2023–24 Public Service Commission annual report
The Public Service Commission annual report for 2023–24 describes agency activities and performance analysis for the year.
Land acknowledgement
The Public Service Commission acknowledges that Ontario is located on the traditional territory of Indigenous peoples dating back countless generations. We respect the contributions of Indigenous peoples and recognize the role of treaty-making in what is now Ontario. We encourage the settlers reading this report to reflect on and acknowledge the Indigenous territory and unique history where you are located.
Carlene Alexander
Chair, Public Service Commission
Message from the Chair of the Public Service Commission
I am honoured to have been appointed to serve as Chair of the Public Service Commission (PSC) beginning in March 2024. I would like to express my tremendous thanks to my colleague, Deborah Richardson, for her leadership as the Chair of the PSC for the last 3 years.
As the new Chair, I am committed to maintaining the Commission’s excellence in setting goals, objectives, and strategic direction for managing human resources for the Ontario Public Service (OPS).
This year we welcomed four new commissioners to the PSC, bringing a refreshed perspective and varied experiences to the team that will benefit the work we do. We also say a big thank you to those who have served as commissioners and diligently shared their thoughtful insights and expertise to the work of the PSC.
As senior leaders we continue our work to create an inclusive, diverse equitable, anti-racist and accessible workplace that is free from discrimination and harassment. There is still more to do and I am excited to contribute to and lead important initiatives, like Our OPS, the integrating plan for OPS, and the OPS People Plan, the OPS’s human resources strategy.
PSC is overseeing and monitoring progress in achieving OPS People Plan initiatives related to the priorities to modernize work, grow and develop talent and cultivate a culture of belonging to optimize public service. We are also prioritizing a strategic direction that builds the workforce of the future and creates conditions for a flexible, innovative and skilled workforce with capacity to maintain steady focus on service excellence.
Beginning April 1, 2024 Ontario assumed the role of host jurisdiction for the Federal, Provincial, Territorial (FPT) Public Service Commissioners (PSC) Secretariat for a 2-year term. The FPT-PSC Secretariat supports the FPT Public Service Commissioners and the five interjurisdictional working groups by providing infrastructure, operational supports, and guidance with a goal of promoting transparency, improving response to urgent and emerging issues, and applying collective learnings to decision making.
The 2023–24 Public Service Commission Annual Report presents our accomplishments that advance public service excellence for Ontarians. The launch of the OPS-wide Code of Conduct articulates the standards of behaviour needed to build and maintain an inclusive, equitable, and respectful workplace. In addition, recent programs and resources were developed to grow and develop our executives and equip them with the knowledge, skills, and competencies to lead and deliver organizational priorities. We also continue to see improvements in representation of executives that identify as racialized or with a disability.
Through the Commissioners cross appointed role as Executive Development Committee (EDC) members, we are focused on strengthening our OPS leadership community and preparing OPS leaders to take on new challenges. The effectiveness of PSC in delivering on HR strategy, like the People Plan, is dependent on strong, capable leadership across the organization. Whether it is via our monthly Leadership Forums or through leadership development like the Building Leadership and Outstanding OPS Manager (BLOOM) program and Executive Development for Growth and Excellence (EDGE) plan, PSC / EDC is taking action on creating strong foundations for leadership in the OPS.
It is a privilege to serve as Chair and I look forward to leading PSC over the coming year.
Carlene Alexander
Chair, Public Service Commission
Purpose of the report
The purpose of this report is to detail the progress made over the last year against priorities, measures and targets outlined in the 2023-24 to 2025–26 Public Service Commission Business Plan.
Agency mandate and description
Mandate
The mandate of the Public Service Commission (PSC), under Part III of the Public Service of Ontario Act, 2006 (PSOA), is to ensure:
- Effective management and administration of human resources in relation to public servants that the PSC or its delegates appoint to employment by the Crown.
- Non-partisan recruitment and employment of public servants that the PSC, or its delegates, appoint to employment by the Crown.
Description
The PSOA established the PSC. The PSC is assigned authority under PSOA to establish terms and conditions of employment for employees in ministries and Commission public bodies. Authority covers appointments to the public service, discipline, investigations, dismissals, post-service conflict of interest and conflict of interest financial declarations.
The PSC issues directives and policies to establish principles and requirements to fulfil statutory obligations, and to set expectations for effective management of public servants. To optimize efficiency and reinforce management accountability, the PSC delegates most decision-making authority relating to human resource management to deputy ministers for employees in ministries and to prescribed delegates for employees in Commission public bodies. In addition, Management Board of Cabinet (MBC) sub-delegates to PSC its power to make directives and rules relating to salaries within the classification series and wage ranges created by MBC and other terms and conditions of employment. Limits on sub-delegation are set where appropriate and the PSC retains the right to make (or overrule) decisions should it so choose.
As defined by the Agencies and Appointments Directive, the PSC is a non-board-governed regulatory agency. A memorandum of understanding (MOU) between the President of the Treasury Board [Minister, Treasury Board Secretariat (TBS)] and the PSC Chair outlines the government’s expectations of the PSC. The PSC is accountable to the Minister of TBS through the MOU. The current PSC membership list is included as an appendix.
Executive Development Committee
PSC members also serve as members of the Executive Development Committee (EDC). The primary purpose of EDC is to build and sustain an organizational culture that attracts, develops, and retains executives who uphold the values of the OPS, as well as meet government objectives, and deliver quality service to the people of Ontario.
The responsibilities of EDC relate to:
- Executive recruitment
- Strategic talent management
- Enterprise learning and development for leaders
- Organizational design and effectiveness
Financial statement and total annual remuneration
PSC does not require a budget or staff, and commissioners are not remunerated to serve on the PSC. The Centre for People, Culture and Talent in TBS provides secretariat services with one staff resource (equal to half a full-time equivalent). Funding for PSC’s administrative operations is provided by TBS.
Performance measures and annual targets
PSC’s performance in 2023–24 is assessed against targets set in the 2023-24 to 2025–26 Public Service Commission Business Plan for the following activities:
- HR strategy
- Policy development
- Public service talent and leadership
- Conflict of interest
- Administration and reporting
We are leading HR strategy
A core element of the Our OPS plan, the OPS People Plan (2023-2026) was released in 2023 and is the human resources strategy for the OPS. The PSC is overseeing and monitoring progress in achieving the OPS People Plan’s goals to attract, develop and retain top talent that reflects Ontario’s diversity, with a focus on the strategic priorities to modernize the workplace, grow and develop talent, and cultivate a culture of belonging.
The PSC also approves human resource management directives, policies and programs to shape a non-partisan, professional, ethical, competent, healthy and safe, diverse, accessible, anti-racist, inclusive and respectful public service, and mitigate workforce risks. PSC oversees policy change recommendations that may result from the OPS Leadership Pledge commitments associated with the third-party review of OPS inclusive workplace policies and programs.
Related policy review and development forms part of the policy review cycle and is informed by engagement with anti-racism, accessibility and inclusion partners and stakeholders.
In 2023, an OPS-wide Code of Conduct was launched as part of the OPS Leadership Pledge implementation, setting clear expectations for respectful behaviour at work. It articulates the standards of behaviour needed to build and maintain an inclusive, equitable and respectful workplace that is free from racism, discrimination and harassment, and where the dignity, human rights, health and safety of individuals in OPS workplaces are protected and employees feel welcome.
As EDC, also played a key role in developing and delivering on the Executive Development for Growth and Excellence (EDGE) plan for the OPS. EDGE is a multi-year executive development plan to equip our executives with the knowledge, skills and competencies to lead and deliver organizational priorities. Under the leadership of EDC, it was launched under the Learning and Development Action Plan in 2023–24. EDGE includes key components aimed at build executive leadership capacity including:
- Onboarding
- Learning
- Professional coaching
- Assessments
We oversee policy review and renewal
The 2023–2024 non-compensation HR policy review agenda maintains PSC’s commitment to regularly review HR policy direction. Through systematic reviews and evaluation of policy, the PSC has assurance that critical direction is set for ministries and Commission public bodies that is current, relevant and reflective of best practices.
The updated policy agenda, contained in the 2023-24 to 2025–26 Public Service Commission Business Plan, captures changes in practice, emerging opportunities, and creates conditions to enable shifting government priorities.
| Priority area | Policy initiative |
|---|---|
| Mandated policy review required under Occupational Health and Safety Act | Respectful Workplace Policy |
| Mandated policy review required under Occupational Health and Safety Act | Workplace Violence Prevention Policy |
| Mandated policy review required under Occupational Health and Safety Act | Occupational Health and Safety Policy |
| Public Service Excellence – Fostering an inclusive, responsible, and skilled workforce. | OPS Leadership Pledge – Implementation |
| Public Service Excellence – Fostering an inclusive, responsible, and skilled workforce. | Policy on Preventing Barriers in Employment |
| Public Service Excellence – Fostering an inclusive, responsible, and skilled workforce. | Employment Policy |
| Public Service Excellence – Fostering an inclusive, responsible, and skilled workforce. | Ethical Framework Program |
| Government priorities | Hiring Freeze Guidance and Reporting |
| Workforce of the Future | OPS Flexible Work Strategy/Remote Work |
| Workforce of the Future | OPS People Plan |
In 2023–2024, 100% of non-compensation HR policies were reviewed where legislation requires an annual review. In addition to the above policy initiatives, a review of the Employee Performance Policy was also completed during 2023–2024.
Priority for the policy review agenda is driven by strategic priorities and commitments (such as OPS Leadership Pledge), legislative requirements (for example, annual reviews of health and safety policies), length of time since last review, accuracy (for example, organizational changes, designations, responsibilities), and operational and program feedback. Priorities are confirmed on an annual basis and may be updated as required to reflect new government priorities or emerging opportunities.
We are enabling OPS talent and leadership
PSC provides critical oversight of executive talent through approval of appointments to Executive 3 or Executive 4 classes of positions (assistant or associate deputy minister and equivalent). PSC deploys executive capacity to respond to priority work.
Diversifying senior leadership remains a top priority for the PSC, with the goal of reaching parity with the socio-demographic makeup of the Ontario labour force by 2025. The OPS strategy is focused on creating access to coaching and mentoring, leadership development programs, succession plans, and recruitment and selection processes for underrepresented groups.
As EDC, the committee is taking concrete action to build leadership capacity across the OPS:
- The OPS strategically invested in external executive education programs for 21 of our most senior executives (assistant deputy ministers, deputy ministers) through executive programs at Ivey, Queen’s, and Rotman.
- Two in-person Senior Leadership Sessions were delivered to over 400 senior executives (assistant deputy ministers, associate deputy ministers, and deputy ministers) with 100% stating they were able to apply accountable leadership to their workplace.
- The OPS continued to hold monthly Leadership Forums for all people leaders, providing a key platform to exploring key topics and organizational priorities.
- To socialize new executive hires into their new role and achieve strong performance quickly, onboarding is critical. One of the early onboarding initiatives, DM Executive Advisors’ Support and Transition (EAST) onboarding was launched.
- The OPS launched the Building Leadership and Outstanding OPS Manager (BLOOM) program in March 2023 to provide managers with less than two years of experience with the foundational tools they need to lead effectively. Over 1,000 new managers have participated in New Manager 1: Building Manager Essentials; 83% of participants rated the learning experience as having highly met or exceeded their expectations.
- As part of EDGE implementation in 2023–24, internal executive coaching clients increased by 23% from the previous year, with 61% identified as belonging to an underrepresented group. To increase access to professional coaching, external executive coaching services were established mid-fiscal year with 63 executives accessing these services.
- To contribute towards senior leadership diversification and career development, four “Level Up” interview clinics were delivered to director-level successors from underrepresented groups to support them in the executive recruitment process. Ninety-three per cent of participants rated their motivation to apply their learning as “high”. “Steer Your Career” was launched to 30 participants as an additional career development program for current and aspiring executives with 100% rating their motivation to apply their learning as “high”.
- To build leader-as-coach skills, 52 executive leaders in three cohorts attended the Executive Coaching Program to facilitate problem-solving and developing their teams on how to adapt to constantly changing environments.
- “EDGE On-Demand” just-in-time learning resources were developed for 10 priority executive development topics. Over 450 downloads and 480 pageviews of our digital learning libraries have been accessed.
We are delivering results
Important data shows that the work of PSC and EDC is making a difference. The OPS Employee Experience Survey creates opportunity for employees to share valuable insights on how the OPS is achieving the goal of being an inclusive and anti-racist organization with an engaged workforce. The 2024 enterprise-level scores show meaningful improvement in the leadership index compared to 2022. While scores are slightly lower for engagement and inclusion, both are still performing at a high level.
| Index | 2021 | 2022 | 2024 |
|---|---|---|---|
| Engagement | 70.90 | 69.20 | 68.10 |
| Inclusion | 76.10 | 75.96 | 73.40 |
| Leadership | 62.90 | 61.40 | 62.90 |
The snapshot of 2024 Executive 3 and Executive 4 appointments suggests that appointments are beginning to reflect the Ontario labour force. Additional effort is required to increase the proportion of appointments for members of underrepresented groups, especially persons with a disability. Driven by EDC, the OPS is advancing leadership capacity through modern succession management practices such as centralizing senior executive succession planning and proactively developing a diverse talent pool for key leadership roles.
| Socio-demographic category | 2016–2017 Ontario labour force | 2024 OPS Overall | 2024 Executive 3-4 and above overall | 2022–23 Executive 3-4 appointments | 2023–24 Executive 3-4 appointments |
|---|---|---|---|---|---|
| Women | 48.30% | 59.10% | 54.60% | 61.86% | 65.71% |
| Francophone | 4.00% | 6.50% | 4.30% | 3.09% | 2.86% |
| 2SLGBTQIA+ | Not applicable | 7.20% | 7.90% | 14.43% | 11.43% |
| Persons with Disabilities | 16.70% | 14.40% | 11.80% | 12.37% | 20.00% |
| Indigenous | 2.50% | 2.90% | 3.10% | 1.03% | 2.86% |
| Racialized | 28.30% | 28.50% | 26.90% | 32.99% | 28.57% |
We are leading key ethics processes
PSC is the ethics executive for former public servants who worked in a ministry other than in a minister’s office. PSC will make a determination when a former employee declares a potential conflict of interest (COI) between their prior OPS employment and a new activity, consistent with the COI rules for post-service employees in the PSOA and its regulations. PSC will issue direction to the former employee.
PSC received 54 post-service COI determination requests in 2023–24. PSC’s service standard for providing a determination is within 60 days of an employee or former employee submitting a post-service COI determination request. PSC strives to respond within this timeline 85% of the time.
- PSC provided determinations within 60 days in 42 of 54 (78%) cases. This is a demonstrated continuous improvement over 2022–2023 where the standard was met 71% of the time; an, prior to the 2021–2022 process improvement initiative where the standard was being met 49% of the time. While there is marked improvement, in the coming year continued effort will be required to achieve a response rate of 85%.
- Where PSC took more than 60 days to provide a determination in 12 of 54 (22%) cases, this was generally as a result of ministry or legal reviews taking longer than anticipated including situations where additional information was required of the declarant or program area, or legal consultation.
There were no cases where PSC had to act due to non-compliance with direction.
The PSC has an obligation under Ontario Regulation 381/07: Conflict of Interest Rules for Public Servants (Ministry) and Former Public Servants (Ministry) to maintain a list of ministry employees in positions who routinely work on one or more matters that might involve the private sector and have access to confidential information about those matters. Individuals identified through this process are required to submit either a financial declaration to the Integrity Commissioner or a previous declarant attestation to CPCT (if they had previously submitted a financial declaration that remains current).
During the last declaration cycle (2022–2023), requests for declarations or attestations were sent to 224 employees on the list maintained by PSC. One hundred per cent of employees in active identified positions completed a declaration or attestation. A new financial declaration cycle is underway.
Administration and reporting
The 2022–23 Public Service Commission Annual Report and the 2024–25 to 2026–27 Public Service Commission Business Plan are posted in accordance with the requirements under the Agencies and Appointments Directive. The PSC Chair submitted all necessary accountability documents to the President of the Treasury Board who is the minister responsible for PSC.
Risk assessment and mitigation
Acting within the authority granted to it under PSOA, as well as those delegated to it by MBC, PSC makes decisions with respect to several potentially high-risk matters related to:
- Policy direction for management of OPS employees
- Appointments of senior executives in Executive 3 and Executive 4 classes of positions
- Dismissals of employees in Executive (levels 2 to 4) classes of positions (or equivalent)
- Determinations of post-service conflict of interest for former ministry employees
In the 2023-24 to 2025–26 Public Service Commission Business Plan, PSC assessed the risks to its strategic priorities, along with risk indicators and mitigation strategies to manage the risks and execute their mandate:
- Approving policy direction that creates conditions for building and sustaining a skilled, diverse and engaged workforce and shapes a non-partisan, professional, ethical, competent, healthy and safe, diverse, accessible, anti-racist, inclusive and respectful public service and mitigate workforce risks.
- Reviewing and updating policy direction so it remains current and relevant, and addresses evolving organizational priorities, recommendations and response for HR management.
- Oversee and monitor progress in achieving key initiatives related to the strategic priorities and goals set out in the OPS People Plan to modernize work, grow and develop talent and cultivate a culture of belonging.
- Promote OPS ethics and values.
- Seeking advice from TBS Legal Services Branch on matters for which there are significant legal risks.
- Composing PSC membership with the Secretary of the Cabinet and Deputy Minister, TBS as permanent commissioners and a cadre of rotating deputy ministers, which provides PSC with the benefit of broad OPS workplace perspectives when considering strategic human resource proposals, and helps PSC be cognizant of public policy impact of decisions that it renders.
Application of risk management and deployment of defined mitigation strategies are instrumental for informing and preparing PSC to make timely and effective decisions. Specifically, ensuring that strategic planning is evidence-based, people and future-focused and enabling of government and organizational priorities is an accomplishment of which the PSC is proud.
Looking forward
The PSC is pleased with the progress made in achieving results for the 2023-24 to 2025-26 Public Service Commission Business Plan. HR divisions have been on a journey of transformation to future-proof public service delivery through talent management, leadership development, productive relationships with collective bargaining partners, and employee experience. The 2023–24 annual report will be tabled in the Legislative Assembly in accordance with Treasury Board/Management Board of Cabinet timelines.
Looking ahead, the 2024-25 to 2026–27 Public Service Commission Business Plan sets commitments for the OPS future direction to attract, develop and retain skilled and diverse talent to meet the needs and expectations of Ontarians in the years to come. As EDC, PSC will drive a strong focus on succession and learning and development for leaders.
Appendix: Public Service Commissioners and Secretariat
Public Service Commissioners (as of March 31, 2024)
Chair, Public Service Commission
Carlene Alexander
Secretary of Treasury Board and Management Board of Cabinet
Deputy Minister, Treasury Board Secretariat
99 Wellesley Street West, 5th Floor
Toronto, ON M7A 1W3
Vice Chair, Public Service Commission
Nosa Ero-Brown
Vice-Chair, Public Service Commission
Chief Talent Officer
Centre for People, Culture and Talent
Treasury Board Secretariat
2nd Floor, Whitney Block
99 Wellesley Street West
Toronto, ON M7A 1W4
Commissioners, Public Service Commission
David Corbett
Deputy Attorney General
Ministry of the Attorney General
11th Floor, 720 Bay Street
Toronto, ON M7A 2S9
Michelle DiEmanuele
Secretary of the Cabinet and Head of the Ontario Public Service
Room 5420, Whitney Block
99 Wellesley Street West
Toronto, ON M7A 1A1
Karen Ellis
Deputy Solicitor General, Correctional Services
Ministry of the Solicitor General
25 Grosvenor Street
Toronto, ON M7A 1Y6
Jason Fitzsimmons
Deputy Minister
Ministry of Energy
10th Floor, 77 Grenville Street
Toronto, ON M5S 1B3
Martha Greenberg
Deputy Minister
Ministry of Municipal Affairs and Housing
17th Floor, 777 Bay Street
Toronto, ON M7A 2J3
John Kelly
Deputy Minister
Ministry of Agriculture, Food, and Rural Affairs
11th Floor, 77 Grenville Street
Toronto, ON M7A 1B3
Renu Kulendran
Deputy Minister
Ministry of Public and Business Service Delivery
5th Floor, 777 Bay Street
Toronto, ON M7A 2J3
Greg Meredith
Deputy Minister
Ministry of Labour, Immigration, Training and Skills Development
400 University Avenue, 14th Floor
Toronto, ON M7A 1T7
Roda Muse
Deputy Minister
Ministry of Francophone Affairs
6th Floor, Suite 601C, 777 Bay Street
Toronto, ON M7A 2J4
Deborah Richardson
Deputy Minister
Ministry of Health
5th Floor, 777 Bay Street
Toronto, ON M7A 2J3
Secretariat, Public Service Commission
Kirstin Rydahl
Secretary to the Public Service Commission
Assistant Deputy Minister, Talent and Leadership Division
Centre for People, Culture and Talent
Treasury Board Secretariat
12th Floor, 595 Bay Street
Toronto, ON M5G 2M6
Footnotes
- footnote[1] Back to paragraph The Leadership Index and Inclusion Index were updated in 2024. The new versions of these indices are composed of questions that existed in 2022 and 2021 allowing for backward comparability. Data listed above uses the 2024 approach for all three years.
- footnote[2] Back to paragraph Ontario labour force data is from Statistics Canada. 2016 Canadian Census data was used except for persons with disabilities data which is from the Canadian Survey on Disability, 2017. There is no Ontario labour force data from the 2016 Canadian Census that is inclusive of all sexual orientations under the 2SLGBTQIA+ umbrella. As such, 2SLGBTQIA+ is marked as “n/a” under the Ontario Labour Force 2016/17. Representation of 2SLGBTQIA+ employees in OPS Overall from the 2022 OPS Employee Experience Survey is used as the benchmark. 2SLGBTQIA+ is the aggregate of persons who responded to the “What is your sexual orientation?” in the Employee Experience Survey either alone or in combination: Asexual; Bisexual or Pansexual; Gay; Lesbian; Queer; Questioning; Two-Spirit.