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Section I – Overview
Chief Electoral Officer's Message
The 2007–2008 fiscal year was both interesting and challenging for Elections
Canada, and in some respects unprecedented. During this period, we worked to
enact the provisions of bills C-31 and C-18, which require electors to prove
their identity and address when voting. The new requirements represent
significant changes for electors and the way the electoral process is
administered. We conducted seven by-elections under the new voter identification
regime introduced by these bills.
We also engaged in a significant, cross-country training initiative to inform
political entities about the new Electronic Financial Return software and how to
use it, as well as about the political financing rules that came into effect on
January 1, 2007, with the passing of the Federal Accountability Act.
This work was accomplished in the context of a minority government, with no
fewer than eight confidence votes during the fiscal year. The resulting
uncertainty meant that we needed to maintain the highest level of readiness,
both in the field and in Ottawa, to conduct a federal general election at any
time.
The past fiscal year brought considerable attention to Elections Canada,
particularly with regard to its regulatory role in the areas of political
financing, acceptable pieces of identification for voting and compliance. This
heightened scrutiny tested the resilience and vigilance of the agency. We had to
exert significant effort, mostly to demonstrate that we were delivering our
statutory mandate in an independent, fair, transparent and effective manner, in
compliance with the provisions of the Canada Elections Act.
To ensure we could continue meeting these challenges and new ones that are
sure to come our way, we set out in 2007 to develop a five-year strategic plan
that would identify our long-term strategic priorities and the key enabling
functions required to achieve them. The Strategic Plan 2008–2013 was
completed in September 2007. It will guide us as we strive to continuously
improve the way we fulfill our mandate.
During this period, we prepared a submission to the Treasury Board of Canada,
seeking to increase our annual funding so that we will be able to expand our
base of indeterminate employees. More such employees are required to increase
our capacity to continue implementing significant electoral and legislative
reforms, improving our information technology infrastructure, and carrying out
initiatives resulting from the Federal Accountability Act.
This reporting period presented significant challenges. We will continue to
work closely with electors, parliamentarians, political parties and other
stakeholders to fulfill our strategic priorities, serve the electoral needs of
Canadians and maintain their trust in the federal electoral framework.
____________________________
Marc Mayrand
Chief Electoral Officer of Canada
Management Representation Statement
I submit, for tabling in Parliament, the 2007–2008 Departmental Performance
Report (DPR) for the Office of the Chief Electoral Officer.
This document has been prepared based on the reporting principles contained
in the Guide to the Preparation of Part III of the 2007–2008 Estimates;
Reports on Plans and Priorities and Departmental Performance Reports:
- It adheres to the specific reporting requirements outlined in the
Treasury Board Secretariat guide.
- It is based on the agency's strategic outcome and Program Activity
Architecture, approved by the Treasury Board.
- It presents consistent, comprehensive, balanced and reliable
information.
- It provides a basis of accountability for the results achieved with the
resources and authorities entrusted to the agency.
- It reports finances based on approved numbers from the Estimates and the
Public Accounts of Canada.
____________________________
Marc Mayrand
Chief Electoral Officer of Canada
Strategic Outcome and Program Activity
Architecture
Elections Canada has a single strategic outcome supported by the following
Program Activity Architecture:
Summary Information
Raison d'être
The Chief Electoral Officer is an independent, non-partisan Officer or Agent
of Parliament. More information on Officers of Parliament can be obtained at:
www2.parl.gc.ca/Parlinfo/Compilations/OfficersAndOfficials/OfficersAndOfficialsOfParliament.aspx?Menu=HOC-Officiers
The Office of the Chief Electoral Officer is commonly known as Elections
Canada. The mandate of this agency is to:
- be prepared at all times to conduct a federal general election,
by-election or referendum
- administer the political financing provisions of the Canada
Elections Act
- monitor compliance and enforce electoral legislation
- conduct voter education and information programs
- provide support to the independent commissions in charge of adjusting
the boundaries of federal electoral districts following each decennial
census
- carry out studies on alternative voting methods and, with the approval
of Parliament, test electronic voting processes for future use during
electoral events
Elections Canada's responsibilities include ensuring that all voters have
access to the electoral process, providing information and education programs to
citizens about the electoral system, maintaining the National Register of
Electors, enforcing electoral legislation, and maintaining readiness to conduct
electoral events.
Its mission is to ensure that Canadians can exercise their democratic rights
to vote and be a candidate. Its vision is to provide an accessible electoral
framework that Canadians trust and use.
The Office of the Chief Electoral Officer is funded by an annual
appropriation that provides for the salaries of permanent full-time staff, and
by the statutory authorities contained in the Canada Elections Act, the
Referendum Act and the Electoral Boundaries Readjustment Act. The
statutory authorities provide for all other expenditures, including the costs of
electoral events, reimbursements of election expenses to eligible candidates and
parties, quarterly allowances for eligible political parties, redistribution of
electoral boundaries and expenses incurred by the Commissioner of Canada
Elections or on behalf of the Commissioner in connection with the enforcement of
the legislation. There are two further statutory items: the salary of the Chief
Electoral Officer and contributions to employee benefit plans.
The statutory authority ensures that Elections Canada has the capacity to be
ready at all times to conduct an electoral event. It also serves to recognize
Elections Canada's independence from the government and from the influence of
political parties. It is a critical component in maintaining the integrity of
the democratic process in Canada.
Financial Resources ($ thousands)
2007–2008 |
Planned Spending |
Total Authorities |
Actual Spending |
$104,422 |
$122,185 |
$120,740 |
Human Resources (full-time equivalents (FTEs))
2007–2008 |
Planned |
Actual |
Difference |
387 |
423 |
36 |
Agency Priorities
Name
|
Type
|
Performance Status
|
1. Electoral event delivery, political financing, and compliance and
enforcement |
Ongoing
|
Successfully met |
2. Electoral event readiness and improvements |
Ongoing
|
Successfully met |
3. Public education and information, and support for stakeholders |
Ongoing
|
Successfully met |
4. Electoral boundaries redistribution |
Ongoing
|
Redistribution was last completed in 2003–2004. It will begin again once we
receive the 2011 census return. However, we will begin planning activities for
this priority starting in 2008–2009. |
Elections Canada also worked on a number of programs and services related to
internal operations and administration, identified in the 2007–2008 Report
on Plans and Priorities under the heading of "Other Programs and Services."
Program Activities by Strategic Outcome
The following chart summarizes Elections Canada's four key programs and
corporate services or program enablers that complement our single strategic
outcome.
|
Expected Results
|
Performance Status
|
2007–2008
($ thousands)
|
Contributes to
|
Planned Spending
|
Actual Spending
|
Strategic Outcome: an electoral process that contributes to
fairness, transparency and accessibility for all participants, in compliance
with the legislative framework. |
Key Program 1: Electoral event delivery, political financing, and compliance
and enforcement |
- Delivery of high-quality elections, by-elections and referendums at all
times
- Fair, efficient and transparent administration of the political
financing provisions
- Effective compliance and enforcement programs in accordance with legal
requirements
|
Successfully met (see details) |
34,251
|
42,249
|
Priority 1 |
Key Program 2: Electoral event readiness and improvements |
Readiness to deliver electoral events whenever they may be called |
Successfully met (see details) |
59,344
|
71,515
|
Priority 2 |
Key Program 3: Public education and information, and support for stakeholders |
Timely and high-quality electoral public education and information programs |
Successfully met (see details) |
10,827
|
6,976
|
Priority 3 |
Key Program 4: Electoral boundaries redistribution |
Efficient and non-partisan administration of the Electoral Boundaries
Readjustment Act |
This cyclical activity was last completed in 2003–2004. Planning for this
priority resumes in 2008–2009. |
0
|
0
|
Priority 4 |
Corporate services and enablers |
Provision of support and enabling activities for the four mandated priority
functions |
Successfully met (see details) |
Included in the above |
Included in the above |
All four mandated priorities |
Elections Canada's Report on Plans and Priorities (RPP) for
2007–2008 guided the agency's activities during this reporting period. The plans
and priorities were directed by our strategic outcome, and were also influenced
by Parliament's legislative initiatives, as well as the requirement to conduct
two sets of by-elections.
In the past fiscal year, Elections Canada was successful in fulfilling all of
its mandated priorities and in addressing the actions set out in the 2007–2008
RPP.
The highlights include:
Electoral Event Delivery, Political Financing, and Compliance and
Enforcement
Within this mandated priority, Elections Canada achieved the following major
deliverables:
- On September 17, 2007, the agency administered by-elections in the
electoral districts of Outremont, Roberval–Lac-Saint-Jean and
Saint-Hyacinthe–Bagot. On March 31, 2008, the Chief Electoral Officer
submitted to the Speaker of the House of Commons his report on the
administration of these by-elections, in accordance with subsection 534(2)
of the
Canada Elections Act.
Implemented successfully in these by-elections were the provisions of
Bill C-31 (which came into force in July 2007), requiring electors to prove
their identity and address.
The report for the by-elections is posted on the Elections Canada Web
site at:
- Elections Canada successfully administered four by-elections on
March 17, 2008, in the electoral districts of Desnethé–Missinippi–Churchill
River, Toronto Centre, Vancouver Quadra, and Willowdale. Implemented in
these by-elections were the provisions of both bills C-31 and C-18. (Bill
C-18 came into force in December 2007. It allows an elector to establish his
or her residence by presenting a piece of identification that is consistent
with information related to the elector or voucher that appears on the list
of electors.)
The Chief Electoral Officer's report on this event is an action item for the
agency for 2008–2009.
- All political entities were informed of the new political financing
rules in the Federal Accountability Act, which came into force on
January 1, 2007.
- The agency completed a review of 93 percent of the 39th general election
returns. Reimbursements of election expenses were issued to eligible
candidates, as were payments of audit subsidies to auditors.
- The Office of the Commissioner of Canada Elections assessed,
investigated and resolved complaints about contraventions of the Canada
Elections Act related to the 38th and 39th general elections and two
sets of by-elections (in seven electoral districts) in 2007–2008.
- Prosecutions related to the 38th general election were completed. One
prosecution relating to the 39th general election was ongoing and was being
conducted by the Director of Public Prosecutions, who is now responsible for
the prosecution of offences under the Canada Elections Act.
Electoral Event Readiness and Improvements
Within this mandated priority, Elections Canada achieved the following
deliverables:
- The provisions of bills C-31 and C-18 establishing a new voter
identification regime were assessed and implemented over the course of the
seven by-elections held in 2007–2008.
Some of the changes to improve the accuracy of the National Register of
Electors were also implemented, including the addition of an explicit
confirmation of Canadian citizenship to the 2007 income tax form. This will
allow new electors, especially youth, to be added directly to the Register.
The changes will begin to yield results in fall 2008.
The statutory report on the September 2007 by-elections (posted on the
Elections Canada Web site) contains details of the implementation of the
provisions of Bill C-31.
- A more advanced, automated Quality Measurement System (QMS) was
implemented to assist in managing the National Register of Electors. The
system allows the agency to prepare quality estimates more efficiently.
Using QMS information, Elections Canada can accurately inform stakeholders
about the quality of data in the Register.
- New geographic tools and maps were created to facilitate the grouping
and location of advance polling districts and polling sites, and to help in
determining an elector's electoral district and polling division. These
changes ultimately make voting more accessible for Canadians and improve the
administration of polling station activities for election officials.
- Approximately 10,100 polling divisions, 800 mobile polls and 2,070
advance polling districts were revised on the basis of recommendations
received from returning officers. The aim was to reduce waiting times
resulting from high voter turnout.
- Returning officers were appointed and trained in accordance with the
provisions of the Federal Accountability Act. During the reporting
period, 24 returning officers resigned. Another six positions had fallen
vacant before the start of the fiscal year. To fill all the vacancies, 30
returning officers were appointed. Of these, 27 were trained at Elections
Canada in Ottawa.
- An amendment was proposed to the Tariff of Fees for election workers. It
suggested rates intended to reflect the increasing degree of responsibility
and complexity required for specific management positions, and to provide
adequate remuneration for all other positions. The proposed rates will allow
for the continued hiring and retention of a sufficient number of qualified
persons for elections, while reducing the costs associated with hiring and
training, and facilitating the implementation of process innovations and
improvements.
Public Education and Information, and Support for Stakeholders
Within this mandated priority, Elections Canada achieved the following
deliverables:
- The Community Relations Officer Program was expanded to include any
electoral district with a post-secondary institution. This gave the program
greater scope, presence and visibility. The result was improved transmission
and availability of electoral information for young electors.
- The Chief Electoral Officer appeared before Parliament several times
between April 1, 2007, and March 31, 2008, to give technical advice and
answer questions about several legislative initiatives. Transcripts for all
appearances are posted on the Elections Canada Web site at www.elections.ca.
Click on Media > Statements and Speeches.
Corporate Services and Enablers
Within this priority, Elections Canada achieved the following deliverables:
- A new strategic plan was developed to establish our priorities for the
next five years and to respond to opportunities and challenges of the
environment in which we operate. This was accompanied by internal governance
changes, which included the adoption of a new business planning cycle and
process. To better support the Chief Electoral Officer and empower managers,
three new committees were created: the Regulatory and Compliance Committee,
the Electoral Readiness Committee, and the Information Management and
Technology Committee.
- As a result of a broadened mandate and the need to stabilize operations,
the agency made a submission to the Treasury Board of Canada, seeking to
increase our annual funding so that we will be able expand our base of
indeterminate employees. More such employees are required to increase our
capacity to address changes introduced to the political financing regime in
2004 and other recent changes resulting from the 2006 Federal
Accountability Act, to support the renewal of our information
technology (IT) environment, and to enable the agency to deal with other
urgent and mission-critical pressures.
- Amendments to the delegations of authorities within Elections Canada
were proposed to ensure appropriate operational management and financial
controls of the agency's decision-making process. The amendments ensure that
controls contribute to effective program delivery and ensure sound
accountability in the exercise of authority.
- A risk-based internal audit plan for 2008–2009 through 2010–2011 was
developed to ensure appropriate coverage of the activities of Elections
Canada.
- An independent Audit Committee was established to provide guidance to
the Chief Electoral Officer on governance, risk management, control, audit
and reporting practices.
- Final testing of new hardware and software for local offices was
completed. The new technology was successfully deployed in field offices for
the March 2008 by-elections. The upgrade allowed the agency to continue
supporting the electoral process with existing field systems. It also
positioned the agency to support the new systems to be delivered under the
Information Technology Renewal initiative.
These actions were consistent with our established plans and priorities. By
accomplishing them, the agency was able to continue fulfilling its strategic
outcome during the reporting period.
The following operating factors influenced the performance of the agency
during this reporting period.
New Legislation
Elections Canada must continually monitor and respond to legislative
initiatives and judicial decisions. Of particular significance were the changes
implemented in 2007–2008 resulting from the passage of the Federal
Accountability Act (S.C. 2006, c. 9); these included modifications to
political financing rules (rules governing gifts), as well as the application of
the Access to Information Act to Elections Canada. In addition,
legislative changes introduced by Bill C-31, An Act to amend the Canada
Elections Act and the Public Service Employment Act (S.C. 2007, c. 21),
concerning new voter identification procedures, were implemented in the
by-elections held on September 17, 2007, and March 17, 2008. Further changes
resulting from the passage of Bill C-18, An Act to amend the Canada
Elections Act (verification of residence) (S.C. 2007, c. 37) were
implemented during the March 17, 2008, by-elections.
A detailed description of new legislative initiatives and judicial decisions
is provided in Section IV, "Other Items of Interest."
Strategic Plan 2008–2013
In fall 2007, Elections Canada completed the development of a strategic plan
to guide its activities through 2013. The plan established three strategic
objectives (trust, accessibility and engagement) and identified four key
enablers (human resources, information technology, governance and
communications). All are essential for the agency to deliver our mandate and
achieve our strategic outcome.
Among high priorities for 2008–2009 are the first steps in implementing the
Strategic Plan and the long‑term action plan for each enabler.
Risks and Challenges
- The length of Elections Canada's business cycle continues to vary in the
ongoing situation of minority governments. The uncertainty makes planning
and delivery challenging. We must continually monitor parliamentary and
political events and trends so that we can take into account circumstances
that might affect our electoral readiness and preparations for electoral
events. Maintaining a constant state of readiness also imposes a strain on
the organization. The pressure has increased with the succession of minority
governments, the heavier volume of work resulting from closely spaced
general elections, recent far-reaching electoral reform and further proposed
significant changes to the electoral process.
- The regulatory regime for electoral events has become highly complex,
imposing demands that are daunting. The result is that many individuals
hesitate to become financial or official agents. In fact, many entities find
the regulatory burden excessive. Nonetheless, the regulatory framework and
the transparency it provides are crucial in supporting public trust in
political entities. The regulatory framework for political financing is
expected to continue to evolve significantly and rapidly, presenting new
responsibilities and challenges for Elections Canada. The agency does not
set regulations. However, through administrative decisions such as the
adoption of interpretations and positions, it sets precedents on regulatory
matters that affect political entities. In performing this role, Elections
Canada must first ensure that the administrative requirements are tailored
and smart, and that they facilitate compliance, provide for an efficient
process, and do not create undue difficulties for political entities in
carrying out their core activities. At the same time, the agency must
continue to ensure a level of integrity in the system, warranting ongoing
public confidence.
- As a result of successive electoral reforms, Elections Canada's role in
regulating some aspects of the electoral process has grown considerably,
particularly in connection with acceptable pieces of identification for
electors and political financing. This has necessarily increased the
regulatory presence of the agency requiring us to divert resources from
other activities. Therefore, we may need to realign priorities.
- Significant investments are needed now to renew our information
technology (IT) infrastructure; we had no choice but to stretch its lifespan
to meet our ongoing readiness goals in the context of minority governments.
The existing IT environment has reached the limits of its capability and
cannot be augmented further to meet new and ongoing requirements. The
situation affects every aspect of the IT environment. To address this risk,
an IT renewal initiative has begun and will, over a period of years, replace
our current infrastructure with one better suited to our needs.