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Foreign Affairs, Trade and Development Canada

Inspection of the Canadian Embassy Addis Ababa

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October 22 - 29, 2009

Table of Contents

Inspection Scope and Objectives

The scope of the Inspection included a review of Mission Management and the Political Economic Relations and Public Affairs, International Business Development, Consular and Administration programs. The inspection objectives were to:

  • Assess management controls and systems, procedures and activities that make up the programs;
  • Determine the extent of compliance with legislation, regulations and operating policies;
  • Assess the reliability and adequacy of information available for decision-making and accountability purposes;
  • Ensure resources are judiciously used and that the Department is receiving value-for-money; and,
  • Make recommendations, where warranted, to improve the economy, efficiency and effectiveness of programs.

The focus and extent of on-site work was based on an assessment of materiality and related risk. This was done through communication with Headquarters (HQ) bureaux, including briefings by line management and the functional bureaux, review of relevant HQ and Mission documentation, past audit findings, and an analysis of recurring trends and systemic issues.

During the Inspection, inspection issues and lines of enquiry were further refined from information gathered through interviews with the Head of Mission and program managers, a meeting with the Locally-engaged staff Committee, individual interviews with staff, and results of other documentation reviewed. The level of inspection work was therefore based on issues and information identified and gathered at all levels, HQ, Mission management and Mission operations.

Executive Summary

An inspection of Mission Management, the Political Economic Relations and Public Affairs (PERPA), International Business Development (IBD), Consular and Administration Programs was conducted in Addis Ababa from October 22 to 29, 2009. The Embassy is a medium-sized mission with 13 Canada-based staff (CBS) and 33 Locally-engaged staff (LES). In addition to all Foreign Affairs and International Trade Canada (DFAIT) programs, the Canadian International Development Agency (CIDA) has a strong representation, and Citizenship and Immigration Canada (CIC) is represented with one LES.

The Mission is accredited to Ethiopia and to the Republic of Djibouti. It supervises the work of an Honorary Consul in Djibouti. Moreover, it manages Canadian relations with and contribution to the African Union (AU), an organization, headquartered in Addis Ababa, which plays an increasing role in African peace and stability.

Overall, Mission objectives and priorities, as outlined in the Country Strategy, reflect Government of Canada (GoC) and Departmental priorities. The key priorities are the promotion of Canadian influence to support peace, stability and development in Ethiopia and in the region and the management of CIDA’s program in Ethiopia, the second largest country of concentration for CIDA in Africa.

The Mission has suffered from the absence of a permanent Ambassador between the summer of 2008 and September 2009. ***an *** Ambassador arrived in September 2009 ***.

The PERPA Program is well managed. It has been actively reporting on political developments in Ethiopia and in the AU, and has maintained a Canadian presence in that organization. Having been provided with important additional resources in 2009, the Program now has to put greater emphasis on developing high-level contacts in the Ethiopian government and society, and in the AU.

The small IBD Program is committed to promoting Canadian business interests in the *** Ethiopian environment, but needs to be better integrated in the Mission and should develop a network within the Canadian government.

The Consular Program is responsible for the provision of consular and passport services in Ethiopia and Djibouti, and passport services in Sudan. It also provides consular services to Australian citizens in Ethiopia. It is supported by an Honorary Consul in Djibouti. The Program meets service standards for Consular and passport services. However, there are weaknesses when it comes to planning, reporting and internal controls.

The Administration Program has experienced similar deficiencies in planning, reporting and internal controls. *** in all his areas of responsibilities. On the property side for example, considerable time and energy will have to be spent to correct numerous problems identified by the Inspection Team in the Official Residence (OR) and other Staff Quarters (SQ).

A total of 102 recommendations are raised in the report; 99 are addressed to the Mission and three are addressed to Headquarters (HQ). Management has responded to each recommendation, indicating action already taken or decisions made, as well as future action. Of the 102 recommendations, management has stated that 42 have been implemented. For the remaining 60 recommendations, management has indicated the initiatives in progress or the intended future action.

Mission Management

1.1 Overview

1.1.1 The Embassy in Addis Ababa is a medium size mission with a strong Canadian International Development Agency (CIDA) component. It is staffed with six Foreign Affairs and International Trade Canada (DFAIT) Canada-based staff (CBS) and seven CIDA CBS officers. There are also 33 locally-engaged staff (LES) positions, four of which were vacant at the time of the Inspection. The Mission is accredited to the Republic of Djibouti where an Honorary Consul provides Consular services.

1.1.2 Ethiopia, Africa's second most populous country, holds a strategic location in Africa and is key to the stability, security and development of the region. Addis Ababa is the headquarters of the African Union, which plays an increasing role in African peace and security efforts. Ethiopia is CIDA's second largest country of concentration in Africa. The key responsibilities of the Mission are the promotion of Canadian interests and influence in Ethiopia, the African Union and the management of the CIDA Program.

1.1.3 The Mission suffered from the absence of a permanent Ambassador between the summer of 2008 and September 2009. During that period, the Mission was led by a succession of Chargés d'affaires either appointed among the Mission's Program Managers (PM) or posted on temporary duty. Adding to this challenging situation, all three of the Mission’s PMs arrived in the summer of 2008 ***. In coming years, the Assignments and Executive Management Bureau (HFD) and the Africa Bureau (GFD) may have to pay closer attention to the turnover of Heads of Mission (HOM) and PMs in Addis Ababa to ensure continuity in the management of the Mission.

1.1.4 ***. Notwithstanding this shortcoming, the Mission has continued to deliver the Political Economic Relations and Public Affairs (PERPA), International Business Development (IBD) and CIDA programs efficiently, and to provide services to Canadians in both official languages.

1.1.5 The absence of consistent leadership has also had a negative impact on Mission operations. There are deficiencies in the physical infrastructures, control mechanisms and work processes. These problems are particularly apparent in the administration of the Mission. Maintenance of the Chancery, the Official Residence (OR) and Staff Quarters (SQ) is inadequate. Staffing of key positions in the Administration Program has not been finalized. Hospitality records were not properly maintained, and hospitality guidelines were not followed consistently. The HOM will have to commit a significant amount of time and effort to help the MCO deal with these issues.

1.1.6 The arrival of a *** HOM in September 2009 should help to improve the situation. The HOM is on her fourth assignment as Ambassador on the African continent. She *** communicates regularly with staff and provides vision and leadership to the Mission. As soon as she arrived, she started reviewing mission priorities, objectives and activities. This would be an appropriate timing to review and update the Country Strategy or develop a similar tool to use as a planning document for the Mission.

1.1.7 Another positive factor for the achievement of the Mission's mandate in coming years, is the strengthening of the PERPA Section which was given additional resources in 2009.

1.1.8 Mission committees are in place, but some were not meeting regularly nor were keeping minutes. The new HOM has already developed operating guidelines and a revised membership list to take into account the different levels of experience of the CBS. The Committee on Mission Management (CMM) meets regularly, and minutes are kept. Questions had been raised at the Mission with regard to the function of the Housing Committee, and these will be addressed by the new HOM through the provision of clear instructions.

1.1.9 There is regular and effective cooperation between programs. The Mission has good communications with and support from the African Bureau (GFD) of DFAIT.

1.1.10 In general, the morale of both LES and CBS at the Mission is fair, and staff demonstrate respect and understanding toward each other. However, some CBS are frustrated with the housing situation, the allocation of SQs and the inadequate quality of service and workmanship provided by the local market. The lack of reliable local transportation services and the limited availability of Mission drivers are also perceived as irritants by CBS.

1.1.11 LES have expressed concern with the level of inflation in the country and the fact that their salaries and health benefits have not kept pace with the cost of living. While the LES are proud to represent Canada, they perceive a significant division between themselves and the CBS. The LES Committee is well organized but, in the past, did not have regular meetings with the MCO and the HOM. It will be important for the HOM and the MCO to meet regularly with the Committee.

1.1.12 The Performance Management Program (PMP) has not been implemented at the Mission and, while the PERPA, IBD and Citizenship and Immigration (CIC) Programs have training plans, there is no Mission-wide training plan that would allow for the identification of common training needs and prioritize resource allocation.

1.1.13 The Chancery will be at threshold next summer after the additions to the CIDA Program. Consideration will have to be given to renovating the Chancery to maximize the available office space.

1.2 Recommendations

Recommendations to the Mission

1.2.1 As a priority, the HOM should help the MCO develop a plan to correct the deficiencies in the administration of the Mission, including property, security, finance and human resources.

1.2.2 The Mission should update the Country Strategy or develop a similar planning document to take into account the evolving priorities and the additional resources of the PERPA program.

1.2.3 The HOM and the MCO should meet regularly with the LES Committee.

1.2.4 The Mission should complete the PMP process and establish a Mission- wide training plan.

Mission Actions and Timeframes

1.2.1 Implemented October 2009. The HOM provides guidance to the MCO on an almost daily basis, monitors commitments as per agreed workplans and priorities (people, security, planning), deals with HQ on HR and support requirements and reports to CMM and Mission staff on progress and accomplishments.

1.2.2 Implemented October-December 2009. Responsibilities were reassigned in line with the Country Strategy updated in 2009. A Reporting Agreement was developed with GFA, and the Mission initiated the elaboration of a strategy specific to the African Union.

1.2.3 Implemented - October 2009. The HOM and MCO meet with the LES Committee and with all staff on a regular basis.

1.2.4 In progress. Program Managers will work on PMPs and ensure that training elements are included. Individual and group training sessions have occurred, and a Mission-wide training plan will be completed when additional resources are available.

Recommendation to HFD

1.2.5 HFD, in consultation with GFD, will make every effort to ensure that arrivals and departures for the HOM and PMs are staggered to the extent possible, in a Mission where postings are for two years.

HFD Action and Timeframe

1.2.5 HFD and GFD should pay close attention to the turnover of the HOM and PMs in Addis Ababa to ensure continuity in the management of the Mission.

Political Economic Relations and Public Affairs(PERPA)

2.1 Overview

2.1.1 The PERPA Program is a component of the Political Economic Relations and Public Affairs, IBD and Immigration Section, managed by the FS-03 Program Manager (PM). For his political mandate, he is supported by two Canada-based political officers (FS-03 and FS-02), an LE-08 political officer and an LE-05 political assistant. He also supervises an LE-09 officer who is responsible for the IBD Program and an LE-05 assistant who is responsible for the Immigration Program.

2.1.2 While three programs co-exist within the Section, the PERPA Program is predominant. As a result, the *** and the*** feel somewhat isolated. While the *** could be better integrated, as will be discussed in the IBD section of this report, there is little synergy with the ***.

2.1.3 The PERPA Program has bilateral and multilateral mandates. On the bilateral front, it manages relations with Ethiopia, monitors domestic and regional developments and coordinates Canadian diplomatic contribution to regional peace and security, good governance, democratic development, human rights and development. Ethiopia holds a strategic location in Africa, bordering on countries which suffer conflict and instability (Sudan, Somalia, Eritrea). In this environment, Ethiopia's stability is critical. Ethiopia, Africa's second most populous country, faces major development challenges. Ethiopia is a CIDA country of focus and benefits from important Canadian assistance ($132 M in 2007-2008).

2.1.4 The Program's multilateral mandate relates to the African Union and the United Nations (UN) Economic Commission for Africa, headquartered in Addis Ababa. The AU plays an increasing role in African peace and security. It leads, jointly with the UN, the peacekeeping mission in Sudan (UNAMID), to which Canada provides a contingent as well as diplomatic, financial and material support. Canada has observer status in the AU and the Canadian Ambassador to Ethiopia is also Canada's Representative to the organization. The PERPA Program coordinates Canada's diplomatic relations with the AU and Canada's participation in various AU activities.

2.1.5 The Program also covers Canada's relations with the neighboring Republic of Djibouti.

2.1.6 The Program's budget allocations for 2009-2010 are as follows (after the budget reductions imposed in the summer of 2009:

Table 1: The PERPA Program in Addis
Program Funds 2009-2010
Hospitality$ 1,200
Post Initiative Fund$ 5,000

2.2 Section Growth

2.2.1 The PERPA Program was provided with additional resources this year with the creation of an LE-08 officer in February 2009 and an FS-03 officer in October 2009. The Program now appears well resourced.

2.2.2 It is too early to assess the impact of these additional resources on the promotion of Canadian interests in Ethiopia and in the region. The HOM and PM are endeavoring to maximize these additional resources by improving political reporting on African issues, increasing Canadian influence on regional peace and security issues and raising the Canadian profile in the AU. The Mission and GFD should monitor closely the contribution of the PERPA Section to Canadian interests in Africa to ensure that the new resources are used effectively.

2.2.3 With the additional resources in the Program, the FS-03 PM now supervises four officers and two assistants, including an FS-03 officer. ***.

2.3 Program Management

2.3.1 While the Program has not benefitted from the vision and leadership normally provided by a HOM, in the past year due to the absence of a permanent Ambassador from August 2008 to September 2009, it is well managed and has continued to perform well.

2.3.2 The PM is *** by all members of the Program. He has an open door policy, is available, supportive and *** respectful of all staff. He delegates and empowers his staff. It will be important, however, that he provide close supervision and mentoring to the officers, ***.

2.3.3 PMPs have not been implemented in the Program. The recent arrival of a new HOM provides the opportunity to correct this situation by establishing objectives for each staff member, derived from the HOM’s Performance Management Agreement (PMA).

2.3.4 One member of the Section needs to address a number of performance issues. The PM should ensure that performance expectations are clearly communicated and that these and performance results are monitored, documented and reviewed with the employee.

2.3.5 Weekly meetings are held and minutes taken. However, the IBD Officer and the Immigration Assistant are not included. They therefore have no formal occasion to discuss issues of common interest (such as corporate and governance issues). There is currently a plan to hold a monthly meeting for the whole Section. The PM should consider including the IBD Officer and the Immigration Assistant in the weekly Section meetings. Given program interests, the Immigration Assistant could attend only the part of the meetings dedicated to corporate issues.

2.3.6 The newly arrived FS-03 Political Officer currently works in an open area adjacent to the multi-purpose room, far from the rest of the PERPA Section. Given the nature of her work, she should be located in the secure area of the Embassy. Unfortunately, the only space now available in that area is in the attic or in the vault, and these locations would be inappropriate. The Mission, in consultation with the Physical Resources Bureau (ARD), should create a plan to reconfigure the secure area and provide an office for this officer.

2.3.7 The PM is supportive of training activities. He has put in place a training plan for each staff member. Given current budgetary restrictions, he will have to rely mainly upon on-line training. He has organized a series of "learning lunches" – open to all staff of the Embassy - where members of the Mission explain aspects of their work, which contributes to both learning and team building within the Mission.

2.4 Planning

2.4.1 The Program's planning is derived from the January 2008 Country Strategy and the October 2009 Reporting Agreement. Plans are updated through the weekly meetings. The Country Strategy appears dated given the changes in the structure of the Program in 2009. As suggested in paragraph 2.3.3, the PMP should also be used as a planning tool.

2.4.2 The Program's objectives and priorities are aligned with the Government and DFAIT's priorities and objectives. The Program respects the approaches of the New Way Forward (NWF), and the PM has requested that officers read material on the NWF. All PERPA officers should also take the on-line NWF training.

2.4.3 One of the first activities of the new FS-03 Political Officer, upon her arrival, was to draft a Canadian strategy for the AU. When finalized, the strategy will be a useful planning tool for the Program.

2.4.4 With the additional resources and the arrival of a new HOM, the PM undertook to clarify the division of responsibilities of staff in the Program. The reallocations, however, appear piecemeal and rigid: while the FS-03 Political Officer is responsible for AU and regional security, the PM retains responsibility for security cooperation and regional security reporting. This could lead to silos and confuse interlocutors. The PM should consider establishing more general and flexible lines of responsibilities. ***.

2.4.5 A Mission calendar of events has recently been instituted. Depending on the level of details in the Mission calendar, the Program could consider creating its own, more detailed, calendar of events. This would also be a useful tool both for planning and for corporate memory.

2.5 Implementation

2.5.1 In the past year, the PERPA Program has focused its efforts on political reporting, monitoring developments in the AU and coordinating Canada's contribution to this organization. It has provided quality reports on democratic developments, human rights and security issues in Ethiopia and on debates in the AU.

2.5.2 However, with the absence of an Ambassador in the previous year, the Program ***. A review of the hospitality diaries reveal that it has been used mainly to develop contacts with visiting Canadian officials and with like minded missions in Ethiopia. The Program should concentrate on developing ***, and should use its limited hospitality funds for that purpose.

2.5.3 The Program had a Post Initiative Fund (PIF) of $10,000 which was reduced to $5,000. The PM plans to use $3,000 to support a conference of the Institute for Security Studies (ISS) which fits well with Canadian priorities. Efforts should be made to ensure Canadian content in activities related to PIF expenditures. While $2,000 will be used to support the Program through travel and hospitality, with the agreement of Headquarters, this plan should be reviewed in light of travel and hospitality needs at the Mission.

2.5.4 In the previous fiscal year, the Mission used $2,000 from the Commonwealth and Francophonie Affairs Division (MIL) for various activities during the “Day of la Francophonie”, a worthwhile initiative in the African context.

2.5.5 Support from, and communications with, Headquarters were noted as effective. The Director General and the Director responsible for the region visited the Mission in recent months. The Desk Officer visited the Mission for one week in September 2009 and established a good working relationship with the Section.

2.6 Recommendations

Recommendations to the Mission

2.6.1 The Mission, in consultation with Headquarters, ***.

2.6.2 PMPs should be implemented for all staff members and used as a base for planning.

2.6.3 In cases of performance concerns, expectations should be clearly communicated, and results monitored and documented.

2.6.4 The PM should consider including ***in the weekly Program meetings.

2.6.5 The Mission, in consultation with ARD, should develop a plan to reconfigure the secure area and provide an office for the FS-03 Political Officer.

2.6.6 The Mission should consider updating the Country Strategy to reflect the changes in the PERPA Program.

2.6.7 All PERPA staff should take the on-line New Way Forward training.

2.6.8 The Section should consider producing a detailed calendar of events as a planning tool.

2.6.9 The PIF budget should review its focus so as to inject Canadian content in public affairs activities.

2.6.10 The PERPA Program should use its limited hospitality funds to develop Canadian access ***.

Mission Actions and Timeframes

2.6.1 Implemented January 2010. ***.

2.6.2 In progress for April 2010. PMPs are in the process of being completed for all staff.

2.6.3 Implemented October 2009. The PM has clearly communicated expectations and is meeting with the employee regularly to monitor results. A file tracking employee’s performance is being kept.

2.6.4 Implemented October 2009. *** meet with the larger section every three weeks.

2.6.5 Implemented January-April 2010. The Mission was able to secure funding from ARAF to complete the reconfiguration and provide an office for FS-03 officer in the secure zone.

2.6.6 Implemented October-November 2009. Changes to the PERPA Program have been reflected in the new reporting agreement. If an updated Country Strategy is requested in 2010, the Program will reflect changes in next version.

2.6.7 In progress for August 2010. All PERPA staff will be encouraged to complete the NWF training. This will be included as on objective on the PMP.

2.6.8 Implemented March 2010. A calendar of events has been produced.

2.6.9 Implemented March 2010. The major PIF project in 2009-2010 was a workshop chaired by the HOM in cooperation with ISS. An event with the Forum of Federations was also hosted.

2.6.10 Implemented November 2009. Officers have placed the priority on using hospitality to further our objectives with ***. 

International Business Development(IBD) 

3.1 Overview

3.1.1 The IBD Program is delivered by an LE-09 Commercial Officer, under the direct supervision of the PERPA, IBD and Immigration Section Program Manager. The Commercial Officer receives support and advice from the regional Senior Trade Commissioner (STC) based in Nairobi.

3.1.2 Canadian trade with Ethiopia is limited. Exports to Ethiopia have ranged from $6M to $27M between 1999 and 2007. In 2008, it surged to $72M but this was mainly due to the shipment of food aid which is accounted for as exports. Our main commercial interests rest with the infrastructure sector (hydroelectricity and roads) where Canadian companies have expressed interest and won contracts. Recently, Bombardier has signed a contract for delivery of airplanes to Ethiopian Airlines. It is expected that this will be accounted for in the 2010 exports statistics.

3.1.3 The Program's budget allocations for 2009-2010 are as follows (after the budget reductions which were imposed in the summer of 2009):

Table 2: The IBD Program in Addis
Program Funds 2009-2010
Hospitality$ 300
Client Service Fund$1,500

3.2 Program management

3.2.1 The *** Commercial Officer is well connected with the business community and government circles in Ethiopia and engages in proactive market investigation. *** . Consideration should be given to his participation in the weekly Section meetings, which would provide him with an occasion to have exchanges on his priorities and activities.

3.2.2 ***. The respective roles of the PM and the STC in Nairobi regarding the supervision of the LES trade officer should be clarified.

3.2.3 While respecting the independent nature of CIDA assistance, synergies could be achieved by establishing stronger communications between the IBD and CIDA Programs. The PMs could consider organizing meetings with the appropriate officers to exchange notes on Ethiopian developments that might be of interest to Canadian business.

3.3 Planning

3.3.1 Planning is derived from the Country Strategy and the IBD Business Plan, which was approved in March 2009. The Commercial Officer also maintains an updated work plan. While these documents reflect a sound analysis of the Ethiopian business environment and of the challenges of the Program, they lack concrete projects and activities. Through increased interaction with the STC and the PERPA Program Manager, a plan for detailed IBD activities should be developed.

3.3.2 ***.

3.4 Implementation

3.4.1 The Commercial Officer is proactive in informing individual Canadian companies of trade leads in Ethiopia, which usually originate from the Ethiopian government or from international organizations such as the World Bank. He should ensure that information on trade leads is also distributed to all interested Canadian companies by informing the International Business Opportunities Centre (IBOC).

3.4.2 The Program has a small Client Service Fund (CSF), which was $5,000 in 2008-2009 but was reduced to $1,500 in 2009-2010. The fund was used in 2008-2009 to organize a conference on education in Canada. However, a significant portion of the funds were spent on a reception, which is an ineligible expense under the CSF. In the future, the Mission needs to respect the guidelines for the use of CSF funds.

3.4.3 ***. According to TRIO, only five services were provided by the Mission in 2008-2009 and eight so far in 2009-2010. The Commercial Officer reported that the TRIO system sometimes rejects the input or indicates that his address is not recognized. The PM should ensure that the Commercial Officer reports his difficulties in managing TRIO to eServices Division (BSS) so that he can input his contribution appropriately.

3.4.4 The Commercial Officer is concerned that TRIO, being a quantitative instrument, does not always reflect some high-quality and time-consuming services in TRIO reports. The Commercial Officer should provide narrative reports to HQ when exceptional services are provided by the Mission.

3.5 Recommendations

Recommendations to the Mission

3.5.1 The PM should consider including the Commercial Officer in the weekly Section meetings.

3.5.2 The respective roles of the PM and of the STC in Nairobi, in the mentoring and supervision of the Commercial Officer, should be clarified.

3.5.3 The PM should consider organizing regular meetings with the CIDA Program to exchange information on Canadian business opportunities in Ethiopia.

3.5.4 A work plan detailing specific IBD activities should be developed.

3.5.5 ***.

3.5.6 The IBD Officer should ensure that information on trade leads is distributed to all interested Canadian companies by informing IBOC.

3.5.7 The Mission should respect CSF guidelines and not use this fund for hospitality expenditures.

3.5.8 The PM should ensure that ***.

3.5.9 The IBD Officer should provide narrative reports to HQ when high quality and time consuming services are provided by the Mission.

Mission Actions and Timeframes

3.5.1 Implemented October 2009. The PM continues to meet with the Commercial Officer on a regular basis. The Commercial Officer meets with broader section once every three weeks.

3.5.2 In progress for October 2010. The PM will work with the new incoming STC in Nairobi to clarify these roles.

3.5.3 Implemented March 2009. The PM and Commercial Officer have met with the CIDA Program for this purpose and agreed to exchange information that may be of interest on a regular basis.

3.5.4 In progress for July 2010. A workplan will be developed.

3.5.5 In progress for April 2010. ***.

3.5.6 Implemented November 2009. The Commercial Officer has started to do this.

3.5.7 Implemented March 2010. The CSF for 2009-10 was used for a study on the water sector profile.

3.5.8 In progress for March 2010. ***.

3.5.9 In progress for May 2010. A reporting plan for the IBD section is being developed.

Consular Program

4.1 Overview

4.1.1 The Consular Program is managed by an AS-05 Management Consular Officer (MCO), with daily operations under the responsibility an LE-07 Senior Consular Officer. The Consular Officer is assisted by an ***, acting as an *** .This issue will be further addressed in paragraph 5.2.7 of this report.

4.1.2 The Program is responsible for the provision of Consular and passport services (for Canadian citizens) in Ethiopia and Djibouti, passport services for Sudan, and Consular services for Australian citizens in Ethiopia. There is an Honorary Consul (HonCon) located in Djibouti. Regular contact is maintained with the HonCon in Djibouti and the mission in Khartoum.

4.1.3 There are currently 292 registrants with a total of 519 registered in Ethiopia in the Registration of Canadians Abroad (ROCA) system. The actual numbers are estimated to be around 2,000, but as dual nationality is not recognized, many Canadians do not register. The HonCon reports that there are approximately 2,000 Canadians in Djibouti, although most do not register. As the majority of registrants are not familiar with the on-line tool, nor do not have access to the Internet, most ROCA registrations are submitted on paper.

4.1.4 The Contingency Plans (CONPLANS) and Duty Officer Manual (DOM) for Ethiopia are outdated, and could not be found for Djibouti. The MCO has advised that the CONPLANS and DOMs would be updated and provided to the Policy, Emergency Planning and Training Division (CEP) by mid-November 2009.

4.1.5 The Mission has a warden system with 27 wardens/districts. *** .The Mission should review the list of wardens and communicate with the wardens to establish whether they are still interested in the role of warden, and to ensure the return of the radios if they will no longer participate.

4.1.6 Weekly Consular Program meetings are held to discuss new policies, procedures and issues, but there are no minutes or records of decision taken. No work plans or objectives have been established for the Consular Program to ensure that the services are provided and standards are maintained, in areas such as, Consular visits, local authority liaison, ROCA, CONPLAN and DOM updates, contact with the warden network and visits to the HonCon. The MCO does, however, participate in quarterly meetings with like-minded missions, and the Mission has established contact with local authorities.

4.1.7 Consular staff indicated that support and communication with the Case Management Division (CNO) is effective. The Senior Consular Officer indicated a need for additional and on-going training for passport processing as well as CAMANT case management note writing. The MCO should work with staff to review the Consular training program available on the Canadian Foreign Service Institute (CFSI) website and identify training requirements for inclusion in the Mission-wide Training Plan.

4.2 Client Service

4.2.1 The Mission provides approximately 300 passport, 100 citizenship and 2,000 notarial services annually. The Senior Consular Office has delegated signing authority for authentication of documents and exercises it appropriately for documents intended for Canada. The MCO or another CBS signs all documents intended for the Ethiopian government as the signature of a Locally-engaged employee is not accepted.

4.2.2 Consular and passport service standards are met, but a copy of the standards is not posted in the Consular waiting area. A copy of the fee schedule, bilingual signs and a notice regarding the official receipt are posted in the Consular booth. As a best practice, a copy of the actual official receipt should also be posted in the booth. Service in English and French is available.

4.2.3 Client feedback forms and a drop box are available in the Consular waiting area, however, very few forms are completed and returned. The Mission should encourage all clients to complete and return the feedback forms and could include the form with passports, etc.

4.2.4 The Consular Policy and Initiatives Division (CLP) noted that the Mission has been late with providing the Consular Management Information Program (COMIP) statistical reports on services provided to clients, and the MCO was advised of the importance of submitting timely reports. A review of the 2009 COMIP data identified a discrepancy between the number of cases versus the number of hours reported. The MCO noted that the number of hours appears to have been captured correctly but that the number of cases is not accurate. The Mission should consult CLP to determine whether this may be attributable to a technical problem in the system or whether COMIP is not entered correctly.

4.3 Internal Controls

4.3.1 Consular staff have passed the passport certification course, and the Senior Consular Officer has been granted “approver” status for passport issuance. The approver role is granted to LES for use in exceptional circumstances, and is not to be used on a daily basis. The Senior Consular Officer has, however, been exercising the passport approver authority on a regular basis. The MCO has been reviewing the file application and verifying the original documentary evidence of citizenship only after the finished passport is returned from the Passport Office, but prior to releasing the passport to the client. According to the Passport Canada directives, only Secret-cleared and certified CBS should be verifying the original documents and approving passport applications prior to issuance.

4.3.2 Official receipts are issued for the services provided and fees collected, but there is no tracking mechanism for services provided. The Mission accepts payment in CAD, ETB and USD cash,***. Once the official receipts book is finished, the list of services are recorded by the acting Consular Assistant onto the EXT 119 Record of Fees form based on the official receipts information. ***.

4.3.3 Passport stock is properly secured ***, and the MCO provides a working supply to the Consular Section as required. Inventories are conducted monthly by the MCO and quarterly by the HOM and MCO. The September 2009 Monthly Passport Reconciliation was conducted by the MCO and HOM in the presence of the Inspection Team, and the passport inventory was in good order. ***.

4.3.4 Completed passport application forms and related documentation are held for one year, which is longer than the standard of 60 business days following the end of the month they were submitted.

4.3.5 Passport Foreign Operations (PPDM) noted that the Mission has been late with the submission of monthly Passport reports. The Mission has also submitted documents and inventory from the current month with a previous month's report which makes reconciliation for the current month challenging. The Consular staff should be reminded of the supplementary identification document (ID) requirement for passports. The Mission advised that most clients in Ethiopia did not have supplementary IDs in English or French. The Mission should consult PPDM to determine acceptable local IDs to satisfy the supplementary identification requirement.

4.3.6 ***, and stamps are held by the MCO, HOM Assistant, Senior Consular Officer and the Honorary Consul.

4.3.7 The Mission holds an ***. The Inspection team supervised the count by the MCO and HOM, and the amount was accurate.

4.4 Honorary Consul

4.4.1 The Program indicated their satisfaction with the service provided by the Honorary Consul in Djibouti and the good working relationship between both parties. However, communication difficulties have been cited by both CNO and the HonCon on the handling of some consular cases. The HonCon indicated that he would like to be provided with feedback, but has never received a mandate letter outlining his responsibilities and objectives, nor has he received any performance assessments. It is important that this be done annually in order to provide a formal mechanism for feedback and priority setting for the HonCon.

4.4.2 The HonCon indicated that he received training when he was appointed 11 years ago, but that refresher training would be valuable to update his knowledge of current policies and procedures and to meet CNO contacts.

4.4.3 With the assistance of a part-time employee, the HonCon provides Consular services to Canadians in Djibouti as well as Immigration information to non-Canadians. He reported that he is increasingly providing more Immigration-related assistance, with the current workload being 90% Immigration and 10% Consular. He would like more assistance to deal with the increased workload and had requested authorization to hire an additional resource last year. He was advised that the COMIP stats did not reflect an increased Consular workload, and the request was denied. He would also like to ensure that future salary increases are provided and budgeted for the ***.

4.4.4 The HonCon has a vehicle which was purchased with HQ authorization by the Mission ten years ago (due to the requirement for travel to areas with poor roads) and would like instruction on its disposal.

4.5 Recommendations

Recommendations to the Mission

4.5.1 The Mission should return the ***.

4.5.2 The Mission should consult with the Area Management Office - Consular (CFA) regarding the Consular workload and develop a business case for additional resources.

4.5.3 The Program should develop a work-plan.

4.5.4 The Program should maintain records of decisions taken at weekly staff meetings.

4.5.5 The Mission should ensure that the CONPLANS and DOMs are updated and provided to CEP in accordance with the required deadlines.

4.5.6 ***.

4.5.7 The Mission should submit timely COMIP reports monthly and liaise with CLP to resolve the discrepancy between the number of cases and hours recorded in the system.

4.5.8 A copy of the Consular Service Standards as well as a copy of an actual official receipt should be posted in the Consular waiting area.

4.5.9 The Mission should identify and implement methods to increase the number of feedback forms received from clients.

4.5.10 In accordance with Passport Canada directives, only Secret-cleared and certified CBS should be verifying the original documents and approving passport applications prior to issuance.

4.5.11 The Mission should improve the handling and internal controls over revenue by:

  • acquiring an electronic cash register, and implementing a tracking mechanism to record services provided in order to facilitate the reconciliation of Consular fees collected against services provided;
  • having the MCO sign the Consular reconciliation of services and fees collected.;
  • ***
  • having revenues counted by two Mission staff when transfers occur.

4.5.12 The monthly passport reconciliation should be undertaken by the MCO and another staff member, preferably another CBS.

4.5.13 ***.

4.5.14 Passport applications should be destroyed after 60 days.

4.5.15 The Mission should consult with PPDM to identify acceptable local ID to be used as supplementary ID for passport applications.

4.5.16 ***.

4.5.17 The HonCon should be provided with a yearly mandate letter outlining responsibilities and objectives, and an annual performance assessment should be conducted.

4.5.18 The Mission should review the workload and type of services provided by the HonCon in consultation with CNO and, if needed, Citizenship and Immigration Canada (CIC), and the resources required to deliver the Program in Djibouti.

4.5.19 The Mission should provide instruction on the disposal of the HonCon vehicle.

Mission Actions and Timeframes

4.5.1 Implemented November 2009. The employee resigned from the *** position soon after the Inspection visit. The Mission no longer has a Consular Assistant and no acting pay therefore applies.

4.5.2 In progress for June 2010. The Mission will consult with CFA to develop a business case. In the meantime, the Mission is training the spouse of a Canada-based staff member to assist in emergency situations.

4.5.3 In progress for July 2010. The Consular Officer is currently submitting weekly work plans, and these will be used to develop a longer-term Program work plan.

4.5.4 In progress for March 2010. Minutes of the meetings will be taken and a record of decisions taken will be maintained.

4.5.5 In progress for May 2010. The Mission will ensure that the CONPLANS and DOM are updated and will strive to adhere to the required deadlines.

4.5.6 In progress for May 2010. The Mission plans on hiring a contractor to re-design and re-invigorate ***.

4.5.7 Implemented November 2009. The discrepancy seems to have been based on the way the Consular Officer entered her data into COMIP. This has been changed since the Inspection visit, and the data is now accurate.

4.5.8 In progress for April 2010. The Mission will post the Service Standards and a copy of a receipt in the waiting area for clients to see.

4.5.9 Implemented December 2009. This has been discussed at Program meetings. The feedback forms are already displayed prominently in the Consular booth and staff have been instructed to suggest to clients that they complete the feedback forms. Little interest is shown by our clients, however.

4.5.10 Implemented November 2009. The MCO now approves the applications and verifies the documents.

4.5.11 Implemented January 2010.

  • The Mission contacted the mission in Rabat, who use a point of sale (POS) software that is compatible with our network. The Program is now using the POS software, which has improved client service and the reconciliation of fees collected/services provided.
  • The MCO counts the revenue and signs the reconciliation along with the Consular Officer.
  • The Mission has purchased a cash counting machine. The revenues are counted/verified by the MCO, the Consular Officer and the Senior Accountant together, which makes the verification process easier.

Implemented March 2010.


4.5.12 Implemented November 2009. The MCO now includes other Mission staff, normally the Consular Officer, for the monthly passport reconciliation. The HOM has also instructed Mission CBS to assist when requested.

4.5.13 In progress. ***.

4.5.14 Implemented November 2009. The MCO has instructed the Consular staff of the requirement and will monitor to ensure compliance.

4.5.15 In progress for April 2010. The Mission will consult with PPDM as recommended.

4.5.16 Implemented December 2009. ***.

4.5.17 In progress for May/June 2010. The MCO will prepare these letters and assessments in collaboration with the HOM and CNO/CLP.

4.5.18 In progress for April 2010. The HOM discussed these issues upon a visit to the HonCon in March 2010 and followed up with CIC. The MCO will follow up on his next liaison visit to Djibouti.

4.5.19 Implemented February 2010. The vehicle was purchased by CIDA years ago as part of the CFLI. The HonCon has since been instructed by the CIDA Program Manager to sell the vehicle.

Recommendation to Consular Policy and Advocacy Bureau (CLD)

4.5.20 CLD should consider the provision of refresher training to staff and the HonCon.

CLD Action and Timeframe

4.5.20 In progress. The Consular Services and Emergency Management Branch (CFM) launched on March 9, 2010 a new Consular Services and Emergency Management refresher training pilot for MCOs going on posting in 2010. This pilot course will take place the first week of May 2010. We will offer the same training starting next fall for employees who have primary responsibility for Consular work (CBS and LES) and eventually to HonCon. Participants will review CAMANT note writing, addressing how these notes relate to the Privacy Act, Access to Information and Privacy (ATIP), the Canada Evidence Act and the involvement of JUS (Justice Legal Services Division) in Consular cases. They will also participate in an in-depth discussion on complex Consular cases. As well, this course will introduce the new Emergency Management Bureau of the Consular Service and Emergency Management Branch and its related tools. There will be discussions with our partners at Passport Canada and Citizenship and Immigration Canada. The process of legalization and notarial services abroad, as well as the upcoming changes to the Manual of Consular Instructions (MCI) will be reviewed.

Administration Program

5.1 Overview

5.1.1 The Administration Program is managed by the MCO who is supported by 22 office and non-office LES. The Program provides service to all programs within the Mission, however, service tends to be reactive and focused on short-term priorities.

5.1.2 The Program would benefit from a formal approach to planning, using a documented plan to identify long-term objectives and priorities, as well as day-to-day responsibilities. This will help ensure that important items are not overlooked in a highly reactive environment. The plan should also identify timelines, resources and the positions responsible for each item. The high-level Administration Plan could then be used to develop detailed work-plans for each Section.

5.1.3 In conjunction with work-plans, each section or function should document procedures that describe how services are accessed, carried out and delivered. This would include development of service standards in terms of quality and timeliness.

5.1.4 While the MCO holds regular meetings with the Finance Section, he does not meet with other members of the Administration team. Supervisors conduct regular meetings with non-office staff, however, there are no periodic meetings held between the MCO and non-office staff. Such meetings would provide non-office staff with an opportunity to discuss issues that they may be reluctant to raise with their immediate supervisors.

Recommendations to the Mission

5.1.5 In consultation with Mission Management and Administration Program staff, the MCO should develop a Program Plan to define long and short term objectives, as well as key day-to-day Program responsibilities.

5.1.6 Based on the Administration Program Plan, each Section should develop a detailed work-plan to define how they will help the Program meet its long and short term objectives, as well as key day-to-day Program responsibilities.

5.1.7 The MCO should hold regular meetings with individual Sections and non-office staff, as well as hold periodic all staff meetings.

Mission Actions and Timeframes

5.1.5 In progress for June 2010. The MCO now has a weekly work plan implemented November 2009 and is working on developing and clarifying key day-to-day program responsibilities. Once done, a Program Plan will be developed in consultation with Mission Management and Administration Program staff.

5.1.6 In progress for August 2010. The MCO collaborates on short term work plans with Section staff. More detailed work plans with long term focus will be developed as the Mission’s HR situation allows.

5.1.7 Implemented November 2009. The MCO holds regular meetings with individual sections, as well as monthly meetings with all Administration Program office and non-office staff.

5.2 Human Resources (HR)

5.2.1 The HR function is managed by the MCO with ad hoc assistance provided by a contract Receptionist and other Administration staff members. Over the last year, numerous staffing actions, coupled with the lack of a dedicated administrative/HR support position, have had an impact on the Administration Program's ability to devote attention to the HR plans and services.

5.2.2 The Mission does not currently have an HR Plan to outline the Mission's current and future HR requirements. This includes issues such as recruitment strategies, training and organizational structure. The development of work-plans and service standards would also facilitate the management and planning for HR activities. The work-plan should identify tasks such as establishing processes, updating job descriptions, providing leave balances to Program Managers, etc. The service standards would provide clients with a clear understanding of services.

5.2.3 PMPs have not been fully implemented at the Mission, and this has an impact on the PMs’ ability to establish objectives and priorities for employees.

5.2.4 Although a message was sent to all staff requesting input for the Training Plan, there is no Mission-wide Plan. To further enhance the planning and management of training, a Mission Training Coordinator should be identified, and a consolidated Mission-wide Training Plan should be developed as part of the HR Plan.

5.2.5 A review of the Mission’s organizational chart, administrative structure and job descriptions identified a number of discrepancies, such as a vacant LE-05 Administration Assistant position. The Mission was advised by the Resource Management Advisor - RSR (now ASM) that the position had been a vacant LE-00 Head Guard position authorized for re-profiling to an LE-05 Administration Assistant. Although a draft costing was on file, the Mission was unable to provide the final authorization and costing documents. It is unclear whether this position was ever authorized. A competition for the position had been held, and a candidate was identified but not yet appointed.The Mission must clarify whether this position is authorized before offering employment to the successful candidate.

5.2.6 As noted in the Consular section of the report, the *** is acting as an *** in a non-existent position. A contractor was hired to replace the *** until a new Consular position was created. The Mission was advised by the Consular Area Management Office (CFA) in July 2009 that a position had been recommended for creation but that employment should not be offered until full authorization and funding were confirmed. The Mission was advised in September 2009 that a new position would not be provided at this time. The Mission did not have the authority to have an employee act and be paid for work in a position which does not exist.

5.2.7 The Mission has experienced recent personnel growth and expects this to continue in the future. The Common Service Model (CSM) has recently been sent to the Mission for completion. This provides the Mission with the opportunity to review existing resources, ensure job descriptions and position levels are accurate, and assess current and future Common Service requirements.


5.2.8 The MCO works closely with PMs on staffing actions, but there are no written staffing procedures in place. This could lead to inconsistencies in the staffing process and in the documents maintained on file. Some staff members raised concerns over a lack of transparency in staffing actions. As well, a formal process was not in place to consistently advise CBS spouses and dependants of job opportunities.

5.2.9 The Mission has experimented with different recruitment approaches, including hiring an HR recruitment company to provide a list of suitable candidates. At that time, the quality of external candidates was inferior to internal candidates and internal appointments were made. The numerous appointments and the subsequent need to staff the resulting vacancies have, in effect, doubled the amount of work required to staff a position. The Mission recently used the second-ranking candidates in previously-held competitions to staff other vacancies at the same level. The establishment of an eligibility list/pool was not mentioned in the competition notice, and it was not clear whether the Statement of Qualifications (SOQ)/duties were the same for both positions. In order to use a competition to create a pool, the notice must clearly state this intent and the SOQs, position level and duties must be same/similar for the positions to be staffed.

File Review

5.2.10 A review of files indicated that both position and personnel documents are stored in one file. Position and employee files should be maintained separately. Many job descriptions and LES Employment and Pay Certificates (EXT 208s) are out of date. Job descriptions should be updated for all employees and reviewed regularly, preferably as part of the PMP process, or as substantial changes occur. The EXT 208s should also be updated when a change occurs to the employee's salary or status, and a copy should be maintained on the employee's file. The Finance Section has indicated that the Mission is in the process of reviewing and updating all EXT 208s.

5.2.11 The competition and classification files were incomplete with inconsistent documentation maintained on file. As a result, the Inspection Team was unable to fully assess the Mission's compliance with policies and procedures. The Mission should ensure that processes are transparent and well documented. The following steps were not undertaken by the Mission:

  • job descriptions and statement of qualifications were not kept on file;
  • unsuccessful candidates are not informed of their right to grieve; and,
  • letters of Offer were signed by the MCO not the HOM.

5.2.12 The Mission is using a spreadsheet developed in-house to track LES leave. A review of files indicated that the leave records are not up-to-date and did not include the extended absences of two employees. While a copy of the annual leave reports and balances are sent to PMs at the beginning of the year, it would be useful to provide PMs with more regular reports, or grant them access to the electronic leave data for better management of LES leave requests.

LES Committee

5.2.13 The Inspection Team met with members of the LES Committee. In the past, meetings with Mission Management were held on an ad hoc basis. The Committee members indicated that they would like more frequent interaction with the HOM and MCO to discuss LES issues with formal meetings, agendas and minutes taken. The new HOM met with the LES Committee very soon after her arrival, and has advised the Inspection Team that bi-monthly meetings with all LES staff will be instituted and the agendas set in conjunction with the LES Committee. The following issues were raised by the LES Committee:

  • The LES Handbook Part II is outdated, the last review having been done in 2006. The cost of living has increased and amounts for Health insurance and Transportation have not been adjusted.
  • Salary increases have not kept up with inflation (over 40%) and increased cost of living.
  • There was confusion over Taken on Strength Date (TOS). Several employees, who were contractors prior to becoming full-time employees, had been advised by the MCO at the time that their TOS would date back to the commencement of their original contract. The staff expressed a desire for clarification of this matter.
  • The Committee communicated an interest in greater access to training.
  • In addressing pension matters, the Committee indicated that it would like to implement a provident fund but require Mission assistance.
  • Many LES who participated in training in Canada were not advised to obtain travel insurance. There should be a checklist for LES training/travel.

CBS Spouses

5.2.14 The Inspection Team met with a group of CBS spouses. The main issues raised were regarding the Administration and Property Sections on maintenance of Staff Quarters, furnishings, a lack of service standards and communication of these to spouses. Spousal employment issues and concerns about the water quality and cost of living were also discussed. The spouses did indicate however, *** with the services of the Community Co-ordinator.


5.2.15 The Mission operates a mini-clinic with a contract nurse who works two afternoons a week. The nurse also acts as an advisor to the Occupational Health and Safety Committee. CBS indicated that the mini-clinic operates well, and they are very satisfied with the services provided.***. Records are maintained for the vaccines and medications ordered via the on-line CIC ordering system. However, there is no inventory of all mini-clinic stock.

Recommendations to the Mission

5.2.16 The Mission should develop an HR Plan, work-plans and service standards.

5.2.17 The Mission should ensure PMPs are implemented for all staff and that job descriptions are up to date.

5.2.18 The Mission should appoint a Mission Training Coordinator and develop a Mission-wide training plan.

5.2.19 The Mission should consult with Mission Client Services (ASM) to verify whether the re-profiling of position 320143 from LE-00 to LE-05 was authorized before proceeding to offer employment to the candidate selected.

5.2.20 In coordination with the CSM implementation, all job descriptions, levels, and titles should be reviewed to ensure that they are accurate.

5.2.21 The Mission should develop written staffing procedures with roles and responsibilities for the HR function identified and communicated to all staff.

5.2.22 The Mission should ensure that competition and classification files are complete and clearly demonstrate compliance with policies and procedures. All letters of offer should be signed by the HOM.

5.2.23 The Mission should separate position files from personnel files.

5.2.24 The Mission should ensure that EXT 208s are updated and a copy maintained on the personnel file.

5.2.25 The Mission should grant access to the LES leave tracking document to Program Managers to improve leave management.

5.2.26 The Mission should consider arranging an information session for LES on benefits and to provide an update on the Total Compensation Review.

5.2.27 The Mission should develop a Travel Checklist for LES

5.2.28 The Mission should consult the International Platform Branch Human Resources Services Bureau (ALD) to seek clarification for TOS for employees regularized from contract positions

5.2.29 The Mission should develop a CBS Arrival Checklist and service standards to be communicated to all employees, as well as CBS spouses when and where applicable.

5.2.30 The Mission should advise spouses of employment opportunities in the Mission and maintain the resumés of spouses who are interested in employment. 5.2.31 The Mission should review and update the Cost of Living Survey.

5.2.32 An inventory of all mini-clinic stock should be prepared.

Mission Actions and Timeframes

5.2.16 In progress. Full implementation for the HR plan, Administration Program Workplan and service standards will be possible once resources are in place.

5.2.17 In progress. The PMP process has been initiated for all staff. Full implementation and follow-up will be possible when resources allow.

5.2.18 In progress. The Mission has nominated a Training Coordinator, but the current HR situation does not allow for the proper development and implementation of a training plan at this time. This will be addressed when further resources are available.

5.2.19 Implemented November 2009. The Mission consulted with ALD and learned that the position was never reclassified/ profiled. The position was therefore never staffed at the LE-05 level, and no offer of employment was offered to the previously selected candidate for this position.

5.2.20 Implemented March 2010. The Mission completed the CSM and verified position data for accuracy in collaboration with ASM and ALD.

5.2.21 In progress. The Mission will develop staffing procedures as the human resources situation allows. ZIV Comment: ALD has recently developed a Manager’s Guide to Staffing LES, available on their website, to which staff can be referred and/or a copy kept on the shared drive for reference.

5.2.22 Implemented November 2009. The Mission has ensured that recent competitions and classification files are complete and comply with policy. The HOM now signs all letters of offer.

5.2.23 In progress for March/April 2010. The Mission has recently hired a spousal contractor to assist in organizing and separating the HR files as recommended.

5.2.24 Implemented March 2010. The EXT-208 forms are now up to date and copies will be kept in the position and personnel files as applicable.

5.2.25 In progress for April 2010. The spousal contractor hired to assist with the HR files is amending an LES leave tracking document provided by the mission in Rabat. The Mission will ensure that this becomes accessible to Program Managers.

5.2.26 Implemented November 2009. The Mission conducted a Town Hall meeting where the Total Compensation Review process was explained.

5.2.27 In progress for September 2010. The Mission will work on developing such a checklist.

5.2.28 In progress for October 2010. The Mission will consult with ALD to clarify the TOS date for these employees.

5.2.29 In progress for July 2010. The Mission will work on developing such a checklist before the new CBS arrivals in the upcoming relocation season.

5.2.30 Implemented December 2009. The Mission now maintains CVs of interested spouses and has recently created contract opportunities for them. Three spouses have already been awarded contracts.

5.2.31 In progress for March 2010. The Mission has awarded a contract to conduct a Post Index Survey to a CBS spouse. The data collection should be completed by the end of the FY.

5.2.32 In progress for April 2010. The Mission Nurse will undertake to complete the inventory.

5.3 Physical Resources

5.3.1 The Property Section is managed by the MCO who is supported by an LE-07 Property Manager and 16 LES, five of whom provide driver/messenger services, and the remainder providing gardening, maintenance and janitorial services at the Chancery and Official Residence. The Section is providing services to the Mission, however like the rest of the Administration Program, the lack of planning results in the tendency for the Program to be reactive and focused on short-term priorities.

5.3.2 Addis Ababa is a major center for international organizations in Africa, serving as the seat of the African Union and the United Nations Economic Commission for Africa. These and other factors have created a significant shortage of acceptable housing in the local property market. During the most recent relocation cycle, the Mission viewed 65 properties and found only one that was suitable.

5.3.3 The Property Manager meets with maintenance staff three times a day, and with the gardeners one to two times a month. She does not have regular meetings with the janitors, nor with the dispatcher and drivers. There are no regularly scheduled meetings between MCO and staff in the Property Section.


5.3.4 Work planning is predominantly addressed on a day-to-day basis, through a verbal and e-mail request system. Requests are then scheduled, with priority given to electrical, telephone and water issues. Upon completion, the Property Manager contacts the client to confirm that the work has been successfully completed. The Mission is looking to move to the Departmentally-approved electronic service request system in the near future, which will improve their ability to monitor and control maintenance requests.

5.3.5 *** it was noted that the***occasionally provides advances out of *** own pocket for small items when she cannot get access to the petty cash (such as on weekends). For frequently replaced items, it may be more effective to maintain a small number of these items at the Mission. The Mission would, however, have to implement an inventory system and assign custodianship to ensure that those assets are properly controlled. Additionally, a standing operating advance from the petty cash, with appropriate controls, could be provided to the Property Manager to facilitate such purchases.

5.3.6 The staff in the Property Section do not generally perform a lot of overtime, except during the relocation season when it is often necessary. Given the six day work week for non-office staff, the schedule does not allow staff sufficient time to rest and prepare for the following work week. Improved planning and redirection of work from the handyman to outside contractors could alleviate some of the pressures felt during this busy period.

5.3.7 Expanding regular preventative maintenance practices beyond seasonal work on eaves troughs and water tanks, to include other frequently experienced maintenance issues, should also allow the Program to better balance its workload. This will reduce the amount of urgent and reactive work performed during the course of the year. To this end, the MCO should include the Property Manager and maintenance staff in the annual SQ inspection process and the development of maintenance and capital acquisition plans. CBS and PMs should also be consulted and plans should be presented to the CMM for approval and for input into the budgeting process.

Staff Quarters

5.3.8 The Inspection team visited a selection of SQs and identified several issues requiring attention.

5.3.9 One particular SQ is of significant concern. The Mission entered into a lease for the property in early July 2009 with detailed requirements for renovations to be completed by the landlord prior to occupation by the CBS on September 1, 2009. The required renovations were not completed in time for the CBS arrival, nor had they been completed at the time of the Inspection Team's visit. As a result, the CBS family had taken up residence in an SQ with a room designated as a kitchen, but with no associated storage, running water or food preparation area.

5.3.10 ***. Guards at the location had noted that there had been a breach of the security perimeter on the day that furniture had been delivered to the SQ.

5.3.11 Other SQs visited were overall in good condition and, in general, well appointed. ***.

5.3.12 Renovations of the OR property started in 2007 had stopped over a year ago, as suppliers had gone out of business, and therefore some rooms of the Residence were not finished to an acceptable level. Black mold was also evident in the master bathroom as well as on the walls of rooms in the basement.

5.3.13 The HOM pays for all consumables for personal use with the exception of the cleaning supplies that come from the Chancery. Any personal use of cleaning supplies should be reimbursed on a percentage basis.

Recreational Facility

5.3.14 The Mission rents a small cottage for a low sum from a local resort, and rents it to CBS on a cost recovery basis. A semi-rigid boat is available for use at the cottage and the Mission provides security services. There are no records at the Mission showing Headquarters approval of a recreational cottage, and the lease is non-standard with no diplomatic clause. Review of historical files associated with the facility indicated past issues with boundaries, and an injury to a maintenance staff member. While the direct rental cost of the property may be low, the associated costs for security and maintenance warrant review to ensure that appropriate approvals have been obtained, and the Mission has appropriate indemnification.

Internal Controls

5.3.15 The HOM has not yet signed off on the Chancery or OR inventories. Only two SQs had signed distribution accounts, and only seven of twelve SQs had signed occupancy agreements.

5.3.16 ***.

5.3.17 Vehicle logs and Vehicle Operating and Maintenance Report (EXT 159) are not properly completed. During the period of May 2008 to September 2009, receipts for fuel purchases were not consistently on file, nor were purchases consistently recorded on the EXT 159. The MCO confirmed that reconciliations of fuel purchases against distance driven were not performed.

5.3.18 The Mission also does not reconcile fuel purchased for generators against running hours of the generators. The risk is exacerbated by the fact that the re-supply of fuel is not recorded per generator, and that fuel is stored at almost every site in barrels that are not secured. There is no structure surrounding any fuel storage area that could contain leaks or spillage of fuel.

5.3.19 Files related to two disposal processes were reviewed and were incomplete. Neither contained the required authorization from the HOM or HQ, per Chapter 7 of the Materiel Management Manual, and only one contained receipts related to the sale. A disposal that occurred in October 2008 involved the sale of computer equipment, without the required HQ approval.

5.3.20 A review of contracting files demonstrated that, save for one contract, all contracts have insufficient documentation on file. Where sole source contracts were used, files contained no justification for following a non-competitive process. Of the two competitive contracts reviewed, one had no record of bids on file.

Recommendations to the Mission

5.3.21 The MCO should meet regularly with staff in the Property Section.

5.3.22 The Property Manager should meet regularly with all staff in the Property Section.

5.3.23 Consideration should be given to maintaining a small stock of frequently replaced/used items, or the provision of a small operating advance to the Property Manager.

5.3.24 The Mission should investigate methods of minimizing the impacts of the relocation season on Property Section staff through improved planning and identification of other means to complete the work required.

5.3.25 The MCO and the Property Manager should perform annual inspections with the maintenance staff and ensure that the results are incorporated into maintenance and capital acquisition plans.

5.3.26 The Mission should ensure that all SQs are fit for habitation prior to CBS taking up residence, and that any deficiencies are addressed in a timely manner.

5.3.27 ***.

5.3.28 Testing should be conducted to determine if the mold in the OR is hazardous, and steps taken to remove it and prevent future growth.

5.3.29 HQ approval for the rent of a recreational facility should be obtained and retained on file, as well as approval for entry into a non-standard lease agreement.

5.3.30 The HOM and MCO should determine an appropriate percentage to be paid for OR consumables, based on a review of usage over a certain period.

5.3.31 Occupancy agreements and distribution accounts should be signed by the occupants within 30 days of receipt from the Mission. This should be facilitated by a follow-up visit from Mission staff to conduct an inspection, also to occur no later than 30 days after occupancy.

5.3.32 The Mission should ensure that all assets are inventoried and that formal custodians have been assigned.

5.3.33 The Mission should review the appropriateness of using ***.

5.3.34 The Mission should ensure that vehicle logs and the monthly EXT 159 are properly completed with all supporting documents.

5.3.35 The MCO should regularly reconcile vehicle and generator fuel purchases to usage.

5.3.36 The Mission should ensure that all fuel storage is equipped with containment structures and that fuel is stored securely.

5.3.37 The Mission should ensure that all disposal files clearly demonstrate adherence to policies and procedures, and that the required approvals have been obtained.

5.3.38 The Mission should ensure that all appropriate contracting documentation is on file, that contract files are separate, and that there is a contract register.

Mission Actions and Timeframes

5.3.21 Implemented November 2009. The MCO now holds bi-weekly meetings with the Property section in addition to numerous ad-hoc meetings.

5.3.22 In progress for April 2010. The Property Manager will meet regularly with all staff, including the non-office workers.

5.3.23 In progress for April 2010. The MCO will explore both of these recommendations in consultation with the Property staff.

5.3.24 In progress for July 2010. The Section will work on improved planning to minimize the impacts of the relocation season.

5.3.25 In progress for October 2010. The MCO will work on this with the Property Manager and will ensure that annual SQ/OR inspections are conducted and that the results are incorporated into a capital acquisition plan.

5.3.26 In progress for July-September 2010. The Mission will endeavour to ensure that such situations do not happen again, in spite of the lack of available good quality housing in the local market. A checklist will be developed prior to approving occupation of an SQ.

5.3.27 In progress for December 2010. Some deficiencies have been addressed since the Inspection visit. The Mission will develop a plan as requested, though the implementation will depend on the availability of human and financial resources.

5.3.28 In progress for July 2010. The Mission is currently working with the Lessor of the OR on an overall solution to the problem.

5.3.29 In progress for May 2010. The Mission received approval from ARD to renew the lease for the year beginning July 1, 2009, but will consult as recommended.

5.3.30 In progress for June 2010. The HOM and MCO will review the usage and determine an appropriate percentage to be paid as recommended, if applicable.

5.3.31 In progress for May 2010. The Mission is currently working on updating all occupancy agreements and distribution accounts. Property Section staff will follow-up as recommended.

5.3.32 In progress for May 2010. The Mission is completing a new inventory database and will ensure that formal custodians are assigned.

5.3.33 Implemented January 2010. The Mission has removed ***.

5.3.34 In progress for April/May 2010. The MCO will ensure the Dispatcher uses the appropriate form.

5.3.35 In progress for June 2010. The MCO will implement a system to check these regularly.

5.3.36 In progress for August 2010. The Property Section will work on ensuring that this is done, in as much as physical space allows.

5.3.37 In progress for June 2010. The Mission will ensure that disposal files are complete and comply with policy.

5.3.38 In progress for June 2010. The Mission has ensured that recent contract files are complete. A register will be created subject to human resources availability.

Recommendation to ARD

5.3.39 Issues surrounding the renovation of the OR should be resolved in order to ensure that the property is brought up to an acceptable level.

ARD Action and Timeframe

5.3.39 In progress. A site inspection of the OR was undertaken with the HOM and MCO. A list of deficiencies from the kitchenette project was noted. The outstanding renovation work for the master bathroom and dressing room was discussed and a scope of work agreed upon. A local contractor was hired to piece together the wardrobes stored in the basement to be able to do an inventory. A decision was made to hire a local consultant to aide in evaluating what material was needed to complete the renovations. A visit was made to several suppliers of bathroom fixtures. The market has changed dramatically in the last few years and all manner of fixtures can now be purchased locally and there should be no need to purchase abroad. Next step will be to hire a consultant to assist with the OR renovations.

5.4 Finance

5.4.1 The Finance Section is overseen by the MCO, with day-to-day activities carried out by an LE-07 Accountant and an LE-05 Account Assistant. The operating environment is one in which cash and cheques are frequently used, with little opportunity for the use of other payment methods (credit and debit cards, or electronic fund transfers). With a significant CIDA Program at the Mission, the Finance Section estimates that 30% of the payment processing done is for CIDA.

5.4.2 General oversight by the HOM and MCO is provided through the monthly reconciliation of accounts and the regular financial reports from the Integrated Management System (IMS) that the MCO and HOM receive. ***.

5.4.3 The review of contracting practices at the Mission indicated that appropriate financial management was not practiced. Specifically, funds reservations had not been performed and, as a result, one high value contract for security services could not be signed due to a shortage of funds. The Mission is currently receiving these services without a contract being in place, in non-compliance with Section 32 (1) of the Financial Administration Act. The Mission is also non-compliant with the Treasury Board Contracting Policy, as these services are not one of the eight transactions in Section 3 that are exceptions to the policy and its requirements.

5.4.4 ***. A non-competitive contract for a driver had no fixed termination date.

5.4.5 The Finance Section has communicated service standards and instituted closed door hours to provide staff with time to focus on their work. The quiet hours, while respected, are ad-hoc and do not provide clients with a predictable schedule upon which to address queries.

Business Processes

5.4.6 LES are paid two weeks in advance in order to avoid busy periods at the banks and in the Finance Section. While the employees prefer it, this practice is not appropriate and exposes the Mission to financial risks. Staff should not be paid for days not yet worked.

5.4.7 ***.

5.4.8 Local utilities require payment within three to four days or there is significant risk of services being cut-off. The need for quick turn-around times places a significant amount of strain on the Finance Section, and has the potential to disrupt other, perhaps more important, activities. The Property Section has begun investigating pre-payment options for some services as a means to address the issue.

5.4.9 Some interviews with staff revealed that single vendors can have multiple vendor numbers, which increases the risk of duplicate payments. In some cases, vendors have been allocated two different vendor numbers due to their different payment needs. As well, in some cases, when changes were required to vendor information, a second vendor was created in the system. The Account Assistant indicated that this practice has ceased and the Mission no longer creates new vendors when amendments are required. This new practice needs to be formalized and communicated to relevant parties.

Internal Controls

5.4.10 Currently, the Accountant is the primary point of contact in dealings with the Mission's bank, where he has established strong relationships. The monthly bank statement is received and opened by the Accountant.

5.4.11 The Immigration Program has moved to a process of accepting payment via Certified Payment Order, reducing the administrative demands of cash handling.

5.4.12 The Assistant Accountant indicated that, every time funds are transferred into or out of the Finance Section, those taking custody count and sign for the funds.

5.4.13 Review of the Petty Cash Account ***, held by *** found no discrepancies and all payments had supporting receipts and authorization.

5.4.14 In the absence of DFAIT staff with signing authority, the Accountant received signatures for Section 34 approval for DFAIT expenditures from CBS in partner department programs. All staff signing off on DFAIT expenditures must have the appropriate delegated authorities for those budgets.

5.4.15 The Mission makes use of cheques on continuous feed paper, printed in Nairobi. ***.

Recommendations to the Mission

5.4.16 The MCO should regularly access IMS reports and periodically perform spot checks.

5.4.17 All PMs should receive monthly financial reports.

5.4.18 The MCO should ensure that funds reservations are created for non-discretionary items.

5.4.19 The MCO should ensure that contracts are signed before work commences.

5.4.20 The Finance Section should establish and communicate formal quiet hours.

5.4.21 The Mission should not pay staff in advance for days not yet worked. If the mid-month pay date is retained, staff should only be paid for the time worked up until that point.

5.4.22 ***.

5.4.23 The Mission should ensure that each vendor only has one vendor number, so as to reduce the risk of duplicate payments. 5.4.24 The monthly bank statements should be sent directly to the MCO and only transferred to the Accountant after they have been opened and reviewed.

5.4.25 The Mission should ensure that only CBS with appropriate delegated signing authorities exercise them at Mission.

5.4.26 ***.

Mission Actions and Timeframes

5.4.16 Implemented December 2009. The MCO has started accessing IMS reports on a regular basis and will continue to develop his skills in analysing them.

5.4.17 In progress for April/May 2010. The MCO will work on this with the Finance staff and ensure that PMs receive regular reports. The mission in Beirut has been consulted for best practices.

5.4.18 In progress for April 2010. Funds reservations and commitments for the FY were reviewed. The MCO will ensure that this is done for FY 2010/11.

5.4.19 In progress. The MCO will ensure that this is done in all instances.

5.4.20 Implemented April 2010. The MCO has established these hours in consultation with the Finance Section. 5.4.21 In progress for April 2010. The Mission will phase in the movement of the pay date to the end of each calendar month in early 2010/11.

5.4.22 Implemented November 2009. ***. 5.4.23 In progress for April 2010. The Finance Section is working on this in consultation with SMFF.

5.4.24 Implemented November 2009. The bank has been instructed and account statements are now sent directly to the MCO.

5.4.25 Implemented January 2010. The Mission conducted a thorough review of its signatures and signing authorities in collaboration with SMFF. All CBS and the Finance Section now understand their applicable responsibilities.

5.4.26 Implemented November 2009. *** .

5.5 Information Management - Information Technology (IM-IT)

5.5.1 The MCO is responsib le for the IM-IT function with the daily responsibilities performed by an LE-08 Locally Engaged Information Technology Professional (LEITP) who was recently hired. The LEITP also reports to the Client Service Regional Manager (CSRM) located in Nairobi and receives support from the regional Foreign Service Information Technology Professional (FSITP) in Nairobi. The FSITP uses remote assistance where possible, and visits are scheduled as required to deal with urgent matters or routine maintenance and equipment/systems upgrades.

5.5.2 The Inspection Team met with the FSITP during his first trip to the Mission. The Mission had expressed dissatisfaction with the frequency of visits provided by FSITPs in the recent past. The FSITP advised that two visits per year was the normal service standard with more frequent visits as required, if the budget permits. 5.5.3 While the FSITP has had a lot of interaction with the LEITP, he noted that there is less contact with the MCO, who is involved only as required. He indicated that more frequent joint communication with the MCO and the LEITP would be beneficial to discuss and coordinate the Mission's IT requirements.

5.5.4 The MCO meets with the LEITP on an informal basis, but there are no work-plans nor service standards in place. Although the LEITP participates in IM-IT purchase planning on an ad-hoc basis, there is no IT budget established. The development of a work-plan would facilitate the management of the IM-IT Section and should identify regularly scheduled maintenance, back-up procedures, cyclical replacements and equipment disposals. The work-plan would also facilitate the budgeting process by identifying the operational and purchasing requirements.

5.5.5 The FSITP noted that the LEITP does not use Remedy for all support activities. The MCO was not aware of the MCO Portal in Remedy which would allow access to view and monitor the Remedy tickets. While most major activities are recorded in the system, there is still a need to record all activities, even minor service requests. The IT asset inventory is maintained through Remedy.

5.5.6 The Mission has been experiencing problems with the local phone lines and the functioning of MITNET. The Mission also made note that telephone calls cannot be received after the Reception switchboard has closed. The FSITP explained that the telephone problems are related to the local infrastructure. It was further noted that telephone lines were analog and that until Integrated Services Digital Network (ISDN) lines were available in the country, the Mission would be unable to receive direct calls after the switchboard is closed. Interim solutions are possible and have been discussed with the MCO.

5.5.7 The Mission does not have a Business Continuity Plan (BCP) in place to define essential services and the infrastructure required to provide them in the event of a major disruption. ***. Once the appropriate plan and equipment are in place, an emergency exercise should be conducted to ensure the infrastructure is adequate. Testing of the equipment, including the satellite phones, should also be conducted on a regular basis.

5.5.8 The LEITP performs daily, weekly and monthly server back-ups and provides ***.

5.5.9 InfoBank has not been implemented, and the Mission uses the shared drive to store information. There is no IM-IT Committee, and there are no Mission-wide IM standard practices in place. The establishment of such a Committee would be useful to ensure that the IM-IT needs of the Mission are adequately addressed. The Mission does not think it is necessary to form an IM-IT Committee at this time, but did indicate that a shared drive clean-up would be organized. The Mission should establish local IM procedures and appoint an employee with the IM responsibility to provide guidance on IM practices.

5.5.10 It was observed during the Inspection visit that a CBS spouse and dependant had been using a SIGNET computer through the use of a password shared with them by the CBS employee. The sharing of passwords and unauthorized access to departmental systems is a violation of the Network Acceptable Use Policy (NAUP). The issue was raised with the Mission Security Officer (MSO) and HOM who will need to reinforce the restriction of unauthorized spousal and dependent access to computers.

Recommendations to the Mission

5.5.11 The Mission should develop an IM-IT work-plan and IM-IT service standards in consultation with the CSRM and FSITP.

5.5.12 The MCO and LEITP should schedule joint monthly phone calls with the FSITP to discuss and coordinate resolution of IM-IT issues at the Mission and their support requirements.

5.5.13 The LEITP should ensure that all requests are entered into Remedy and the MCO should regularly access Remedy to monitor adherence to the service standards.

5.5.14 The Mission should develop a BCP and ensure that the appropriate IT infrastructure for the ACP is in place. Testing of the equipment should be conducted on a regular basis.

5.5.15 ***.

5.5.16 The Mission should consider the establishment of an IM-IT Committee to discuss Mission IM-IT requirements.

5.5.17 The Mission should establish local IM procedures and appoint an employee for IM responsibility to provide guidance on IM practices.

5.5.18 The Mission must respect the NAUP and ensure that only authorized personnel have access and use Signet computers.

Mission Actions and Timeframes

5.5.11 In progress for 2010. The Mission will work on this under the leadership of the CSRM and FSITP as recommended. 5.5.12 In progress for March 2010. This will be discussed with the FSITP on his next visit and implemented soon after.

5.5.13 In progress. The LEITP has started entering requests into Remedy and this is being monitored by the regional FSITP. The MCO will learn how to access the Remedy system and will follow up as required.

5.5.14 In progress for September 2010. The Mission will review the requirements for a BCP and will work on developing one.

5.5.15 In progress for October 2010. ***.

5.5.16 Implemented November 2009. An IM-IT Committee has been formed and meets regularly. The Committee includes the LEITP and CBS from DFAIT and CIDA.

5.5.17 In progress for July 2010. The LEITP will likely be the employee to take the lead on this, but will consult with a CBS with experience/expertise appointed for this purpose.

5.5.18 Implemented November 2009. The NAUP has been communicated and discussed with all CBS and their spouses. Infractions are no longer an issue.

Appendix A : Mission resources Fact Sheet

Table 3: Mission Resources Fact Sheet of Physical Resources
Physical Resources
AssetsCrown OwnedCrown Leased
Official Residence-1
Staff Quarters-11

Table 4: Financial Information in Addis
Financial Information 2009-2010Program BudgetCommon Services Budget
Total$178 494$1,243,599
Operating Budget (N001)$79,925$939,750
Capital Budget (N005)-$137,075
LES Salaries Budget (N012)$98,569$166,774

Appendix B : Organization Chart

Organization Chart

The structure of the Addis Organization Chart is as follows:

  • Head of Mission EX-03 (1 CBS 4 LES)
    • Managment and Consular AS-05
    • CIDA CO-02
      • 23 LES
      • 2 CBS 4 LES
      • 6 CBS 2 LES

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