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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:

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


Agency Performance

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.

1. Performance Highlights

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.

2. Agency Context and Operating Environment

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.