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The College argues that Level 4 is appropriate because there is no significant assigned responsibility for skill development. Further, it is the employer's position that the consultancy role played by the incumbents is a better fit at Level 3, as explained in the Note to Raters. In the employer's view, the focus of this factor is on the degree of engagement required in helping others develop skills, and was meant to reflect a lead hand responsibility. I accept that Level 4 is clearly focused on ongoing skill development as indicated in the notes to Raters and the definition of ongoing involvement. And there is an aspect of skill development in portions of the tasks assigned to the incumbents in the PDF such as those set out in the "Duties and Responsibilities" section relating to end-user training and support "until self-sufficiency is attained". However, I find skill development to be a less obvious focus at Level 5, and in the overall purpose statement for the factor set out in the introductory paragraph. That first paragraph notes that the factor is focused on guiding or advising others in the area of the position's expertise, and that the position's actions directly help others in the performance of their work or skill development, but it does not require that it always centre on skill development. More generally, Level 5 appears more focused on ensuring completion of tasks than skill development. These two concepts are related, but not synonymous. In this respect, Level 5 is a more comfortable fit for the Enterprise Information Specialist job, in that the incumbents lead people assigned to a team because of their own subject expertise, who work with the incumbents in order to ensure that the tasks assigned to the project, such as the implementation of the OCAS Admissions module, are completed satisfactorily. Moreover, Level 5 includes the provision of advice, which encompasses the consultancy aspects of the job. In its submissions at the hearing, the College described the core analytical problem for the incumbents as figuring out the technical process necessary to the business need and helping the people involved make it work. I do not find that an inaccurate characterization of the tasks assigned the incumbents, but I find it a better fit at Level 5, than Level 4, as more reflective of the Note to Raters for Level 5 which references using expertise to assist others and ensure that the tasks are completed satisfactorily. The College also argued that the Manual's reference to a requirement to guide others using specific job expertise in the second introductory paragraph for this factor, and in the Level 5 Note to Rater does not apply well to the incumbents' role as business analysts, as they are not employing expertise in the subject matter of IT, as they would be if they were developing software or code themselves. Although I agree that Level 5 would be a good fit for a job which required 10 the incumbent to engage in direct skill development of software developers and ensure tasks were completed, I do not agree that the factor definition is limited to a classic lead-hand role. The incumbents' expertise is specifically in providing the bridging function necessary to articulate the departmental business need in collaboration with the client department and then to translate that into a "doable" system solution for which those with dedicated IT expertise will do the required programming or software development. The fact that the incumbents' expertise is a hybrid one, linking the system and end users, more of a team lead than a lead hand, does not make it any less a function of assisting others and ensuring that the tasks are completed satisfactorily, which is the aim of Level 5 as elaborated in the Notes to Raters. In the result, the rating for this factor should be raised to Level 5. iv. Independence of Action This factor measures the level of independence or autonomy in the position. The Manual provides that the following elements should be considered: - the types of decisions that the position makes - what aspects of the tasks are decided by the position on its own or what is decided by, or in consultation with, someone else, such as the supervisor - the rules, procedures, past practice and guidelines that are available to provide guidance and direction The College rated this factor at Level 4, while the union seeks Level 5. The two levels now in play are described as follows in the Manual: 4. Position duties are completed according to specific goals or objectives. Decisions are made using industry practices and/or departmental policies. 5. Position duties are completed according to broad goals or objectives. Decisions are made using College policies. The following are applicable excerpts from the Notes to Raters: 4. To clarify the differences between levels 4 and 5: Level 4 - the only parameters or constraints that are in place to guide the position's decision-making are "industry practices" for the occupation and/or departmental policies. The position has the autonomy to act within these boundaries and would only need to consult with the supervisor (or others) on issues that were outside these parameters. Level 5 - the only parameters or constraints that are in place to guide the position's decision making are College policies. The position has the autonomy to act within these boundaries and would only need to consult with the supervisor (or others) on issues that were outside these parameters. 11 Mandatory definitions include: Guideline - a statement of policy or principle by which to determine a course of action. Process - a series of activities, changes or functions to achieve a result. Industry Practice - technical or theoretical method and/or process generally agreed upon and used by practitioners to maintain standards and quality across a range of organizations and settings. Policies - broad guidelines for directing action to ensure proper and acceptable operations in working toward the mission. The College justifies its rating for this factor on the basis that the objective of Business Analysis is very specific, i.e. to identify what software will be developed to meet a defined business need. For this process departmental policies such as admissions policy are very important. By contrast, the union claims Level 5 on the basis that there are no defined rules, procedures or past practice available to the incumbents, and that their solutions are unique, such that the highest level rating for this factor is appropriate. Level 4 appears to be a very comfortable fit for this factor as the incumbents are assigned projects with fairly specific goals, such as to implement the OCAS module, or prioritized project lists. Further, the concept of "industry practices" from the Level 4 factor definition fits well with the structured analysis techniques used by Business Analysts, such as mapping current and desired functions onto system functions and gap analysis. Collaboration with other Colleges and the Banner Canadian Solution Centre also fits with the concept of industry practices as one of the important parameters for the incumbents' work. Overall, the solutions and actions of the incumbents are firmly grounded in the policies of the client departments and the parameters of permitted use of Banner. This is not a good match with Level 5, where the only parameters are College policies. The examples given in the union's brief also fit well with Level 4's factor definition and Note to Raters which focus on specific goals and objectives. These examples were resolving OCAS Admissions issues within the constraints of College and departmental policy and making a decision on how to manage offers of admission which assisted the Registrar's Division with applicant statistics and in keeping track of the communication to applicants who did not follow up on their offers of admission. These examples demonstrate specific goals and objectives appropriate to Level 4, and do not correspond well with the "broad goals and objectives" characteristic of Level 5. 12 While it is clear that the incumbents operate fairly autonomously, and that most issues do not require escalation to their supervisor, Level 4 itself describes quite a high level of autonomy for a bargaining unit position. In the result, the College's rating for the factor "Independence of Action" is confirmed. v. Service Delivery The College has rated this factor at Level 3, regular and recurring, while the union seeks Level 4. The two levels of the factor definition read as follows: 3. Tailor service based on developing a full understanding of the customer's needs. 4. Anticipate customer requirements and pro-actively deliver service. Mandatory definitions include: Anticipate - given advance thought, discussion or treatment to events, trends, consequences or problems; to foresee and deal with in advance. Proactive - to act before a condition or event arises. The commentary and Notes to Raters provide as follows: This factor looks at the service relationship that is an assigned requirement of the position. It considers the required manner in which the position delivers service to customers and not the incumbent's interpersonal relationship with those customers. All positions have a number of customers, who may be primarily internal or external. The level of service looks at more than the normal anticipation of what customers want and supplying it efficiently. It considers how the request for service is received, for example directly from the customer; through the Supervisor or workgroup or project leader; or by applying guidelines and processes. It then looks at the degree to which the position is required to design and fulfil the service requirement. Notes to Raters: 1. "Customers" refers to the people or groups of people who receive the services delivered by the position. They can be internal, students or external to the College. 2. Consider the position's overall or primary focus of service. For example, the primary focus may be to deliver or provide information. 3. To clarify the differences between the levels: Level 3 refers to the need to "tailor service". This means that in order for the position to provide the right type of service, he/she must ask questions to develop an understanding of the customer's situation. The customer's request must be understood thoroughly. Based on this understanding, the position is then able to customize the way the service is delivered or substantially modify what is delivered so that it suits the customer's particular circumstances. Level 4 means that the position designs services for others by obtaining a full 13 understanding of their current and future needs. This information is considered in a wider context, which is necessary in order for the position to be able to structure service(s) that meet both the current stated needs and emerging needs. The position may envision service(s) before the customer is aware of the need. The College takes the position that Level 3 is a good fit for the consultancy functions of Business Analysis performed by the incumbents, in that they are helping business groups identify and meet needs rather than going beyond that to proactively design or deliver services. Further, the employer submits that the incumbents do not engage in Level 4 functions which are more about strategic planning. As well, the College emphasizes that it is specifically not intended that the incumbents develop technical solutions for technology's sake, but that they be grounded in articulated business needs. Although the employer acknowledges there may be occasional instances where the incumbents have anticipated client needs, it is the College's position that this is not part of their assigned responsibilities. By contrast, the union contends that the incumbents do design services for current and future needs, and thus their duties meet the standards for a Level 4 rating for this factor. Focusing on the example of the development and configuration of the OCAS Banner module in its brief, the union states that the incumbent must react to or identify desirable business practice modifications that will result in improved efficiency, data integrity or service. Further it is noted that when dealing with the Millennium Admissions Status Report, the incumbents took future needs into consideration by adding report features which would assist in enhancing the information available to Admissions and Associate Deans, as well as managing communication to applicants, elements of which the Admission's staff was not aware until it was added by one of the incumbents. The PDF lists a number of key services, i.e. the implementation of projects communicated via a documented prioritized project list for the EIS Steering Committee, developing methods of maintaining balanced and maximized enrolments via the post-secondary registration system, and providing support to the Registrar's Division. The methods of carrying out the service listed in the PDF include Business Analysis, testing and quality assurance, end-user training and support, and reconfiguring business rules, work processes and/or the system. The duties as assigned in the PDF do not appear to focus on the wider context of emerging, rather than stated needs, or envisioning services before the customer is aware of the need. To the extent the client department articulates future or emerging needs, no doubt the incumbents would work on meeting them. Further, I accept that there are always opportunities to enhance service options, and no doubt occasions when the incumbents think of things before the client department because of their unique positioning as the link between IT and departmental business needs. Nonetheless, the material before me does not persuade me that Level 4 is a better fit 14 than Level 3. The Level 3 description of customizing and modifying service options to suit the internal client's needs is a very comfortable fit for this aspect of the incumbents' duties. In the result, the College's rating for the factor "Service Delivery" is confirmed. vi. Communication The College originally rated this factor at Level 3, but, in its brief, conceded Level 4 as follows: 4. Communication involves explaining and/or interpreting information to instruct, train and/or gain the cooperation of others By contrast, the union seeks Level 5, which reads as follows: 5. Communication involves imparting information in order to obtain agreement, where interests may diverge, and/or negotiation skills to resolve complex situations. Relevant commentary and Notes to Raters read as follows: This factor measures the communication skills required by the position, both verbal and written and includes: - communication to provide advice, guidance, information or training - interaction to manage necessary transactions - interpersonal skills to obtain and maintain commitment and influence the actions of others. Written communications includes letters, reports, proposals or other documents. Notes to Raters: 4. To clarify the differences between "gaining cooperation" in level 4 and "negotiation" in level 5: The assigned communication and interpersonal skills needed at both of these levels are at an extremely high level. "Gaining cooperation" refers to the skills needed to possibly having to move others to your point of view and gaining commitment to shared goals. The incumbent works within parameters determined by the department or College and usually there is a preferred outcome or goal. The audience mayor may not have divergent views. "Negotiation" refers to having the authority to commit to a solution or compromise. An incumbent who communicates at this level also works within broad parameters and the preferred outcome is also broadly defined. The incumbent needs to have the skills/tools to reach an agreement that is then binding on the College. Normally, the audience will have divergent views or opposing objectives. Some people use the word "negotiation" for making arrangements that are relatively straightforward (e.g. negotiating a meeting date). In those situations, that type of communication would typically be considered an exchange of routine information. The use of the word "negotiation" is therefore quite specific in this factor. 15 Explain - provide details or examples to help others better understand the information. Interpret - explain or tell the meaning of; translates; convey the meaning of something. Instruct - to give knowledge to or provide authoritative information within a formal setting such as a workshop or lab environment. Train - impart knowledge and/or demonstrate skills within a formal instructional setting. Negotiate - exchange views and proposals and obtain agreement with the aim of reaching agreement by shifting possibilities, proposals, and pros and cons. Issues are complex and outcome could be contentious. For this factor, it is appropriate to underline that both the levels in issue here are specifically noted by the Manual's Notes to Raters to be at an extremely high level. When looking at Level 5, the one claimed by the union, the Note to Raters emphasizes that "negotiation" has a very specific defined meeting, and observes that the incumbent needs to have the skills/tools to reach an agreement that is then binding on the College, with an audience that will have divergent views or opposing objectives. This is the area in which the material before me discloses no support for the higher level, without which Level 4 is a much better fit, as elaborated below. The PDF has many examples of obtaining cooperation or consent, such as quelling the concerns of an academic group that did not appreciate the necessity of moving from a manual to an automated method of tracking students returning to either in-class or co-op semesters. By contrast, there is no entry of an assigned responsibility in the area of the form provided to list negotiating responsibilities. The examples referred to at the hearing also are a better fit at Level 4. For instance, reference was made for the need to "negotiate" with IT and developers to provide a testing environment within the appropriate timelines for the 7.3 Banner upgrade. There was an agreement, which was not met, and further meetings and discussions ensued to develop a plan to deal with the situation. The only divergence in position noted was as to time lines, and there was no suggestion that the IT staff did not share the same ultimate objective for the upgrade as the incumbents and the client department. This is not the kind of divergence contemplated by Level 5. An example of a contentious issue, another element of Level 5, mentioned by the incumbents was an occasion during web development when all the code was lost, and attempts had to be made to retrieve it and to devise a process to avoid the problem in the future. It would appear that this was an unfortunate incident that had to be dealt with rather than a regular duty of the job to negotiate resolutions of contentious issues in the sense defined by the Manual. As to negotiating agreements to bind the College, the incumbents gave the example of sitting on an inter-College committee to discuss enhancements to Banner. As each College's business and priorities are a bit different, the committee members have to settle the order in which issues will 16 be presented to the Banner Canadian Solutions centre. Pros and cons of each suggested priority are discussed, and if consensus is not reached, voting determines the outcome. This process concerns a very specific issue which does not correspond well to the Level 5 Note to Raters that speaks of negotiation within broad parameters and a broadly defined mandate. Further, the need to navigate differences of opinion and less than completely shared goals within the College, such as departments who are not comfortable with the move to an automated method, is quite comfortably covered by the elaboration of the idea of gaining of cooperation and consent, where parties may have divergent views, in the Note to Raters for Level 4. In the result, I find Level 4 to be the best fit for the factor "Communications". vi. Audio/Visual Effort The employer has rated this factor at level 3, which reads as follows: 3. Extended periods of concentration with the designation "Focus Maintained", while the union seeks Level 3, with the designation "Focus Interrupted". Relevant defined terms are as follows: Focus Maintained - concentration can be maintained for most of the time. Focus Interrupted - the task must be achieved in smaller units. There is a need to refocus on the task at hand or switch thought processes. The manual provides that this factor measures the requirement for audio or visual effort, according to two aspects: a) the degree of attention or focus required, in particular for: - periods of short, repetitious tasks requiring audio/visual focus - periods where task priorities and deadlines change and additional focus and effort is required to achieve the modified deadline b) activities over which the position has little or no control that make focus difficult. This includes the requirement to switch attention between types of tasks and sensory input (e.g. multi-tasking where each task requires concentration). Assess the number and type of disruptions or interruptions and the impact of these activities on the focus or concentration needed to perform the task. For example, can concentration be maintained or is there a need to refocus or change thought processes in order to complete the task. 17 Notes to Raters: 1. The scoring for this factor is different from that used in other factors. One score is selected from the table according to the period of concentration and the column regarding whether focus is interrupted or maintained. If more than one level applies, then select the level with the highest score that would typically apply. 2. Raters must only consider tasks or situations where a higher than usual level of focus or concentration is required. It is important to consider the level of concentration that the task requires and not the incumbent's (in)ability. 3. Concentration means undivided attention to the task at hand. 4. Few interruptions or disruptions generally means that an appropriate level of concentration can be maintained for the duration of the task being performed. Where there are many disruptions, concentration must be re-established and the task completed in smaller units or steps. 5. In determining what constitutes an interruption or disruption, you must first decide whether the "disruption" (e.g. customer requests) is an integral or primary responsibility of the position (e.g. customer service, registration/counter staff, help desk, information desk). Then consider whether these activities are the primary or secondary aspect of the job. For example, if an individual has no other assigned tasks or duties while tending to customer requests, then those requests can not be seen as disruptions. 6. Consider the impact of the disruption on the work being done. For example, can the incumbent in the position pick up where he/she left off or has the interruption caused a disruption in the thinking process and considerable time is spent backtracking to determine and pick up where he/she left off. The Manual's directions include the direction to assess the number and type of disruptions or interruptions and the impact of these activities on the focus or concentration needed to perform the task. The College notes that the manual makes it clear that interruptions alone will not justify a "focus interrupted" rating unless focus cannot be maintained most of the time. Indeed, there are a number of qualifiers in the Manual concerning interruptions which mean that not all interruptions count for point rating. The College asserts that the union has a high standard to meet given all the qualifications on the kind of interruptions counted, i.e. they have to be disruptive, breaking concentration, more than 50% of the time. It is the employer's position that, although the incumbents' concentration gets disrupted sometimes more frequently than others, and sometimes more seriously than others, there is no proof that the interruptions occur for the majority of the time, or that it results in the job being done in smaller chunks than otherwise would be the case as required by the Manual. The PDF indicates two examples, one with the indication that concentration can usually be maintained, and the other not. The first is reading long documentation such as a Banner module in order to gain sufficient understanding to begin implementation, during which phones and e-mail 18 are ignored, which is marked as occurring weekly. The second example involves using a computer to execute test scenarios, and at the same time answer phones to respond to registration application problems. The incumbents indicated that the testing function can take an average of 7 hours a day during certain periods. As well, there is a period of about four weeks each semester during which the incumbents receive many contacts in a day from the registration area. It is unpredictable when the interruptions will occur and how disruptive they are. The percentages allocated to clusters of tasks in the duties and responsibilities section of the PDF provide some global guidance as to the percentage of the job involved in the testing function, 20%, but no guidance is to be obtained from those global percentages as to the nature, frequency, or the impact of the interruptions. Accepting the PDF's indication that the incumbents are unable to control or ignore interruptions during the 20% of the time that they are testing, the material before me gives no other guidance as to whether the interruptions even for that activity occur so that concentration is unable to be maintained most of the time. Further, there was no suggestion that testing has no natural break points during which interruptions would not normally disrupt the work in the manner required by the Notes to Raters. In these circumstances, I am not persuaded that the incumbents are not able to maintain concentration a majority of the time. As well, the Manual directs that only tasks which require a higher than usual level of focus are to be considered for this factor. Overall, the information at the hearing and in the briefs gives the impression that almost everything the incumbents do requires a fairly high level of focus, so it is difficult to make a finding that that the tasks mentioned here are of a higher than usual level of concentration. In the result, the College's rating at Level 3, focus maintained, is confirmed. * * * To summarize, the College's ratings for the factors Analysis and Problem Solving, Independence of Action, Service Delivery, Communication and Audio-Visual Effort are confirmed, while the rating for Planning and Coordinating and Guiding and Advising should be raised to Level 4 and 5 respectively. This brings the point rating to 711, which falls into Payband K. The arbitration data sheet reflecting this is attached to this decision. In the result, the grievance is allowed in part. The job's rating should be raised to Payband K. will remain seized to deal with any issues of implementation of this award which the parties are 19 unable to resolve themselves, including any effect on the recently retired incumbent Bonnie Holdsworth. Dated at Toronto this 28th day of May, 2009. Original Signed by Kathleen G. O'Neil Kathleen G. O'Neil, Single Arbitrator 20 21