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Minister's Message

As Minister of the Atlantic Canada Opportunities Agency (ACOA), I have witnessed first-hand the Agency's outstanding delivery on its mandate to support and strengthen the Atlantic Canadian economy.

I am proud of ACOA's many successes and of the contributions the Agency is making to the Atlantic region. I am especially proud that the Agency's policies and programs are helping Atlantic Canadian businesses and communities to negotiate the challenges brought on by the current global economic situation.

As demonstrated in this report, ACOA is helping to drive innovation in the region; it is also helping businesses to expand their operations, hone their business skills, and enter into and expand exporting activity. This makes them more productive and competitive than ever. It is clear that ACOA continues to deliver on its commitment to ensuring the long term success and prosperity of Atlantic Canadians.

ACOA is playing a central role in advancing the Atlantic Gateway initiative, working with key partners to evaluate and prioritize projects that will capitalize on Atlantic Canada's potential as a reliable, safe and efficient international trade gateway to North America. The Agency is working with public and private stakeholders to develop a cohesive regional approach that will help to capture the Atlantic Gateway's significant economic potential.

Our government recognizes the valuable role ACOA plays in building a modern, competitive and productive Atlantic Canadian economy. This is why we announced, in Canada's Economic Action Plan, that the Agency would deliver the Atlantic components of the $1-billion Community Adjustment Fund and the $500-million Recreational Infrastructure Canada program, which are designed to help create jobs and support communities during the current economic downturn. Results from these two new initiatives will be reported in the Agency's Departmental Performance Report next year.

Through these initiatives, and others like them, our government is providing unprecedented assistance to individuals, businesses and communities affected by the current economic situation. We are also working to lay the foundation for future economic growth. ACOA is key to helping deliver on these commitments in Atlantic Canada.

 

 

 

 

 

 

Minister of State's Message

As Minister of State for the Atlantic Canada Opportunities Agency, I am pleased to present the Agency's Departmental Performance Report for 2008-2009.

I am proud that ACOA is continuing to play such a strong role in helping to grow Atlantic Canada's economy. In fact, between 2003 and 2008, every dollar the Agency spent in direct support of business resulted in over $7 in GDP gains.

ACOA's core activities, Enterprise Development, Community Development, and Policy, Advocacy and Coordination are essential to its ongoing success. These initiatives enable the Agency to develop multi-faceted approaches to supporting long-term sustainable growth in Atlantic Canada.

The Agency's Enterprise Development activity helps to secure jobs and expand trade in Atlantic Canada by encouraging the region's businesses and industry to innovate, improve business skills, and market themselves on the global stage.

ACOA recognizes that the Atlantic economy is diverse, and that its communities face their own unique challenges and opportunities. The Agency's programs and policies help to provide affected communities, especially those dependent on resources or a single industry, with the tools needed to build new economic activity.

The Agency continues to work with its partners to encourage federal initiatives that respond to the needs and opportunities of the region, and to coordinate federal policies and programs within the region in order to ensure a cohesive approach.

As underscored by the Agency's 2008-2009 Departmental Performance Report, ACOA continues to be a powerful advocate for Atlantic Canada. I am proud to lead the Agency as it supports the region through the current global economic challenges so that, as conditions improve, our people and our communities will be well positioned to compete, to innovate and to create.

 

 

 

 

 

 

Section 1 : Agency Overview

Raison d'être and Responsibilities

Established in 1987, ACOA is the federal government department responsible for the government's economic development efforts in the provinces of New Brunswick, Prince Edward Island, Nova Scotia, and Newfoundland and Labrador.

ACOA's head office is in Moncton, New Brunswick. The Agency has 36 regional and field offices in cities and towns across the four Atlantic Provinces. These are led by regional vice presidents located in each provincial capital, who are responsible for the delivery of ACOA programs. Through its Ottawa office, ACOA ensures that Atlantic Canada's interests are reflected in both the policies and programs developed by other departments and agencies of the federal government.

Although the Agency's policies and program tools have changed since its inception, the overall goal remains constant. ACOA helps the Atlantic region to realize its full economic potential in terms of productivity, competitiveness and growth.

With a balanced approach, this is achieved by identifying and addressing structural challenges in the economy, helping communities and businesses to overcome barriers, and finding new opportunities for growth. It is also within this context that ACOA is committed to helping the region make the transition to a more innovative, productive and competitive economy.

Strategic Outcome and PAA

The diagram below illustrates ACOA's new Program Activity Architecture (PAA). Program activities and program sub-activities are aligned to its strategic outcome of a competitive Atlantic Canadian economy. It reflects the results of policy research and analysis, periodic review of program effectiveness, ongoing dialogue with stakeholders in the region, and the priorities and directions of the Government of Canada.

ACOA's 2009-2010 PAA

Descriptions of each of ACOA's program activities can be found in Part II of the Main Estimates document on the website of the Treasury Board of Canada Secretariat at http://www.tbs-sct.gc.ca/est-pre/20092010/me-bd/ACOA-APECA-eng.asp.

Strategic Outcome	Program Activities	Program Sub-Activities
A competitive Atlantic Canadian economy (1.0)	Enterprise Development (1.1)	Innovation (1.1.1) Entrepreneurship and Business Skills Development (1.1.2) Trade (1.1.3) Investment (1.1.4) Financing Continuum (1.1.5)
	Community Development (1.2)	Community Mobilization (1.2.1) Community-based Business Development (1.2.2) Community Investment (1.2.3) Infrastructure Programming (1.2.4)
	Policy, Advocacy and Coordination (1.3)	Policy (1.3.1) Advocacy (1.3.2) Coordination (1.3.3)

PAA Crosswalk

In May 2008, ACOA sought and received Treasury Board approval to amend its PAA. The new PAA provides for improved efficiency, reflects relevance, and concisely articulates the long-term and enduring benefit of the Agency's programming to Canadians. It allows for more efficient performance measurement, while maintaining the strategic focus and usefulness of the PAA in allocating and managing resources and reporting the Agency's performance.

The most significant revision is the change to one strategic outcome supported by three program activities, as compared to the 2007-2008 PAA, which identified three strategic outcomes supported by seven program activities. Further refinement of the PAA has reduced the program sub-activities by approximately half. While the scope of the Agency's activities has not changed, the new PAA provides more streamlined information to parliamentarians and Canadians on spending and results. A crosswalk to the sub-activity level may be found on ACOA's website at http://www.acoa- apeca.gc.ca/English/publications/ParliamentaryReports/Pages/PerformanceReportforthePeriodEndingMa rch31_2009_other.aspx.

This performance report follows the structure of the Agency's 2009-2010 PAA.
 

Old PAA (2008-2009)	New (PAA 2009-2010)
Strategic Outcome(s)
1. Competitive and sustainable Atlantic enterprises, with emphasis on those of small and medium size 2. Dynamic and sustainable communities for Atlantic Canada 3. Policies and programs that strengthen the Atlantic economy	1. A competitive Atlantic Canadian economy
Program Activities
1.1 Fostering the development of institutions and enterprises, with emphasis on those of small and medium size 2.1 Fostering the economic development of Atlantic communities 2.2 Special Adjustment Measures 2.3 Infrastructure Programming 3.1 Policy 3.2 Advocacy 3.3 Coordination	1.1 Enterprise Development   1.2 Community Development   1.3 Policy, Advocacy and Coordination

Summary of Performance

The following tables provide a summary of ACOA's financial resources, human resources and performance summary for 2008-2009.

 

Financial and Human Resources
 

Financial Resources ($ millions)
Planned Spending	Total Authorities	Actual Spending
328.2	347.5	341.4
Human Resources (Full-time Equivalents)
Planned	Actual	Difference
757	723	34

Agency planned spending of $328.2 million was augmented by $19.3 million during the year, comprising $10.7 million in transfer payments and $8.6 million in operating costs. Actual spending of $341.4 million included $246.8 million in transfer payments and $94.6 million in operating costs, resulting in a surplus of $6.1 million, of which $3.1 million will be available in 2009-2010 through the operating budget carry forward.

Agency utilization of human resources decreased to 723 full-time equivalents (FTEs), less than 0.5% difference from the previous year, when actual FTE utilization had been 726. Although planned utilization was 757 FTEs, changes in staffing plans and other adjustments to operational requirements resulted in lower utilization, and variances were experienced in most activities.
 

Performance Summary

 

Strategic Outcome: A competitive Atlantic Canadian economy

Performance Indicator	Five-year Target (2004-2005 to  2008-2009)	2008-2009 Performance
Increase in Atlantic GDP for every dollar of ACOA expenditure in direct support of business	$4 to $5	$7.20 (as reported in ACOA's Five-Year Report to Parliament 2003-2008)

Summary of Achievements against 2008-2009 Priorities

The Agency set a number of priorities for 2008-2009 and, on the whole, achieved the results it planned while dealing with the challenges of the economic crisis in 2008.

• Increasing Atlantic Canada's gross domestic product, a recurring five-year target, exceeded the expected results. Over the last five-year reporting period, direct support to business for commercial projects produced increases of over $7 in GDP gains for every dollar of ACOA expenditure.

• Estimates based on simulations by ACOA and the Conference Board of Canada economic models indicated that, over a five-year period, real GDP is $1.2 billion higher than it would have been in the absence of ACOA's expenditures in direct support of small and medium-sized businesses, creating positive impacts for Atlantic Canada.

• The Agency met expected results in raising the level of research and development (R&D) and innovation, fundamental to increasing Atlantic Canada's competitiveness and closing the productivity gap with the rest of the country. In 2008-2009, ACOA invested $91.4 million toward innovation projects, enabling advancements in research and development, the acquisition of new technologies, and increasing the likelihood of commercialization success.

• The Agency continued to focus efforts on international trade and the Atlantic Gateway, and align them with government strategies and initiatives. In 2008-2009, the Agency successfully repositioned its efforts to align its work with national priorities outlined within the Global Commerce Strategy. Through this alignment, the Agency has capitalized on new priorities and emerging opportunities, while continuing to provide value-added trade programming that increases the productivity and competitiveness of SMEs within the region.

• Progress continued in ACOA's work to advocate the interests of Atlantic Canada in development and implementation of national economic policy, program, and projects. This was evidenced by the industrial benefit opportunities realized for Atlantic Canadian industry in major federal procurement projects. In 2008-2009, ACOA's efforts were instrumental in leveraging $937 million in industrial regional benefit commitments to Atlantic Canada on federally contracted procurements.

• While the economic crisis in 2008 resulted in a more focused approach to federal interventions, the Agency effectively ensured that the measures included in Canada's Economic Action Plan, the federal government's economic stimulus package, were responsive to the economic challenges of Atlantic Canada. Of particular importance were ACOA's efforts to ensure that resource industries and resource dependent communities in the region were able to fully participate in the Community Adjustment Fund, that Atlantic Canadian communities could benefit from the Recreational Infrastructure Canada program, and that Atlantic Canada's renewable energy potential was advanced with support from the Clean Energy Fund.

	($ millions)					Alignment  with Government of Canada  Outcomes
Program Activity	2007-08 Actual Spending	2008-09
		Main Estimates	Planned Spending	Total Authorities	Actual Spending
Enterprise Development	213.6	214.2	214.2	219.3	215.0	Strong Economic Growth
Community Development	146.1	101.8	101.8	114.3	113.1
Policy, Advocacy and Coordination	11.9	12.2	12.2	13.9	13.3
Total	371.6	328.2	328.2	347.5	341.4

 

Contribution of Priorities to Strategic Outcome

The following table discusses the progress of ACOA’s operational and management priorities in reaching its strategic outcome, “A Competitive Atlantic Canadian Economy.”

Operational Priorities	Type: Previously committed to (priorities have been in effect for the last one or two years) Status: Successfully met
Productivity	ACOA builds innovation capacity in the region by providing funding for R&D projects and for the adoption/adaptation of leading-edge technologies that lead to enhanced productivity. In 2008-2009, the Agency invested more than $60 million in R&D projects and over $12 million in technology adoption/adaptation projects. The Agency also invested more than $7.5 million toward improving business competitiveness through a number of activities such as training, hiring skilled personnel, and improving productivity and/or quality.
Innovation and commercialization	The Agency has placed an increased focus on commercialization by supporting R&D projects that have the best probability for commercial success, as well as by identifying and pursuing commercialization within its existing portfolio of projects. In 2008-2009, the Agency invested $1.7 million to develop a pan-Atlantic commercialization mentoring and consulting service to assist Atlantic Canada based SMEs, universities, research institutions and other strategic partners.
Balanced approach in rural/urban development	Atlantic Canada is characterized by a large rural population, requiring a balanced approach in support of development opportunities in both rural and urban communities. Through continued investment in its network of community economic development partner organizations, as well as direct investment in infrastructure and other community projects, and investment in Aboriginal and Francophone minority communities, ACOA's support built capacity in both rural and urban communities throughout Atlantic Canada.
Targeted advocacy areas	ACOA continued its advocacy efforts to ensure that Atlantic Canada's needs were reflected in federal policies, programs and regulations. In 2008-2009, ACOA's advocacy efforts helped leverage $937 million in industrial and regional benefit commitments for Atlantic Canada, helping to build a strong and thriving aerospace and defence industry in the region. ACOA also advocated for the interests of Atlantic Canada in other key horizontal and sectoral files, including infrastructure programming, federal facilitation of Atlantic Canada's energy potential, and federal investments in science and technology.
Trade and Atlantic Gateway	In response to the priorities stated in the Government of Canada's Global Commerce Strategy and the Americas Strategy, ACOA increased its efforts by contributing to at least four initiatives (e.g. leading missions and research) linked to emerging markets such as Chile and India. The Agency also continued to build connections in existing markets (e.g. the U.S.) for export, investment and technology opportunities. The Agency continued its coordination efforts with its federal and provincial partners to develop an Atlantic Gateway Strategy. In concert with government partners and industry stakeholders, the Agency also established a pan-Atlantic marketing plan to promote the Atlantic Gateway in international markets.

 

Management Priorities	Type: Previously committed to (priorities have been in effect for the last one or two years) Status: Successfully met
Governance and accountability	During its assessment of departmental management accountability frameworks, Treasury Board Portfolio recognized the Agency for its strong performance in several key management areas, such as:   Effectiveness of extra-organizational contribution Quality of analysis in Treasury Board submissions Extent to which the workforce is productive, principled, sustainable and adaptable Effectiveness of information technology management Alignment of accountability instruments Furthermore, in regard to governance and accountability, an ACOA-specific, multi-year strategy for the Management Accountability Framework was approved by ACOA's Executive Committee to address the five Agency key areas of management, i.e. risk, citizen focused service, finance control, values and ethics, information technology and information management.
Public Service Renewal	ACOA has developed an aggressive, fast-paced response to Public Service Renewal to emphasize the human resource component of its integrated business and human resource plan. Excellence (being the best you can be at your job) and development (preparing to compete for bigger responsibilities in the public service) are the themes for ACOA's Public Service Renewal strategy. While the genesis for the strategy is the business needs of the organization, it reflects the feedback received from employees regarding the challenges confronting the Agency in meeting its goals for Public Service Renewal. ACOA has actively engaged all senior executive teams in promoting, encouraging and supporting learning plans for all employees.
Risk management	The Agency has appointed a full-time chief risk officer and has set up a governance regime for risk management. ACOA has been independently recognized for its robust risk rating system, which is applied to Agency clients and projects. Internal services have been reviewed for exposure to risk, and associated mitigation measures are monitored by senior management. A Corporate Risk Profile, supported by a comprehensive Risk Register has been completed and risk tools are in place.
Values and ethics	The Public Service Employee Survey results with regard to values and ethics at the Agency have been positive. Since the introduction of the Public Service Code of Values and Ethics in September 2003, ACOA has taken many concrete actions to ensure that employees are aware of the code. However, in an effort to continue to improve in this important area, preliminary consultations have been held regarding the creation of a Code of Conduct for the Agency. In addition, ACOA has recently formed a steering committee to develop a values and ethics strategy for the Agency. The committee has held meetings and reviewed best practices of other organizations, with a view to developing a strategy and implementing a work plan.
Business and human resource integration	ACOA is well positioned in terms of its integration of human resources and business planning. The Agency contributed to the initiative by sharing its practices with other departments in collaboration with the Privy Council Office and the Canada School of Public Service. ACOA's planning framework comprises a number of integrated plans:   Five-year integrated strategic plan Three-year strategic human resources plan Five-year employment equity action plan Annual integrated operational plans Annual staffing strategy Three-year employment equity program

 

Risk Analysis

ACOA's Response to the Changing Economic Landscape

ACOA operates within a constantly changing global economic landscape. This affects the Agency's broad-based approach to economic development and its ability to address the underlying structural challenges facing the regional economy. Being proactive in identifying opportunities requires the Agency to anticipate and assess external economic factors that can affect the design and delivery of its programs and services. The following provides an outline of ACOA's response to the changing economic landscape in 2008-2009. Further information on the region's economy is available online through the link provided in Section 3 of this report (in the sub-section entitled "Atlantic Canada's 2008-2009 Economic Overview and Provincial Economic Profiles").

As the economy changes, the Agency faces risks in providing appropriate programming and initiatives to react to the needs of regional economic development and respond to current and emerging influences. During the past year, challenges such as the global financial crisis, the slowing of the world economy, the volatility of energy prices, and a fluctuating Canadian dollar have affected the ability of firms in Atlantic Canada to sell in various markets. Being aware of this situation, ACOA has ensured that its programs react to economic changes in a timely manner. The Agency's objective is to design and implement mitigating measures that reduce the impact and likelihood of these "strategic risks." The main measures that have been implemented are presented below.

Challenges and Opportunities

Responding to the downturn in the economy

Communities in Atlantic Canada that have a long-standing reliance on resource extraction and processing industries were severely tested during the past year. In its latest budget, the federal government announced the establishment of the Community Adjustment Fund and the Recreational Infrastructure Canada program to stimulate the economy and create employment throughout the country. ACOA, other regional development agencies, and other federal departments worked collaboratively to develop the program architecture for these initiatives, and consulted with the respective provincial governments to establish priorities for investment that would generate the most employment and leverage the most funds. Internal resources were redirected to support the implementation of these initiatives.

In response to the economic downturn, during 2008-2009 the Agency has provided $11.3 million more than planned to support the Community Development program activity. For example, ACOA funds were made available throughout the region to facilitate accessibility to technologies and training programs. This led to long-term employment and economic capacity building in rural communities.

Skills and labour shortages

The region's recent demographic record has been characterized by minimal increases in population. Many people have left the region to pursue opportunities in other parts of Canada; these out-migrants are usually young and often have skills that are in demand within Atlantic Canada. This out-migration means that Atlantic Canada's population is aging faster than are other regions of the country, which will lead to significant skills and labour shortages if left unchecked.

ACOA is addressing this challenge in collaboration with provincial governments and other federal departments. An important joint approach is the Atlantic Population Initiative, a three-year collaborative effort designed to better attract skilled immigrants to Atlantic Canada; retain more Atlantic Canadians, youth and recent immigrants; improve labour market integration of immigrants; and engage stakeholders to create alternative work and business opportunities in the region.

Mitigation Measures

These potential risks, and others as they emerge, are monitored continuously by the Agency to ensure that appropriate mitigation is applied and the risks are not realized to a harmful extent.

The Agency identified five key risks and associated mitigation strategies for attention in 2008-2009. These risks, and the primary mitigation measures implemented during the year, are presented below.

 

Key Risk and Challenges	Mitigation Measures
1.   Strategic Risk The risk that the Agency's strategies are neither aligned with government economic objectives and policies nor reflective of emerging economic development concepts, leading to opinions that the Agency is redundant.	The Agency continues to ensure that programming complements government economic objectives articulated in the federal budget, Advantage Canada, the Speech from the Throne and the Economic Action Plan. In consideration, ACOA focused on three areas - productivity, international trade, and infrastructure support. ACOA also promoted trade through alignment with Canada's Global Commerce Strategy and the related Americas Strategy.
2.   Cost of Doing Business Risk Risk that the cost of doing business escalates and represents an increasing portion of the Agency's budget, adversely affecting operational efficiency and leading to budgetary difficulties for programming.	ACOA completed a review of the cost of delivering the Agency's programs, including the identification of the cost drivers. Measures have been put in place to ensure operating costs are contained.
3.   People Management Risk The risk that ACOA's talent agenda (leadership, recruitment, training, promotion, work/life balance, competencies) does not adequately sustain the workforce necessary to carry out the Agency's mandate in the future, and the Agency experiences a significant loss of corporate memory.	Strong emphasis on Public Service Renewal, as well as mandatory preparation of employee learning plans, promotion of career planning and training opportunities were implemented. Future needs for an effective workforce were identified through the Agency's Human Resource Strategic Plan.
4.   Data Management Risk The risk that data being collected is inaccurate, incomplete, excessive or inaccessible, so that decision making and efficient use of resources are adversely affected.	Significant attention was brought to the risks associated with data/information management. The Agency undertook several initiatives with an objective to ensure data/information being collected was relevant, accurate and useful for decision making. Work continued on the development of a stronger Performance Management Framework, which received a positive rating in the Management Accountability Framework assessment issued by Treasury Board. It was noted that ACOA has put in place most of the elements required to provide insights into the performance and effectiveness of most programs, and these elements are being used for decision making. It was also concluded that ACOA is able to validate and demonstrate the contribution of its programs to the delivery of its mandate, and that it is well placed to manage for results. Other related initiatives include a more robust data collection strategy and information/data dashboards.
5.   Reputational Risk Reputation risk materializes when the proactive flow of positive information wanes, or when negative publicity triggered by certain internal or external events, whether accurate or not, compromises the Agency's reputation and results in a loss of credibility for the Agency.	The Agency continued to use communications initiatives to convey its accomplishments and nurture its credibility with stakeholders. Its established foundation of values and ethics has been enhanced through the commencement of a more formal strategic planning approach and linkage to the Agency's reputational expectations.

 

Expenditure Profile

ACOA's actual spending for 2008- 2009 was $341.4 million. This represents a reduction in spending of 8% or $30.2 million, from $371.6 million in 2007-2008, as indicated in the table below. Variances in actual spending profiles are primarily due to a decrease in Community Development spending, as more fully explained below.

• Expenditures in 2007-2008 included $8.8 million for Infrastructure Canada Program, which is winding down and showing reduced expenditures in 2008-2009. In 2008-2009, expenditures for new activities occurring under infrastructure were reported by Infrastructure Canada.

• Expenditures under the Community Development program activity in 2007-2008 were greater by $29.5 million, due to spending related to the Saint John Shipyard Adjustment Initiative.

• Other changes representing an increase of $8.1 million, due to normal fluctuations in programming among activities.

The following table highlights changes in spending for each program activity, as well as variances in 2008-2009 between the main estimates, planned spending, authorized spending, and actual spending for each program activity.

	($ millions)
Program Activity	2006-2007 Actual	2007-2008 Actual	2008-2009
			Main Estimates	Planned Spending	Total Authorities	Actual Spending
Enterprise Development	227.5	213.6	214.2	214.2	219.3	215.0
Community Development	146.1	146.1	101.8	101.8	114.3	113.1
Policy, Advocacy and Coordination	11.4	11.9	12.2	12.2	13.9	13.3
Total	385.3	371.6	328.2	328.2	347.5	341.4

 

Analysis of 2008-2009

Planned spending in 2008-2009 of $328.2 million was augmented by $19.3 million provided through new authorities and transfers, including $2.5 million for compensation adjustments; $1.6 million for severance pay, parental leave benefits and leave payout; $3.6 million for operating budget carry forward; $0.9 million due to increased costs of employee benefit plans; $11.2 million in excess collections of repayable contributions from previous years; and less $0.5 million in other minor adjustments.

Actual spending of $341.4 million represents a surplus of $6.1 million from total authorities of $347.5 million. The Agency will access a portion of this surplus through operating budget carry forward of $3.1 million to meet planned requirements in 2009-2010. The balance of $3 million was for the establishment of frozen allotments: $1.5 million under the operating expenditures vote and $1.5 million under the grants and contributions vote.

Analysis by Program Activity

For the most part, the spending for Enterprise Development and Policy, Advocacy and Coordination activities was according to plan. However, as identified in total authorities, the spending for the Community Development activity increased by $11.3 million over planned spending. The Agency allocated additional funds under this activity in response to requirements.

                 

D

This table displays the way Parliament approved resources, and shows the changes in resources derived from supplementary estimates and other authorities, as well as how funds were spent.

Voted and Statutory Items

Vote # or Statutory Item (S)	Truncated Vote or Statutory Wording	($ millions)
		2006-07	2007-08	2008-09
		Actual Spending	Actual Spending	Main Estimates	Actual Spending
1	Operating expenditures	80.5	83.1	81.9	85.6
5	Grants and contributions	296.3	279.1	238.3	246.9
(S)	Contributions to employee benefit plans	8.5	9.4	8.0	8.9
Total		385.3	371.6	328.2	341.4

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