use of both official languages is equally promoted

Our people: Becoming an employer of choice, in Canada and abroad

Our people: summary chart

Throughout the transformation, we will keep a central focus on our most important asset, our people. We will support all levels and categories of employees to contribute their full potential and have meaningful careers. We will achieve this by building competencies and investing in long-term career development with an emphasis on equity, diversity, inclusion, reconciliation with Indigenous Peoples and official languages. We will also invest in the renewal of our foreign service and position Canada as a competitive employer for our locally engaged staff around the world. We will ensure we have the right people in the right place at the right time—with the right skills to deliver on Canada’s international priorities. This will mean having a hard look at how we manage human resources, re-evaluating our processes and adopting innovative and efficient digital-first solutions.

Key outcomes include:

• GAC is an employer of choice: GAC attracts, nurtures and retains talent, in Canada and abroad, by being a competitive employer, prioritizing career development and learning and investing in the renewal of its workforce
• A more agile service model: GAC’s human resources processes are modernized to streamline operations, improve efficiency and create surge capacity
• Supporting deployment abroad: Employees and their families posted abroad are supported effectively
• Strengthening the role of heads of mission (HOM): The HOM’s role is strengthened through recognition that a HOM is the chief executive officer of Canadian missions abroad

Our global presence: Increasing our influence and engagement where it matters most

Our global presence: summary chart

To get our job done as an integrated and influential foreign ministry that draws on its unique assets, we need to be present in the world in the right places and at the right level. This is more important than ever in an emerging multipolar context where Canada needs to maintain and nurture alliances and develop new partnerships. Strengthening our presence on the ground is required to promote and protect Canada’s strategic interests where they matter most. We are developing tools and governance to ensure we can make agile decisions to more easily adjust our footprint as events dictate and use innovative ways to maximize our presence abroad. We will expand our influence in multilateral organizations and countries of strategic importance to Canada, rooted in data-driven approaches about where we can have the most impact for Canadians. We will also strengthen and expand our communications and public diplomacy function rooted in Canada’s values, culture and people-to-people ties.  

 Key outcomes include:

• Presence abroad: Canada has the right level of representation abroad to continue to increase its global influence, defend its national interests, and provide quality services to Canadians
• Presence in multilateral organizations: GAC has increased influence in multilateral organizations to advance Canada’s national interests, including through innovative means
• Communications, advocacy and public diplomacy: GAC effectively connects with Canadians and foreign audiences through strengthened communication, advocacy and public diplomacy  

Our policy: Leveraging our strengths to advance Canada’s national interests

Our policy: summary chart

GAC will systematically increase and strengthen its engagement with academics, civil society and other stakeholders to render our strategic policies and activities more informed and effective. We will seek to reinforce our approaches and capacities to support integrated, whole-of-government responses to issues of national interest that impact all Canadians, including climate change, energy, critical minerals, supply chain monitoring, emerging technologies, and the full range of protracted and overlapping global crises that occur more and more frequently.  

Key outcomes include:

• Open policy function: GAC is openly engaging external partners and policy experts across Canada and around the world and is focused on global challenges of the future
• Cyber and digital leadership: GAC plays a lead role as part of whole-of-government efforts to shape global norms on emerging and disruptive technologies
• Climate change, green transition and critical minerals: GAC leverages its unique global assets to work with partners in delivering whole-of-government approaches to climate change, the green transition and critical minerals
• Crisis response: GAC effectively leads whole-of-government responses to global crises, built on its well-established consular and humanitarian capacities

Our processes and tools: Building a high-performing organization

Our processes and tools: summary chart

We will place a heavy emphasis on increasing our efficiency, so that over time we can focus our people and resources on higher-value activities for Canadians. Better managing our workload will contribute to improving the well-being of our teams and increase our effectiveness. In September 2023, we are launching a red-tape review and action plan spanning the entire department. The exercise will focus on reducing burdensome processes and workloads at headquarters and at our missions abroad, taking advantage of a range of new technologies to empower our people to focus on what matters most. Building on existing efforts, we will modernize our IM/IT and digital services, enhance data literacy and knowledge management, and transform the tools and processes that underpin the delivery of Canada’s international assistance programs. We will also explore options to ensure GAC’s instruments provide the required flexibility to operate globally in an efficient manner. Leveraging new and emerging technologies, reducing risk-aversion and streamlining how we work are central to the goal of operationalizing modern tools and processes fit for a 21st-century foreign ministry. 

Key outcomes include:

• Red tape: GAC is working efficiently, taking smart risks and focusing on the highest value work for Canadians
• Grants and contributions (Gs&Cs): GAC has a modernized set of tools and processes, maximizing efficiencies, partnerships and value for Canadians
• IM/IT backbone: GAC has a solid IM/IT foundation and infrastructure that is secure and reliable, enabling a resilient and secure digital base
• Tools and systems: GAC’s platforms are modern, innovative, interconnected and responsive to the emerging needs of the department, and the department has the behaviours and practices needed to use tools and systems effectively to share and manage knowledge
• Digital skills: GAC employees are empowered with the right tools and training to innovate, optimize and improve their work through increased digital and data literacy
• Data insights: GAC is fully harnessing data for complex analysis, decision-making and policy-making 

Enabling the transformation: Commitment, prudence and accountability 

GAC’s transformation exercise comes at a time when the Government of Canada is refocusing its spending. The implementation plan has been developed with this in mind, by adopting many approaches that are cost-neutral or that can be fully assumed with existing resources. We will apply this mindset and discipline, including an approach where savings and efficiencies will be reinvested to support and ensure the sustainability of GAC’s transformation as well as fostering a culture of reallocation. Progress will be made on a number of fronts with existing levels of resources, and we will engage GAC staff and partners in the near future on these key initiatives. However, additional resources will be required to ensure full implementation of some deliverables. Exact sources for these, including via internal reallocations, remain to be fully confirmed and work to identify those will be part of the next steps. This rolling 3-year implementation plan will remain evergreen and will be updated regularly to add new initiatives and ideas, to show progress on existing ones, and to ensure transparency and accountability.

Transformation Implementation Plan summary charts

Annex D: Future of Diplomacy

Table of contents

• Executive summary
• 1. Introduction
• 2. Drivers of change
  • 2.1. Shift of economic and political power to the south and east
  • 2.2. Return of Great Power competition and rules-based order challenged
  • 2.3. Increased impact of transnational forces
  • 2.4. New technologies and new domains of competition
  • 2.5. A rapidly changing Canada
• 3. What kind of global affairs department does Canada need?
• 4. How to get there? Action areas and recommendations
  • 4.1. Build new expertise on international issues key to Canada’s future, and increase capacity to anticipate and manage prolonged crises
  • 4.2. Enhance Canada’s capacity to exert influence by increasing its presence abroad, including at multilateral tables
  • 4.3. Ensure Global Affairs Canada’s workforce is highly skilled, bilingual, diverse, healthy and capable of delivering world-class results for Canadians
  • 4.4. Ensure Global Affairs Canada has the tools, processes and culture to thrive into the future
• 5. Summary of recommendations
• 6. Implementation

Executive summary

After 3 decades of unprecedented security and prosperity, Canada is grappling with a shift in economic and political power away from its traditional allies and partners, a return of great power competition, increasing vulnerability to transnational threats like climate change and cyber attacks, and rapid technological change. At the same time, the fabric of Canada has evolved: Canadians are much more connected to the world than in the past, and they have higher expectations for how their government will promote and protect their interests overseas.

Global Affairs Canada stands at the forefront of Canada’s international policies and operations. It has a proud history but now faces the challenge of adapting to this rapidly changing environment. Faced with similar pressures, many of Canada’s allies and partners are re-investing in their diplomatic capacities. Canada must do so now, or risk losing ground to partners and competitors alike.

A revitalized Global Affairs Canada would be:

• strategic and influential where it matters: in key countries and at multilateral tables that will bear on Canada’s future.
• open and connected to Canadians and the world: upping collaboration with partner departments, diaspora populations, academia and others, within and beyond Canada.
• agile and responsive to emerging challenges and opportunities: able to set priorities and reallocate resources to keep pace with a fast-changing world.
• the leading player in a whole-of-government effort: committed to leading and coordinating joined-up international engagement on behalf of all federal departments and agencies.
• equipped with a workforce that is diverse, highly skilled, bilingual, healthy and committed to excellence: a stimulating, inclusive, bilingual and representative workplace where the well-being, development and excellence of Global Affairs Canada’s principal asset—its people—is paramount.

To accomplish this, the department should:

• build new policy expertise in areas critical to Canada’s future: new capacity to shape international debates around the climate change, energy, security and critical minerals nexus; and cyber and digital issues; stronger capacity to anticipate and manage whole-of-government response to prolonged crises.
• increase presence abroad: in key multilateral missions, where new rules are being written; in rising G20 and other strategically important countries; through non-traditional means, including virtual; through strategic communications and digital presence.
• invest in its people: revamped recruitment, training, career management; increased diversity through lateral entry and new recruitment; strengthened official and foreign-language competencies; better conditions and support for locally engaged staff (LES); greater recognition that entire families (not just employees) are sent abroad and greater support in times of crisis.
• invest in tools, processes and departmental culture: information technology; digital fundamentals; data expertise; grants and contributions modernization; knowledge management; incentives to take smart risks and increase innovation and efficiency.

A Chief Transformation Officer, Antoine Chevrier (Assistant Deputy Minister), has been appointed to create a team and drive the transformation process for an initial period of 3 years (2023-26). He will report directly to the Deputy Minister of Foreign Affairs and with matrixed reporting responsibilities to the Deputy Ministers of International Trade and International Development. The Deputy Minister of Foreign Affairs will report on progress every 6 months to the Minister of Foreign Affairs and be held accountable for implementation.

Successful implementation will require reallocation of existing financial resources. It will also require new investments to enable Global Affairs Canada to adapt to the challenges of the coming decades.

1. Introduction

Global Affairs Canada stands at the forefront of Canadian foreign policy. Its staff in Canada and at missions abroad work around the clock and across time zones to advance Canada’s interests and protect Canadians from existing and emerging threats. They help to create jobs by supporting Canadian exporters and by attracting investment into the country. They support Canadians abroad who are in distress. And they work with other countries to find solutions to the world’s toughest problems like climate change, conflict, hunger, human rights and gender inequality.

Today’s Global Affairs Canada traces its roots back to 1909 and the creation of the Department of External Affairs. The department sent the first fully accredited Canadian diplomats to London, Paris and the League of Nations in Geneva in the mid-1920s. ^{Footnote 1} It opened legations (precursors to full embassies) in Washington, Paris and Tokyo several years later. Canada’s first consulate general opened in New York City in 1943. ^{Footnote 2} The department’s mandate expanded to include supporting Canadian exporters when it took on the Trade Commissioner Service from the former Department of Industry, Trade and Commerce in 1982. This mandate expanded even further to include helping to reduce global poverty when it merged with the former Canadian International Development Agency in 2013. And for nearly 100 years, the department’s embassies, high commissions and consulates around the world have been a port of call for Canadians abroad seeking assistance.

The organization has of course grown and changed considerably as its mandate has expanded. Today, close to 14,000 Global Affairs Canada staff serve at headquarters in the National Capital Region, in regional offices across Canada, and in 178 diplomatic missions in 110 countries across 6 continents, a network that also houses staff from multiple partner departments and provinces. By the end of 2023, it is expected that Canada will have 182 missions in 112 countries, with the establishment of a fully dedicated mission and permanent observer to the African Union in Addis Ababa and the opening of new missions in Milan, Italy; Suva, Fiji; and Yerevan, Armenia. The network of missions supports the Minister of Foreign Affairs, the Minister of International Trade and the Minister of International Development, as well as other ministers with international aspects in their mandates.

In recent years, the international environment has become more complex, and the pace of change has increased. The global pandemic, the Russian invasion of Ukraine, the rise of an increasingly disruptive China, and the growing effects of climate change have demonstrated to Canadians that the security and prosperity they have enjoyed since the end of the Cold War cannot be taken for granted.

The last major study of the department and, in particular, its foreign service, took place in 1981—a Royal Commission led by Pamela A. McDougall, then Deputy Minister of National Health and Welfare. ^{Footnote 3} Recognizing that the department needed to adapt to new and emerging global realities, on December 16, 2021, Prime Minister Justin Trudeau asked Minister of Foreign Affairs Mélanie Joly to “lead Canada’s contribution to addressing global challenges, including by […] strengthening Canada’s diplomatic capacity.”

In May 2022, Minister Joly launched the “Future of Diplomacy: Transforming Global Affairs Canada” initiative alongside the Deputy Minister of Foreign Affairs. Drawing on a comprehensive process of consultation, reflection and prioritization, this internal review suggests various ways Global Affairs Canada can be strengthened to more effectively promote and protect the interests of Canada now and well into the future.

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Global Affairs at a glance

• 14,000 employees
• 178 missions
• 110 countries

Mandates:

Global Affairs Canada defines, shapes, and advances Canada’s interests and values in a complex global environment. Global Affairs Canada staff manage diplomatic relations, promote international trade, provide consular assistance, and lead international development, humanitarian, and peace and security assistance efforts. They also contribute to national security and the development of international law.

2. Drivers of change

The end of the Cold War in 1989 ushered in a period of unprecedented globalization and interconnectedness, centred around the pre-eminence of the United States and a widely accepted web of international rules, founded on democratic principles. Canada, surrounded by 3 oceans and bordered by a friendly superpower and the world’s largest market, thrived. Its multilateral diplomats were active in disarmament talks and the decommissioning of Soviet-era weapons and ammunition stockpiles. The 1997 Ottawa Convention (also known as the Anti-Personnel Mine Ban Treaty) showed global Canadian leadership.

Canada’s trade diplomats criss-crossed the world during this period, such that by 2020 Canada had preferred access to 61% of the world’s GDP^{Footnote 4} (accounting for 1.5 billion consumers) and was the only G7 member to have a free trade agreement with all other G7 countries. Consular services also increased dramatically as more and more Canadians travelled abroad, and to more distant places. Canadian development assistance contributed to a steadily declining global poverty rate, which reached a historic low prior to the COVID-19 pandemic. By 2019, 3.5 billion people had achieved the health and income levels enjoyed by only 1.3 billion in 2000.^{Footnote 5}

In recent years, the global context has changed significantly. The post-Cold War period of globalization is transitioning to a new era of growing complexity and myriad emerging threats and obstacles, rooted in the following major trends.

2.1. Shift of economic and political power to the south and east

In the mid-1970s, G7 countries—France, the United States, the United Kingdom, Germany, Japan, Italy and Canada—accounted for roughly 63% of global GDP.^{Footnote 6} This meant, in a very real sense, that when the G7 took a position, the rest of the world followed. The G7’s share of the global economy, which had increased to 66% by the end of the Cold War, now stands at 44%. In 2023, China alone accounts for 18% of current world economic output. Canada has slid from the seventh largest economy in 1976 to 10th today.^{Footnote 7} The shift in economic power has led to changes in the political realm. China, India and other emerging economies are on the rise and, collectively, the BRICS (Brazil, Russia, India, China and South Africa) are aiming to redefine key elements of existing international rules and norms and are actively building new institutions and writing a new narrative in support of this approach. Some developing countries and emerging economies feel pressured to choose between spheres of influence, especially given the growing divide between democratic and authoritarian regimes. All of this means that the map of world power has been gradually tilting to the south and east, while Canada and its closest partners remain largely in the north and west.

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G7 countries’ share of world GDP has decreased significantly

Share of GDP	1975	1991 (end of Cold War)	2023
Other countries’ share of world GDP	37%	34%	56%
G7 countries’ share of world GDP	63%	66%	44%

Source: What does the G7 do? (2022) Council on Foreign Relations.
https://www.cfr.org/backgrounder/what-does-g7-do

2.2. Return of Great Power competition and rules-based order challenged

After 40 years of relative peace and prosperity, great-power rivalries have re-emerged. China’s rise as a global player in both economic and military terms is presenting a direct challenge to the rules-based international order. Russia has dropped all pretense of respect for sovereignty and territorial integrity and has reverted to military aggression, launching the most brutal war in Europe since WWII. There is increasing cooperation between China and Russia, including in the Arctic, where Canada, the United States and Nordic partners are facing a new geopolitical reality. In parallel with the dawning of a new multipolar era, there has been a clear weakening of agreed international rules. Conflicts between states are on the rise, with 56 recorded in 2020,^{Footnote 8} the highest number since the early 1990s. These crises are longer, more protracted and less responsive to traditional forms of resolution. Further, democracies are facing significant challenges, including the rise of malign populism, which in some countries has further undercut the rules-based international order.

2.3. Increased impact of transnational forces

Canada is also facing complex challenges that are transcending international borders and lie beyond the control of single states. Hostile state and non-state actors, cyber threats, organized crime, weak international governance and waning rule of law are just some examples. Migratory pressures are increasing, as millions of people around the world flee conflict and other threats. The COVID-19 pandemic showed all Canadians their vulnerability to threats coming from beyond their borders. It also brought home the importance of reliable and resilient supply chains. More recently, the spillover effects of Russia’s invasion of Ukraine have underscored how millions of people around the world remain vulnerable to food insecurity. And, of course, the entire planet is facing the existential threat of climate change which, among other impacts, has led to a fivefold increase in natural disasters over the past 50 years, which in turn has resulted in a sevenfold increase in economic losses from the 1970s to the 2010s.^{Footnote 9} Tackling climate change and related issues such as biodiversity loss and mass migration requires extensive international collaboration, but also major investments, including by Canada.

2.4. New technologies and new domains of competition

Everywhere they look, Canadians see their world changing and the pace of change accelerating. New technologies are transforming production and labour demands in unprecedented ways. Canadians have already felt these dynamics in their professional and personal lives, yet even bigger changes may be on the horizon. Newer technologies such as artificial intelligence (AI)—powered by machine learning—quantum computing and advances in biotechnology may prove to be more significant than the invention of the printing press or the Internet. It is impossible to know if the digital and related revolutions will ultimately have a positive impact on international relations, allowing countries to work together more collaboratively and efficiently, and increasing democratic development. But new technologies are already presenting new threats, in the form of military technologies developed by adversaries; technologically enabled authoritarianism; increased cyber threats; misinformation; and AI-driven disinformation, all of which threaten Canada’s democracy, prosperity and national security. Technological advancement is also leading to new areas of geopolitical rivalry, including in space and on the deep seabed. There are opportunities here for Canada, but new threats as well. This is why Canada needs, more than ever, to be present in every international forum that will influence the development of new international norms and rules related to emerging technologies.

2.5. A rapidly changing Canada

Finally, Canada today is not the Canada of several decades ago. The Indigenous population in Canada grew 56.8% between 2006 and 2021—nearly 4 times faster than the non-Indigenous population.^{Footnote 10} Significant demographic and social shifts have changed what Canadians expect of their government internationally and how it should represent and serve them abroad. Almost one-quarter of the population in Canada was born outside of Canada, the highest among the G7, with this percentage projected to climb as high as one third of the population within the next 20 years. In large metropolitan areas like Vancouver and Toronto, nearly a quarter of children start school with neither English nor French as their first language.^{Footnote 11} India, China and Afghanistan were the top 3 source countries for new Canadian permanent residents in 2022; the overall share of new immigrants to Canada from Nigeria, the Philippines, France, Pakistan, Iran, the United States and Syria is also rising.^{Footnote 12} The rise of modern, affordable travel and telecommunications (including social media) means that all Canadians can be more connected to the world outside their borders. It also means that new Canadians can maintain stronger linkages to their countries of origin.

Global Affairs Canada has of course been adapting to these drivers of change. It has undertaken new programs and investments in recent years to augment its diplomatic outreach and international engagement, create more spaces and opportunities for collaboration with allies, like-minded and non-traditional partners, improve services to Canadians abroad, support developing countries in key areas such as climate change, and expand its presence in strategic locations critical to Canadian prosperity, security and people-to-people connections. These investments include:

Strengthening security and preparedness at missions abroad (2017)

The department is investing $1.8 billion over 10 years to improve security and ensure it can fulfill its duty of care obligation to its employees and other Canadians serving in its missions abroad.

Increasing climate finance (2021)

Global Affairs Canada is programming a significant portion of the $5.3 billion over 5 years that Canada is providing to support developing countries’ efforts to combat climate change and prevent biodiversity loss.

Increasing consular capacities (2022)

Global Affairs Canada is investing $101.4 million over 6 years to improve communications with Canadians abroad and strengthen support in times of crisis.

Indo-Pacific Strategy (2022)

As part of the government’s $2.3-billion Indo-Pacific Strategy, Global Affairs Canada is investing $637.7 million over 5 years to enhance support for Canadian exporters; increase development assistance to partner countries, including for disaster risk reduction; strengthen people-to-people ties via scholarships; and enhance security, including cyber security.

Augmenting China capacity (2022)

The department is coordinating an investment of $35 million over 5 years to build China-focused analytical capacity across its global mission network and within the wider federal government; enhance interdepartmental policy coordination; expand collaboration with provinces and territories; and strengthen engagement with Canadian researchers and civil society.

Expanding presence abroad (2023)

The department will have invested $110 million by the end of 2023 to: establish a fully dedicated mission and permanent observer to the African Union in Addis Ababa; convert Canadian offices in Estonia, Lithuania, Slovakia and Rwanda into full embassies and high commissions with resident heads of mission; and open new missions in Armenia, Fiji and Milan. The department will also further strengthen its presence at its embassy in Latvia in 2024.

Creating a more diverse workforce and healthier workplace (ongoing)

While there is more work to be done, implementation of a department-wide Anti-Racism Strategy and Action Plan, as well as a Reconciliation Action Plan, are underway. A total of 26.2% of the department’s Canada-based employees^{Footnote 13} are visible minorities and half of all heads of mission^{Footnote 14} are women. In February 2023 the department established an ombud’s office to promote a work environment in which everyone is treated with respect and dignity.

These recent investments and initiatives are a good start and can be built upon. But Global Affairs Canada has not yet undertaken the kind of comprehensive and ambitious modernization exercise needed to fully respond to changes in both Canada and the wider international context.^{Footnote 15} Some of Canada’s partner countries have already embarked on concrete initiatives to respond to the evolving global environment. The United States, for example, launched its “Modernization of the State Department” exercise in October 2021 (prior to this, its last major change was the adoption of the landmark Foreign Service Act in 1980). In 2023, France completed its own diplomatic service review, which will lead to 700 additional positions and an increase of 20% of the ministry’s annual budget. In Canada’s own Parliament, the Senate’s Standing Committee on Foreign Affairs and International Trade is studying the “Canadian foreign service and elements of the foreign policy machinery within Global Affairs Canada” and will report in December 2023.

3. What kind of global affairs department does Canada need?

To serve Canada and Canadians effectively, Global Affairs Canada must be able to:

• mobilize, convince or dissuade foreign governments and international organizations on issues that affect the security and prosperity of Canadians.
• help to create prosperity in Canada by leading trade negotiations and providing services and advice to Canadian businesses to help them succeed abroad, and by attracting foreign investment into Canada.
• manage Canada’s international assistance in support of efforts to eradicate global poverty and contribute to a more peaceful, prosperous and inclusive world.
• deliver world-class services and information to Canadians to help keep them safe overseas.

Global Affairs Canada must play a consequential role on priority international issues, be able to help Canadians navigate challenges, and support the development of integrated, whole-of-government strategies. Federal government partners look to Global Affairs Canada to chart the overarching direction for Canadian foreign policy, gather stakeholders, lead Canada’s global engagement on a myriad of issues, and support their own important mandates and international engagements. Likewise, provinces, territories, the private sector, civil society and academia expect Global Affairs Canada to frame the agenda on crosscutting global issues that intersect with their own responsibilities and interests. Finally, the department must maximize the advantages of having all the major elements of modern international engagement—foreign affairs, international trade, international development, and consular policies and programs—under a single roof. To be truly effective, Global Affairs Canada must be much greater than the sum of its parts.

Canada needs a department that is:

Strategic and influential where and when it matters.

• Canada needs a department that can effectively articulate, coordinate and deliver a full global agenda and strategically communicate and engage with Canadians and the world. Global Affairs Canada must be able to do this at the heart of multilateral organizations where rules are written that will shape the international context for decades to come, and where existing norms are being challenged and new ones developed. The department must also be strategic and influential with the world’s new and emerging powers, while maintaining the flexibility to pivot in keeping with Canadian interests. And Global Affairs Canada must of course continue to work closely and strategically with countries that are traditional allies and close friends, where Canada’s future alignment will matter even more.

Open and connected to Canadians and the world.

• A 21st-century global affairs department needs to anticipate, analyze, understand and address emerging foreign policy issues. To do so effectively, it must be open to the breadth and wealth of globally minded expertise and international experience available, including at universities and think tanks in Canada and abroad, diaspora populations, in other federal government departments and at other levels of government. For too long, Global Affairs Canada has kept its circle of trusted partners a small one; the department should become “open by default.” This implies new partnerships and a readiness to facilitate exchanges and hiring to increase expertise, coordination and intersection of domestic and global issues.

Agile and responsive to emerging challenges and opportunities.

• The department must be smart enough to anticipate challenges and opportunities, and agile enough to respond effectively. Criticisms that the department has sometimes been slow to react or not focused enough on emerging issues have some legitimacy. Becoming more agile means not only gaining a better understanding of the evolving external context but also developing a culture of learning and effective knowledge management, prioritization and proactive resource reallocation to ensure effective response.

The leading player in a whole-of-government international policy effort.

• Over the last 3 decades, federal departments have developed a much more active presence on the international scene. Their priorities have become increasingly enmeshed in global issues and they have sought international cooperation across all sectors (e.g. the Public Health Agency of Canada, especially during the COVID-19 crisis, Natural Resources Canada, on critical minerals; Environment and Climate Change Canada on climate change, environmental degradation and pollution). Federal departments and agencies now have substantial international capacity and are increasingly active abroad. Similarly, other levels of government in Canada—provinces, territories and municipalities—are increasingly engaged in international relations and advancing their own international priorities. Global Affairs Canada has played facilitator and convenor roles during this evolution, but this can fall short of delivering fully coordinated international activity. There is an opportunity for the department to provide a renewed level of partnership in helping coordinate strategy, tactics and long-term agendas related to the federal government’s activities abroad. There are specific areas where the department will need to play a more active role filling gaps and connecting dots, as almost all domestic policy issues now feature critical international dimensions.

Equipped with a workforce that is diverse, highly skilled, bilingual, healthy and dedicated to excellence.

• Canada is one of the world’s most diverse countries and Global Affairs Canada must reflect and represent that diversity. Global Affairs Canada needs a highly skilled, multilingual, diverse, respected and respectful workforce, where employees can thrive while delivering world-class services to Canadians and advancing Canada’s national interests. The department will strive for a work environment that is fully welcoming of differences of all kinds, upholds the highest standards of values and ethics, supports well-being and has zero tolerance for toxic behaviour. It should always remain conscious of the very difficult environments in which many staff work and live. Global Affairs Canada needs to promote and reward creativity, achievement and initiative, and create a culture that encourages intelligent risk-taking. It also needs to adapt to the current generation of employees posted abroad, which no longer defaults to a pre-defined family structure with one partner designated to manage the household and provide unpaid labour, as was the case when the rules governing the foreign service were devised. Global Affairs Canada should provide a stimulating, inclusive, bilingual, representative and professional environment where the well-being, development and excellence of its principal asset—its people—is paramount.

4. How to get there? Action areas and recommendations

The 4 action areas and recommendations that follow are the result of an extensive process of consultation, analysis and reflection over many months. The department conducted more than 80 consultations with Global Affairs Canada staff from headquarters and missions, inclusive of all business lines, as well as with the Diversity and Inclusion Council, the Anti-Racism Secretariat, and unions. Wide-ranging consultations also took place with countries undertaking similar modernization exercises, other federal government partners, provinces that are co-located at Canada’s missions abroad, former senior officials, and other key stakeholders. In total, over 9,000 individual ideas and submissions were received and considered.

In addition, the department benefited greatly from an external advisory council to the Deputy Minister of Foreign Affairs, which also engaged with other countries and consulted key stakeholders, such as current and former heads of mission and the Global Affairs Canada Young Professionals Network.

Overall, there was a remarkable degree of convergence among those consulted. While there were some differences in emphasis, most (in both Canada and elsewhere) agreed that true change would come by focusing on some combination of policy expertise, presence abroad, people and the processes and tools needed to carry out the department’s multiple mandates.

The recommendations that follow are therefore structured around 4 key “action areas.”

1. build new policy expertise and capacity to manage prolonged crises.
2. increase presence abroad.
3. invest in the people of Global Affairs Canada.
4. invest in the department’s tools, processes and culture.

The action areas should not be seen as discrete or siloed but rather as a mutually reinforcing package to prepare the department for the challenges of today and tomorrow.

4.1. Build new expertise on international issues key to Canada’s future, and increase capacity to anticipate and manage prolonged crises

a) Why?

Canada faces a wider range of complex and layered issues than ever before, as explained above. Given the current pace of change, Global Affairs Canada should increase its ability to anticipate and analyze global trends that matter for Canada and prepare policy prescriptions to address them and protect Canadian interests.

At the same time, recent experiences in Afghanistan, Ukraine, Sudan and Haiti have shown that crises initially perceived as “international” can quickly take on significant domestic policy dimensions (e.g. sudden influxes of refugees) or continue for a protracted period. As Canada’s leading department on all things international, Global Affairs Canada must continue to provide a robust whole-of-government platform to support Canada’s operational and policy response to short-term and protracted crises in an increasingly complex world.

b) How?

Increase capacity in key policy areas.

• The evolving global landscape demands a deepened understanding and engagement with issues such as climate change, energy, global health, global finance, cyber security and emerging technologies, geo-economics, and multilateral diplomacy.
  • While all these policy areas demand greater attention from Global Affairs Canada, the department’s immediate priority should be to increase its policy capacity on climate change, including in relation to the energy security and critical mineral nexus. This is needed given the significance of these issues to Canada’s future, their growing importance to Canada’s bilateral and multilateral engagements, and for Canada’s leadership in global climate financing. Working closely with partner departments, including Environment and Climate Change Canada, Natural Resources Canada and Innovation, Science and Economic Development Canada, and further leveraging the role of Canada’s Climate Change Ambassador, Global Affairs Canada should help increase understanding throughout government on a range of issues. They include how geopolitical competition intersects with Canada’s economic security, supply-chain resilience and emerging industrial policies, and how the interplay between climate change, the green transition and Canada’s critical minerals will be key to the country’s future positioning internationally.
  • Priority should also be given to expanding capacities and mandates within existing units responsible for cyber and digital issues, both at headquarters and at select missions abroad, with a particular focus on science and technology, artificial intelligence and big data, and the relevance of these issues for Canada’s foreign policy, including to influence norm-setting internationally.
  • The enhanced policy capacity should build on existing departmental expertise and deepen cross-fertilization with other federal and provincial departments where technical and scientific knowledge resides. This would require engaging new experts from outside the department (or bringing them in via Interchange or similar agreements), drawing from academia, industry and civil society.

Increase overall capacity to understand the implications of key geopolitical and geo-economic shifts and to act on them early, in pursuit of Canada’s interests.

• The world of 2035 will look very different from the world of today. With short-term challenges that demand significant time and intensive engagement, it is easy for foreign, trade and development policy to become reactive and risk averse. Exactly the opposite is needed. Global Affairs Canada needs to build new policy capacity to provide the government with longer-term strategic thinking on the international and global issues that will shape Canada’s security and prosperity in coming decades.
• An Open Policy Hub would be responsible for high-quality, evidence-based policy development and analysis as well as advance warning and foresight. This Hub would be open by design, and constitute a networked, multidisciplinary centre integrating expertise from domestic and international stakeholders to inform analyses and test emerging trends. It would use a range of modern tools and methodologies to provide horizontal policy analysis on global trends and challenges that cut across geostrategic, economic, trade and international assistance issues. It would further work with academic hubs and networks across the country to benefit from Canadian academic community knowledge and expertise. It would also draw from non-governmental organizations, civil society, think tanks and political risk professionals, the private sector, provinces and territories, and the Canadian public. Insulated from the demands of daily departmental operations, it would be the natural docking point for domestic and international thought leaders, researchers, analysts, data scientists and historians, and benefit from the Interchange program or similar agreements for them to be hosted by the department. The Hub would also manage a “challenge platform,” a mechanism for continuing feedback and consultations to foster constructive debate between employees and the wider policy community and help to identify blind spots in Canada’s foreign affairs, trade and development policy approaches.

Increase capacity to anticipate and manage whole-of-government response to geopolitical and security crises.

• International crises are becoming more frequent. Recent experience with the COVID pandemic, Afghanistan, Haiti, Sudan and the Russian invasion of Ukraine shows that crises are also becoming more complex and protracted, often requiring simultaneous humanitarian, political, security and consular interventions that last for months and sometimes longer. Better foresight and trend analysis capacity would help Global Affairs Canada and its partners anticipate and prepare for the inevitable crises of the future. But Global Affairs Canada should also have a more robust and integrated approach to managing international crises through their various phases.
  Building on the department’s existing consular crisis response platform (the Emergency Watch and Response Centre) and humanitarian crisis response capacities, the establishment of a standing geopolitical response capacity would enable the department to respond more effectively to major protracted political and security crises without compromising regular business activities. Permanent and surge resources would be set up to bolster the department’s ability to manage the whole-of-government response to international security and political crises that are not primarily consular or humanitarian in nature and/or once the crisis becomes protracted. This capability would be built around a flexible core of experts who understand and could perform core aspects of effective long-term geopolitical crisis management. It would include headquarters-based staff to provide policy support, including the rapid drafting and consulting of memoranda to Cabinet. These experts would work closely with missions abroad as well as with geographic and functional branches and other government departments. Once this standing geopolitical crisis task force capacity has been built and road-tested, the department will explore moving toward the establishment of a permanent crisis-response centre that would integrate all streams of crisis-response work (mission security, consular, humanitarian/natural disaster and security/political), noting the possibility of realizing economies of scale.

4.2. Enhance Canada’s capacity to exert influence by increasing its presence abroad, including at multilateral tables

a) Why?

Diplomacy is about influence—the ability to convince or dissuade others in service of Canada’s interests around the world. Overseas, Canada exercises influence primarily via its network of diplomatic missions, which conduct a range of activities in support of Canada’s foreign, development and trade policy objectives, including programs that provide direct financial support to partner countries to combat climate change, conflict and hunger, and promote gender equality.

Canada’s diplomatic missions are headed by ambassadors, high commissioners and other senior officials who serve as heads of mission (HOMs). They lead teams who are specialists in foreign policy, trade promotion and investment attraction, consular affairs and international development. These teams include Canadians posted abroad and locally engaged staff (mostly nationals of host countries) who directly deliver programs and provide common services for mission operations for a broad range of federal departments and agencies, and Canadian provinces.^{Footnote 16} Canadian missions abroad regularly host visits from the Prime Minister and other Cabinet ministers, provincial premiers, senior officials from across government, trade delegations and leading cultural figures, all of which helps to increase Canada’s influence abroad.^{Footnote 17}

Global Affairs Canada’s network of missions abroad, and the quality of its people who serve there, is its greatest value-added to Canadian government policies and programs. It is expected that by the end of 2023, the current network will be comprised of 182 embassies, high commissions and consulates in 112 countries.^{Footnote 18}

While the number of Canadian missions abroad has remained relatively stable over time,^{Footnote 19} Canada’s overall presence and ability to exert influence abroad has not kept pace with evolving global realities. The chart below shows spending by like-minded foreign ministries on a per capita basis, including on their missions abroad.

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Foreign Ministry Spending per Capita, 2021-22 (foreign affairs, trade and international assistance

Country	Total spending (2021-22)	Spending per capita
Germany	$27,769,002,065	$334
United Kingdom	$19,983,874,933	$297
Australia	$6,028,800,000	$233
Canada	$8,530,000,000	$223

Note: These figures should be interpreted as rough estimates to provide general context on Global Affairs Canada spending.

Source: Figures are drawn from the budgets, financial reports, and websites of these countries’ respective governments and MFAs. Population and GDP data were drawn from IMF reports. Note: Where foreign affairs, international trade, and development mandates are split over multiple agencies, respective budgets were tallied. These figures have not been vetted by the Australian, German or UK  relevant authorities.

The number and composition of Global Affairs Canada staff posted abroad have fluctuated over time, mainly because of various rounds of expenditure reviews (positions abroad are much more expensive than at headquarters) and technological progress (several functions once performed by employees overseas are now automated, require much less human intervention or can be performed by headquarters). The high point was at the end of the Cold War in 1990, when there were 2,993 Canada-based staff (CBS) overseas. The number had declined to 2,014 by 1998. In 2022 there were 2,777 CBS^{Footnote 20} posted abroad.

Canada’s representation at the UN today is one of the lowest among G7 and G20 partners and competitors alike, despite Canada’s rank as the UN’s seventh largest financial contributor. The UN system is at the centre of norm setting and rule development across a wide spectrum of issues critical to Canada’s future (e.g. development of 6G technologies, rules around use of the deep seabed). Canada’s long-term interests demand that its diplomats be in the rooms where this is happening.

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Comparison of presence abroad

Number of FTEs at the Permanent Mission to New York comparison with other countries

Country (year)	FTE at the Permanent Mission to New York
Russia (2020)	200
US (2020)	150
China (2023)	140
Germany (2020)	120
UK (2020)	108
Japan (2023)	102
France (2020)	73
Indonesia (2020)	65
Italy (2020)	60
EU (2020)	60
Republic of Korea (2023)	35
Australia (2020)	30
Canada (2022)	25*

Number of countries with diplomatic presence comparison with other countries

Country	Number of countries with diplomatic presence (2023)
Japan	196
Republic of Korea	191
UK	178
France	168
Germany	153
India	143
Turkey	136
Brazil	133
Australia	122
Canada	110
South Africa	102
Norway	81

Source: Chart on left: PRMNY paper 2021: Aligning Canada’s Interests & Human Resources at the UN in New York; PRMNY, Feb 8, 2023. Chart on right: Global Affairs Canada; Department of Foreign Affairs and Trade, Australian Government; Ministry of Foreign Affairs, Norway; Ministry of Foreign Affairs, Republic of Korea; Ministry of Foreign Affairs, Japan; Federal Foreign Office, Germany; Ministry for Europe and Foreign Affairs, France; Foreign, Commonwealth and Development Office, United Kingdom; Ministry of External Affairs, India; Ministry of Foreign Affairs, Türkiye; Ministry of Foreign Affairs, Brazil; Department of International Affairs and Cooperation, South Africa.

*Note that Canada’s FTE number includes OGDs (7 FTEs) but excludes common services and sunsetting positions. Canada and like-minded country numbers include national diplomats and LES; China and Russia do not have LES.

b) How?

Where and how Canada is represented abroad merits new consideration. While advances in technology offer new possibilities for virtual and hybrid global engagement, strengthened presence on the ground is required to report, advocate and represent Canada’s strategic interests where it matters most. This may also require looking at where presence should be reallocated, to support areas where Canada’s interests are greater.

Global Affairs Canada should:

Strengthen presence in the international bodies that matter most to Canada.

• As a founding member and leading contributor to many multilateral organizations, Canada could make much better use of the multilateral system.
• Global Affairs Canada should update the baseline footprint of its UN flagship mission in New York, and review Canada’s capacity at other UN missions in Geneva, Vienna, Nairobi, Rome and The Hague.
• The department should also assess the adequacy of representation at other key multilateral missions such as NATO, OAS, OECD, OSCE and WTO, as well as ensuring adequacy of resources dedicated to the work of the Arctic Council, IMF, and the World Bank.
• The department should also develop a strategy to proactively identify, recruit and promote Canadian candidacies for appointment or election to the UN and other international organizations, including at relatively junior levels, as other countries do. It should also take greater advantage of secondments/interchanges across multilateral institutions and renew participation in the UN Junior Professional Officer Programme.

Strengthen presence in key G20 and other strategically important countries.

• Canada needs an enhanced ability to advance its core interests in countries with growing international influence, either economically or strategically. This implies stronger presence throughout the group of G20 countries,^{Footnote 21} but particularly those where Canada’s presence has traditionally been thin. Beyond the G20, Central Asia could become a strategic link between Europe and Asia; the Balkans and Central America remain fragile regions where an enhanced Canadian presence would be helpful, including to allies; Africa continues to be the continent with the most promising economic growth prospects, and where Canada remains under-represented. Increases in mission presence in the China network, as well as in eastern Europe and the Caucasus, along with the proposed additions under the Indo-Pacific Strategy, are a good start, but more is required if Canada is to keep pace with partners and competitors alike. Recognizing that Canada’s 2 official languages contribute to defining the image Canada projects on the international scene, the department should also take greater advantage of bilingualism in its relations and representations as an undeniable asset of its diplomacy.

• The department is developing and implementing a governance structure and mechanism to regularly review and rebalance positions abroad, with the intent of ensuring ongoing and flexible alignment with Canada’s strategic interests. The establishment of a culture of prioritization and recalibration against priorities is an important one, especially considering that presence abroad is expensive: positions overseas can cost significantly more than positions in Canada.

Pursue innovative means of promoting Canadian interests abroad.

• While nothing beats the effectiveness of being “on the ground,” the department should also be smart about where and how it invests to deliver on its foreign policy, development, consular and international trade mandates. Technology provides untapped opportunities to do things differently. For instance, monitoring and reporting on multilateral meetings that are streamed online could potentially be done from headquarters or anywhere else in the world. At the same time, positions overseeing program delivery of hundreds of millions of taxpayer dollars should be as close as possible to where those dollars are being spent. Building on its earlier “Mission of the Future” work, Global Affairs Canada should explore innovative forms of global representation and engagement to complement its physical presence abroad. The technological shifts spurred by the pandemic allow for greater experimentation: in pioneering virtual and hybrid trade missions, Canada is already at the forefront of this offshoot of traditional diplomacy. Global Affairs Canada could explore the possibility of a range of options, including virtual offices abroad; temporary pop-up posts; appointing “ambassadors-at-large” on specific themes; better leveraging the 4-million-strong Canadian diaspora abroad; increasing the number of honorary consuls^{Footnote 22} and enhancing social media presence in areas where key regional influencers are active. The department should continue to maximize the use of “soft power” and public diplomacy abroad, including through support for science diplomacy, sport diplomacy, academic diplomacy and cultural diplomacy.

Strengthen its communication, advocacy, engagement and consultations capacity, to more effectively reach both Canadians and foreign stakeholders and audiences.

• Advancing this goal calls for a deliberate, integrated and coherent departmental communications strategy to guide Canada’s public engagement at home and abroad. The mandate of the Public Affairs branch should be broadened to include a leadership role in departmental strategic communications and to enable it to play a coordinating role across the department. Better alignment of messaging, greater clarity of objectives and better streamlining of resources will help to build trust, strengthen legitimacy and sustain widespread public support for Canada’s international engagement, particularly in an age of waning trust in governments and institutions. A strengthened digital presence in emerging and relevant social media platforms to “meet people where they are” could help the department better connect with new and traditional audiences.

4.3. Ensure Global Affairs Canada’s workforce is highly skilled, bilingual, diverse, healthy and capable of delivering world-class results for Canadians

a) Why?

Global Affairs Canada employees, Canada-based staff (CBS) and locally engaged staff (LES) alike, are at the heart of everything the department does. They serve around the clock and around the world, often in hardship postings, far from family and loved ones. The 2022 Public Service Employee Survey shows that 85% of Global Affairs Canada employees are proud of their work ^{Footnote 23}. But, put plainly, one of the clearest messages to come out of the consultations and surveys that went into preparing this report is that there is an urgent need to modernize and strengthen many of Global Affairs Canada’s human resources practices and systems, to ensure employees throughout the workforce can contribute to their utmost potential. Employees also expect more from their workplaces today. Factors such as the shift to a hybrid workforce, the tightening of the labour market, rebalancing demographics and rapid advancements in technology are just a few of the factors affecting Global Affairs Canada and its ability to attract and retain top talent.

The department’s workforce is complex. There are approximately 8,300 Canada-based staff and 5,600 locally engaged staff. Within the CBS group, approximately 2,000 are foreign service employees (rotational).^{Footnote 24} The balance between foreign service and other occupational groups has undergone a significant shift in the last 20 years: 2 decades ago, a majority of staff were foreign service employees, while today the vast majority (74%) are from other groups. They are policy analysts, experts in trade, development, and consular affairs; financial and human resource officers; legal advisers; and IT professionals and analysts, to name a few. This shift toward other occupational groups can be traced to a variety of factors, including the amalgamation with the Canadian International Development Agency (CIDA) in 2013,^{Footnote 25} and the virtual halting of entry level and other recruitment into foreign service positions for over a decade because of financial constraints. Failure to recruit regularly meant that while foreign service employees still went abroad, work that had previously been done by foreign service employees at headquarters began to be done by other professional groups, many of whom first entered the department as casual or term employees. Finally, the expansion of functions at headquarters to manage information technology systems, ensure security of staff abroad, manage the global network of missions (including the growing presence of other government departments and provinces/territories) and growing consular demands further contributed to the growth of positions in Canada outside of the foreign service.

These structural factors have led to frustration within parts of the workforce. While it is not true that Global Affairs Canada does not value expertise—for instance, the department has nurtured and developed some of the best trade policy and gender-based analysis expertise in the world—some employees working in a number of areas of the department, including younger employees, have felt disadvantaged compared to foreign service employees. Employees in certain categories have raised concerns with having less access to specialized training, fewer career advancement possibilities and lower priority for postings abroad. While the average attrition rate for the past 5 fiscal years for rotational employees is at 3.4%, the rate for other professional groups in the department is 9.9% - almost 3 times more. Some employees, including foreign service officers with in-depth expertise in specific geographies and issue areas, have increasingly felt disadvantaged over time, including in promotional processes, where emphasis has been placed on management competencies, rather than geographic, linguistic or issue-area expertise. Many foreign ministries are wrestling with the “generalist versus specialist” balance and there are legitimate concerns that over time Global Affairs Canada has tilted too far toward generalists.

The realities of the locally engaged workforce add even more complexity: this cadre represents 81% of Global Affairs Canada staff at missions, works in over 110 different labour jurisdictions, and performs a range of duties from assistants to drivers to senior officers on various programs. All Canadians serving abroad know that LES are the backbone of Canada’s global mission network, serving loyally and courageously, often in very difficult locales. Over the years, the increased sophistication of the LES competency profile, coupled with labour market conditions, suggests there is a need to look deeply at the optimum role of LES at individual missions, now and into the future, as well as to whether Global Affairs Canada is doing everything necessary to retain and develop this key component of the workforce. The department also needs to ensure proper standard of care for LES in times of crisis, including through consultations with the Minister of Foreign Affairs, heads of mission and relevant partner departments.

Finally, Global Affairs Canada must be a place where all employees feel safe and respected, and where everyone understands that there is zero tolerance for misconduct or wrongdoing of any kind. The recent creation of the Office of the Well-being Ombud, which provides a one-stop-shop for all staff to obtain information and support to resolve workplace issues, is an important new investment in the well-being of all employees. The department is also taking additional measures to support the ecosystem and processes through which allegations of wrongdoing and misconduct are received, investigated and addressed. In summer 2023, while taking appropriate steps to protect privacy, the department will begin reporting regularly and transparently to staff on allegations of wrongdoing and measures taken as a result. Having a positive, people-centred organizational culture, founded upon trust, respect, pride in the work being done, and confidence in leadership, must be central to the Global Affairs Canada of today and the future.

b) How?

Recruitment

• Global Affairs must improve recruitment and staffing to ensure the department has the right expertise to promote and protect Canadian interests and to be more representative of Canadian society. The department should reform its approach to post-secondary recruitment and undertake outreach across Canada to target the skills required to deliver its various mandates, with a focus on under-represented populations and wider geographic representation. Recruitment efforts should show better results in terms of representativeness, and specifically greater numbers of Black employees, Indigenous peoples, and persons with disabilities. These recruitment drives should be held on an annual basis, to ensure a steady flow of new talent entering the department regularly, or downstream effects will be felt at all levels of the human resources planning cycle.^{Footnote 26} The department boasts an extremely qualified workforce, both in Ottawa and abroad, yet the increasingly complex global context calls for augmented expertise across all streams and business lines to anticipate, analyze and respond to emerging challenges, opportunities and crises. Specialized competencies can often be augmented by the language skills possessed by Canada’s multicultural population, of which Global Affairs Canada should make better use. Likewise, the work undertaken at Global Affairs is alluring to many professionals and subject matter experts, but too often there are no entry points to bring them onboard mid-career; two-way exchanges and more opportunities for lateral entry can help. Existing workforce management processes also need to better identify, document and harness the wide-ranging expertise that already exists among employees.

Training

• Bilingualism at the core. Providing services in both official languages is a legal requirement, but projecting a bilingual Canada abroad and maintaining a work environment that is seamlessly bilingual are also core aspects of Canada’s identity, diversity and strength. The department should do everything it can to take greater advantage of bilingualism as an undeniable asset of Canada’s international engagement. Therefore, senior executives across the department should be held accountable for ensuring an equal use of French and a functionally bilingual environment as well as promoting francophone diplomacy, at headquarters and in the mission network abroad. As a key measure to promote bilingualism within Global Affairs Canada, consistent with the proposed Bill C-13, Act for the Substantive Equality of Canada’s Official Languages, the department should centralize and expand access to official-language training for all employees, independent of their professional group, and must increase the linguistic profile of supervisory positions in line with the Treasury Board Secretariat’s directive scheduled to come into force in April 2024.
• Increase foreign language capacity. The department should immediately work to enhance its compliance rate for foreign language-designated posts; incentivize the learning and retention of foreign languages; and put more emphasis on language skills that meet organizational needs, at headquarters and missions, in the consideration of candidates during the hiring process, at all levels and for all employees. Foreign language training for new foreign service recruits as part of their on-boarding, when necessary, combined with career-length continuous learning and multiple assignments to missions where their foreign-language skills are required, could all contribute to deepening and sustaining critical foreign-language capacities in the long-term.
• Enhance the effectiveness of dedicated training resources. The Canadian Foreign Service Institute (which could be renamed the Global Affairs Learning Institute) should be further leveraged. Further efforts should be made to ensure all dedicated training resources are aligned with the department’s current and future priorities, and this should be regularly reviewed. Mentoring, coaching, job shadowing and the establishment of communities of practice should be an integral part of Global Affairs Canada’s training culture. Schemes to promote sharing of online and other training resources with Canada’s most like-minded partners should be explored.

Career development

• While the department already boasts a highly qualified workforce, it needs to enhance career planning, promotion, assignment and talent management mechanisms to make sure it retains the current and future skills it needs. It should strengthen and expand the role of the human resources branch to take a more strategic and active approach in addressing the department’s needs, promoting talent through robust career planning and targeted assignments (including in hardship posts), and better defining and enforcing rotationality, all with a Gender-based Analysis Plus lens. All new foreign service recruits will be expected to complete at least 1 of their first 2 assignments abroad at a hardship mission and will be encouraged to undertake foreign language training. The revamped human resources branch would guide employees by identifying targeted assignment opportunities abroad and career path opportunities at headquarters, including for employees not in the foreign service. It would also improve performance assessments and link them with assignment and promotional exercises. All efforts should be made to give employees early confirmations of postings, such that they and their families can rotate during the summer period, with due attention to the need for school-aged children to arrive at posting in a timely fashion.
• Explore options to manage employees from all occupational groups in an integrated fashion, with a view to offering meaningful skills development and career advancement paths. These could include more flexible considerations of opportunities abroad for employees who have relevant skill sets and interests in an international career. A classification review of positions at various levels should be put in place to ensure that the department has the right balance of foreign service positions versus other occupational groups. It should also include access to talent management tools and processes for better career progression at all levels and within all groups. Regular internal lateral staffing exercises between the foreign service and other professional groups could also offer opportunities for employees to adapt their careers to evolving circumstances.

Conditions of service abroad

• The Foreign Service Directives (FSDs) are a package of allowances and benefits that support the deployment of employees and their families abroad. They are in profound need of a revamp. Global Affairs Canada intends to advocate strongly for FSD modernization in the upcoming renegotiation between the employer and bargaining agents in the fall of 2023. The department has already begun reviewing the Directives to inform this process, examining the benefits provided through an intersectional and anti-racism lens, that includes reviewing gender and GBA+ dimensions of overseas postings with family considerations, especially for women and 2SLGBTQI+ employees.
• The FSDs were not designed to take account of a global pandemic or the kinds of crises being experienced by Canadian personnel in Ukraine and elsewhere. To ensure appropriate support during crises and other extraordinary periods, the department is actively exploring mechanisms that can provide timely and appropriate response in in extremis situations, to support employees and their families within the FSD framework, as well as through additional measures not considered under the FSDs.

Locally engaged staff

• Ensure Global Affairs Canada can attract and retain top locally engaged talent. The smooth functioning and continuity of Canada’s programs and missions abroad depends to a significant degree on the high quality and commitment of its locally engaged staff. LES possess expertise in terms of language skills and cultural understanding, plus regional, thematic and technical knowledge, as well as corporate memory that is essential to deliver successfully on mission mandates. Global Affairs Canada needs to do everything necessary to retain and develop this key component of its workforce. The department should launch a review of the employment package of locally engaged staff, to ensure optimum working conditions, competitive compensation, fair treatment, and the right level of protection and care, especially in times of crisis. The recent events in Afghanistan, Ukraine and Sudan will help inform the range of support options for LES in times of crisis.

Heads of mission

• Heads of mission (HOM) develop deep expert knowledge of their countries of accreditation, establish wide and impactful networks, and provide advice and guidance on pressing matters of bilateral and international concern. They are responsible for Canada’s whole-of-government engagement in their countries of accreditation and for the administrative supervision of all federal programs present at mission. To maximize the effectiveness of heads of mission, the department should:
  • Work to confirm HOM postings earlier. This would allow for better continuity of operations at missions abroad, but also ensure more predictability and allow for accompanying families to plan ahead (and therefore minimize disruptions for school-aged children and maximize spousal employment opportunities).
  • Strengthen the role of the HOM as chief executive officer at mission. This would reinforce the HOM’s ability to coordinate and maximize output of all programs and create greater integration of priorities. Mandate letters from the deputy ministers at the beginning of assignments could add to this clarity of priorities and accountability. HOMs should also have more discretion over the re-allocation of resources to match evolving priorities. During major crises affecting mission operations, heads of mission must continue to play a strong leadership role, including in providing advice to the Deputy Minister and the Minister of Foreign Affairs, to inform critical decisions regarding personnel evacuation or mission closure.
  • Ensure HOM voices are heard. As Canada’s representatives abroad with unique knowledge and insights into the countries and international organizations to which they are accredited, HOMs should continue to be invited to brief ministers and the Prime Minister when necessary. They should also have the flexibility to meet regularly with other HOMs in their region. The practice of Global HOM meetings every 2 years should be maintained.
  • Establish a regular consultative mechanism with former HOMs. Retired and other former HOMs have unique wisdom and expertise built up over decades, which should remain a resource for the department.
• Study the possibility of Global Affairs Canada having “separate employer” status.^{Footnote 27} This was a signature recommendation of the external advisory council, and it deserves serious study. Service abroad within Canada’s global network of missions arguably brings challenges that are unique and moving to “separate employer” status may help Global Affairs Canada respond more effectively. The U.S. Department of State, for example, enjoys “separate employer” status. Yet, unlike the Department of State, which focuses on classical diplomatic functions, Global Affairs Canada encompasses the trade policy function and the Trade Commissioner Service as well as all policy and program responsibilities of the former Canadian International Development Agency.^{Footnote 28} The result is a highly heterogeneous workforce, with several different occupational groups serving under different collective agreements and conditions of employment. While it can be argued that life in the rotational foreign service is unique, it must be noted that only 26% of current Global Affairs Canada-based employees occupy foreign service positions. Even if that figure were to rise, it is likely that the foreign service component will remain a minority within the department’s Canada-based workforce.
  • If “separate employer” status is not advisable or cannot be achieved, work within existing frameworks to ensure Global Affairs Canada can optimally manage its workforce. Flexibilities within current administrative human resources, financial and other frameworks do exist and if separate employer status is not appropriate for Global Affairs Canada, it should make maximum use of these flexibilities.

4.4. Ensure Global Affairs Canada has the tools, processes and culture to thrive into the future

a) Why?

Whether at home or abroad, the Global Affairs Canada workforce must be empowered to provide the highest levels of service and advice—anytime, anywhere—in a way that is informed, capable and secure. Modernized processes and tools are an important part of an efficient, effective and people-centred organizational culture. Enabler functions, like the IT backbone of the department, and business processes should be aligned with the ambitious vision and objectives of the organization, including when the objectives evolve to accommodate new developments in the international context.

The department’s information management and information technology (IM/IT) and digital systems are rapidly aging. This is felt every day by Global Affairs Canada employees, while the real threat of cyber attacks by states and their sponsored actors continues to rise. Although investments have been made in recent years to better serve Canadians, such as the Consular Case Management System and the Export and Import Controls System, IM/IT functionalities continue to be a challenge throughout the organization, and particularly at missions abroad. IM/IT infrastructure and service delivery need to be continuously maintained, upgraded and improved to keep up with rapidly evolving technology and threats.

In addition to the need for more modernized IT and tools, corporate culture also needs to change. Simpler is better. The department must do more to address rigid and burdensome policies and business processes that stymie efficiency and innovation. While it is easy to point fingers elsewhere, the truth is that many of the constraints that hobble Global Affairs Canada are self-imposed. The department needs to rethink how it manages risk, including the unintended consequences of a corporate culture that is too risk averse. Layers of review, both vertically and horizontally, should be re-examined, including their impact on effective decision-making. Staff need agency to do the right thing at whatever their level of responsibility. This means senior management should show greater trust in the judgment of employees; it also means that employees should accept greater accountability for acting to advance the public’s interests.

b) How?

• Invest in Global Affairs Canada’s IM/IT and digital fundamentals, including modern, cloud-based architectures and networks. This would unlock the transformational capacities of new technologies, all while ensuring the highest levels of cyber security. Transforming the IM/IT operating model would also accelerate service modernization and digital enablement across Global Affairs Canada, and would drive more efficient operations, information sharing and access to quality data, helping the department better deliver programs. All of this is needed as the challenges and opportunities afforded by artificial intelligence and machine learning are coming to the fore, with new applications being realized on a seemingly daily basis—which have significant implications for maintaining the integrity and security of core IM/IT systems.
• Modernize and transform the department’s Grants and Contributions platform, which delivers nearly $4.3 billion annually to support Government of Canada objectives. Such a modernization needs to enable effective measuring of and reporting on results so Canadians have confidence that their taxes are delivering effective programming that makes the world safer, more just and more equitable. It would also provide external stakeholders with better line of sight on Global Affairs Canada expenditures, and therefore greater predictability of funding processes.
• Enhance international digital support and IM/IT service delivery. This is critical for Global Affairs Canada employees’ ability to communicate with one another and the public, access the information, data and archives they need, and do their work effectively, efficiently and securely from anywhere at any time. The department should modernize its digital services support model and strengthen technical support in missions and headquarters with the addition of skilled digital and technical resources, reinforcing access to classified networks at mission. This should be combined with enhanced training for staff on cyber threats, especially for those at missions.
• Stand up a centre of expertise on data. This would drive data and evidence-based insights across all business lines, establish data governance standards and enhance coherence across the department. The recruitment, training and ongoing development of expertise related to data, novel technologies and advanced systems should serve to reinvigorate data usage and literacy across the organization. Employees throughout the department should have the capacity to understand, visualize and communicate data for anticipatory policy-making, intelligence/information gathering, public diplomacy, trade and other negotiations, consular services, humanitarian response, tracking of development results and other core areas.
• Enhance knowledge management. Streamlined knowledge-sharing infrastructure and practices are key to improving employees’ abilities to share and retrieve knowledge across the department, including on secure networks. This is not an IT proposition so much as a cultural one: while the shift to using Microsoft’s SharePoint platform is making progress, Global Affairs Canada still largely functions via email rather than collaborative or knowledge-sharing platforms. Global Affairs Canada should become an organization that more systematically learns from its institutional experiences and the experience of its employees and makes knowledge easily accessible to others in the department (and elsewhere in the government, as classification protocols permit). The recommendations of the external advisory council on knowledge management included appointing a senior executive to champion knowledge management and initiate a knowledge management system. Initially focusing on staff (“Know Who”), other elements merit consideration, including focusing on key topics like trade negotiations, China and so on (“Know What”) and Global Affairs Canada’s key business processes (“Know How”).
• Develop a culture and practice of resource reallocation. Global Affairs Canada labours under the weight of its business planning processes at the same time as it struggles to reallocate and redeploy resources to Canada’s emerging priorities. In 2023, the Deputy Minister of International Trade is leading a financial sustainability review to garner a better idea of how Global Affairs Canada deploys its resources. Depending on the results of this review, the department’s budget planning process should be overhauled. Each branch has already been asked to examine how to reduce its discretionary activities by 5%, with a view to freeing up resources that could be redirected to higher departmental priorities. Over the longer term, Global Affairs Canada should aim to shift up to 10% of the department’s staff and discretionary spending every 3 years as Canada’s priorities evolve with the global environment. In due course it will also need to look at its corporate structures, including whether the current ratio of executives to non-executives is optimal.
• Conduct an immediate red-tape review and explore the potential of new technologies to help staff “work smarter”. In the shorter term, Global Affairs Canada will conduct an in-depth review of administrative and reporting requirements across the department, including layers of review, with particular attention to undue burdens placed on missions abroad. The goal is to have business processes that create more agency for employees at all levels, by embracing smart risk-taking. There needs to be trust, acceptance of the possibility of failure, responsibility for this failure when it occurs, and measured responses that emphasize learning when appropriate. Finally, emerging technologies such as artificial intelligence and machine learning should be evaluated through a Global Affairs Canada lens for their potential to improve service delivery, cyber security and operational efficiency.

5. Summary of recommendations

Action area 1: Build new expertise on international issues key to Canada’s future, and increase capacity to anticipate and manage prolonged crises

• Increase policy capacity on climate change, energy and critical mineral nexus as key to positioning Canada’s future internationally
• Expand capacities and mandates within existing units responsible for cyber and digital issues, with focus on science and technology, AI and big data
• Create an Open Policy Hub for high-quality, evidence-based policy analysis, warning and foresight
• Increase capacity to anticipate and manage a whole-of-government response to geopolitical and security crises

Action area 2: Enhance Canada’s capacity to exert influence by increasing its presence abroad, including at multilateral tables

• Strengthen presence in the international bodies that matter most to Canada, starting with the United Nations
• Strengthen presence in key G20 and other strategically important countries
• Develop and implement a mechanism to regularly review and rebalance presence abroad
• Pursue innovative means of promoting Canadian interests abroad (virtual offices, ambassadors at large, additional honorary consuls)
• Strengthen communication and advocacy more effectively to reach both Canadians and foreign stakeholders and audiences
• Maximize the use of “soft power” and public diplomacy abroad, including through support for science, sport, academic and cultural diplomacy

Action area 3: Ensure Global Affairs Canada’s workforce is highly skilled, bilingual, diverse, healthy and capable of delivering world-class results for Canadians

• Improve recruitment, training and career development, including through strengthened role of the human resources branch; enhanced career planning and talent management; dedicated and aligned training resources; reform of post-secondary recruitment and interchange/lateral entry processes
• Increase the number of foreign service employees in the pools to create more flexibility for hiring
• Strengthen official language training and promote the use of French
• Promote and incentivize foreign language competency for countries of strategic importance to Canada
• Ensure the Foreign Service Directives more closely align with modern Canadian families and the realities of service abroad now and into the future, including in times of crisis
• Further support locally engaged employees, including to attract and retain top talent and support them in times of crisis
• Strengthen and fully leverage the role of heads of mission
• Study the possibility of Global Affairs Canada becoming a separate employer

Action area 4: Ensure Global Affairs Canada has the tools, processes and culture to thrive into the future

• Modernize Global Affairs Canada’s IM/IT and digital services, infrastructure and tools, including modern, cloud-based architectures and networks
• Modernize the tools and process that underpin the $4.3 billion in annual grants and contributions programmed by Global Affairs Canada
• Establish a Data Centre of Expertise to drive data and evidence-based insights across all business lines
• Enhance knowledge management throughout the organization so that Global Affairs Canada can learn more from its own people and experiences
• Develop a culture and practice of resource reallocation to be able to respond to new challenges and opportunities on an ongoing basis
• Simplify bureaucratic processes by conducting an immediate red tape review, incentivizing innovation and smart risk taking, and exploring the potential of new technologies to help staff “work smarter”

6. Implementation

This discussion paper presents key recommendations for how to ensure Global Affairs Canada can serve Canadians more effectively now and into the future. However, understanding what needs to happen is only one part of the challenge. Most plans for institutional transformation fail not because recommendations are wrong; they fail because of inadequate or incomplete implementation.

The Deputy Minister of Foreign Affairs should be given overall responsibility for ensuring the success of the Future of Diplomacy: Transforming Global Affairs Canada implementation plan, and making progress on implementation should be a key part of his or her annual performance management agreement.

The Senate’s Standing Committee on Foreign Affairs and International Trade’s study on “the Canadian foreign service and elements of the foreign policy machinery within Global Affairs Canada” will issue a report in December 2023. The department will study the report and its recommendations and adjust its plans as necessary.

To launch the implementation phase of this initiative, the Deputy Minister of Foreign Affairs has already appointed a senior executive, Chief Transformation Officer, Antoine Chevrier, to drive the change process over an initial period of 3 years (2023-2026). The Chief Transformation Officer will report directly to the Deputy Minister of Foreign Affairs, with matrixed reporting responsibilities to the Deputy Ministers of International Trade and International Development.

• The Chief Transformation Officer should be empowered to:
  • stand up a multi-disciplinary transformation team in early June 2023 with relevant expertise and deep knowledge of the department across streams to drive the transformation process (e.g. project management, human resources, digital, communications, knowledge management, etc.); and create a full implementation plan, including milestones and performance metrics, all by September 1, 2023.
  • establish a reflection group comprised of a diverse set of employees at all levels from throughout the department to produce, before the end of 2023, a concise statement of corporate values and culture, with the intention that this statement should serve as a kind of enduring “north star” for the entire Global Affairs Canada workforce.
  • ensure that implementation is closely monitored, that course corrections are undertaken as necessary, and that progress is communicated regularly to partners and stakeholders including staff, other government departments, academia and the Canadian public.
  • report progress to the Minister of Foreign Affairs every 6 months, with particular attention to issues of staff health and well-being, and the degree to which Global Affairs Canada is effectively playing its leading role on whole-of-government international engagement effectively.

Successfully implementing the recommendations in this report will require new resources and a reallocation of existing financial resources. As noted above, the department has already begun a significant reallocation exercise and is building ways to be able to do this on an ongoing basis as circumstances change. Overall, incentives must be found at all levels throughout the department to reward cost-consciousness around the broader concept of strategic alignment.

Footnote 1

Canadians served in London and Paris from the late 19th century onward, where they functioned as Canada’s representatives but did not enjoy diplomatic status. The Imperial Conference of 1926, which acknowledged the equality of the Dominions with the United Kingdom, paved the way for full diplomatic status for Canada’s representatives abroad.

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Footnote 2

Canada has consulates and consulates general in large commercial and other non-capital cities around the world. These support Canadian companies and provide passport and other services to Canadian travelers and residents. Many Canadian consulates and consulates general host staff from a range of federal government departments.

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Footnote 3

McDougall, Pamela A. Royal Commission on Conditions of Foreign Service. Ottawa, Ontario: Privy Council Office, 1981.
https://publications.gc.ca/collections/collection_2014/bcp-pco/Z1-1980-2-eng.pdf.

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Footnote 4

State of Trade 2022: The Benefits of Free Trade Agreements, Global Affairs Canada, https://www.international.gc.ca/transparency-transparence/state-trade-commerce-international/2022.aspx?lang=eng.

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Footnote 5

Chris Bradley, Marc Canal, Sven Smit, and Jonathan Woetzel, December 2022 “The Correlation Between GDP and Life Expectancy, Chapter 2: A Miracle of Widespread Progress: a 20-year journey of health and income” McKinsey Global Institute, https://www.mckinsey.com/mgi/our-research/pixels-of-progress-chapter-2.

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Footnote 6

“What does the G7 do?” (2022) Council on Foreign Relations.
https://www.cfr.org/backgrounder/what-does-g7-do.

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Footnote 7

“Shift of global economic power to emerging economies set to continue in long run, with India, Indonesia and Vietnam among star performers.” PwC.
https://www.pwc.com/id/en/not-migrated/shift-of-global-economic-power-to-emerging-economies-set-to-cont.html.

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Footnote 8

Julia Palik, Anna Marie Obermeier, Siri Aas Rustad, “Conflict Trends: A Global Overview, 1946-2021” Peace Research Institute Oslo, PRIO Paper 2022, Conflict Trends: A Global Overview, 1946–2021 - World | ReliefWeb.

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Footnote 9

World Meteorological Organization “WMO Atlas of Mortality and Economic Losses from Weather, Climate and Water Extremes (1970-2019)”, WMO-No.1267, 2021ml.

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Footnote 10

Statistics Canada “Indigenous population continues to grow and is much younger than the non-Indigenous population, although the pace of growth has slowed”, September 2022, https://www150.statcan.gc.ca/n1/daily-quotidien/220921/dq220921a-eng.htm.

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Footnote 11

Statistics Canada. Table 98-10-0219-01 Mother tongue by age: Canada, provinces and territories, census metropolitan areas and census agglomerations with parts.
DOI: https://doi.org/10.25318/9810021901-eng

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Footnote 12

"Government of Canada, IRCC Monthly Updates, "Canada: Permanent Residents by Country of Citizenship" 2022, https://open.canada.ca/data/en/dataset/f7e5498e-0ad8-4417-85c9-9b8aff9b9eda

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Footnote 13

Canada-based staff (CBS) is a designation primarily used at Canadian missions abroad to distinguish between diplomatically accredited Canadian public service employees and staff hired locally, usually from the host country

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Footnote 14

Canada uses the term head of mission or “HOM” to describe ambassadors, high commissioners (HOMs in Commonwealth countries) and consuls general

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Footnote 15

Earlier efforts include a Transformation Agenda, launched in 2007, designed as a department-wide exercise to ensure that policies, programs and operations were aligned with Government of Canada priorities. Among other reforms, the Transformation Agenda resulted in the creation of the International Platform Branch as a single window for common service delivery for all government departments operating within the diplomatic and consular framework. In addition, a strategic review launched by the Trade Commissioner Service in 2017 led to an increase in positions in key overseas markets and in Canada.

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Footnote 16

Global Affairs Canada provides the international platform for 21 government departments and agencies working abroad in its missions, 3 Crown corporations and 6 provincial governments. For example, at Canada’s embassy in Washington D.C., there are 15 co-locators, including: Agriculture and Agri-Food Canada; Alberta; Canada Border Services Agency; Department of Finance Canada; Immigration, Refugees and Citizenship Canada; Innovation, Science and Economic Development Canada; Ontario; Public Safety Canada; Public Services and Procurement Canada; RCMP; and Transport Canada, for a total of 99 CBS and 36 LES. In some of Canada’s missions, such as in New Delhi, there are more CBS belonging to IRCC (34) than those belonging to Global Affairs Canada (30). In a small number of places, Canada’s missions also support the co-location of other countries’ missions, such as the United Kingdom in Port-au-Prince, Haiti and Australia in Kyiv, Ukraine.

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Footnote 17

International summitry is a much greater feature of modern diplomacy than in past years. The 2023 Japanese G7 presidency will see 14 different Canadian ministers, plus the Prime Minister’s visit to Japan in 2023; the current Indian G20 presidency will see 15 different Canadian ministers, plus the Prime Minister, visit India in 2023.

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Footnote 18

An individual country can have only 1 embassy or high commission but multiple consulates general and consulates. In the United States, Canada is represented via the embassy in Washington and 16 consulates general or trade offices around the country. In China, Canada has an embassy in Beijing and 4 consulates general. In India, Canada has the high commission in New Delhi, plus 7 consulates general or trade offices. In Mexico, Canada has an embassy in Mexico City and 8 consulates general and other consular agencies, owing to the large number of Canadian tourists and residents in that country.

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Footnote 19

The number of missions abroad has hovered around 175 for the past 20 years. The high point was 180 in 2012. It will reach 182 by the end of 2023.

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Footnote 20

This number includes Canada-based staff from Global Affairs Canada, other government departments and agencies, and provinces.

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Footnote 21

The members of the G20 are Argentina, Australia, Brazil, Canada, China, France, Germany, India, Indonesia, Italy, Japan, Republic of Korea, Mexico, Russia, Saudi Arabia, South Africa, Türkiye, the United Kingdom, the United States and the European Union.

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Footnote 22

The Honorary Consul Program allows the Government of Canada to provide representation and services to Canadians in locations where no Canadian diplomatic mission or consular office exists. Though they are official representatives of the Government of Canada, they are not government employees. They are private individuals who provide consular and other services on behalf of the government, generally on a part-time basis.

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Footnote 23

Based on responses of Canada-based staff only; does not include locally engaged staff responses.

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Footnote 24

Rotationality is a condition of employment, meaning staff commit to being posted abroad regularly, including to hardship missions and elsewhere according to the needs of the department.

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Footnote 25

CIDA did not have a rotational workforce. CIDA staff served overseas on a single assignment, on a voluntary basis.

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Footnote 25

This commitment has been made by Deputy Ministers to all staff in a recent communication.

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Footnote 27

Treasury Board of Canada serves as employer for the core public administration, of which Global Affairs Canada forms a part. “Separate employer” is a term that generally refers to agencies that are their own employer under Schedule V of the Financial Administration Act. They generally have their own appointment (staffing) authority conferred by their respective enabling legislation and develop their own human resources regimes. They do not share employment classification systems with the rest of the core public administration, they conduct their own negotiations with unionized employees, and they determine the compensation levels for non-unionized employees, within a mandate approved by the President of the Treasury Board, and subject to final approval by the Treasury Board.

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Footnote 28

In the United States the functions performed by Global Affairs Canada are spread over the State Department, the Office of the United States Trade Representative, some aspects of the Department of Commerce, and the United States Agency for International Development.

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