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Minister's Message

Minister of Public Safety, I am pleased to present Public Safety Canada's 2010-11 Departmental Performance Report for the period ending March 31, 2011. This report speaks to the Department's continued commitment to achieving its mission of building a safe and resilient Canada. Over the past fiscal year, the Department continued to play a leadership role across the public safety continuum in the areas of national security, emergency management, law enforcement, corrections, crime prevention and border management.

In 2010-11, Public Safety Canada faced challenges but nevertheless saw continued successes and accomplishments. The Department enhanced the Government's ability to respond to emergencies through the launch of the National Strategy and Action Plan for Critical Infrastructure. The Department also launched Canada's Cyber Security Strategy, fulfilling the Government's 2010 Speech from the Throne commitment to work with the provinces, territories and the private sector to implement a cyber security strategy to protect our digital infrastructure. Public Safety Canada also provided advice and support critical to the success of the G8 and G20 Summits. Initiatives related to border security were advanced, including the announcement of the Canada-U.S. declaration “Beyond the Border: a shared vision for perimeter security and economic competiveness”. In an effort to prevent the abuse of Canada's immigration system, legislation was introduced to counter the continuing threat posed by human smuggling. The Department also collaborated with partners to share best practices on countering radicalization as well as in continuing the fight against serious and organized crime. The Department has also been working with the provinces and territories to renew RCMP policing contracts to ensure that communities continue to receive the most efficient, effective and sustainable police services possible. Finally, the Department continued to improve public safety in First Nation and Inuit communities by providing financial contributions towards dedicated and responsive policing services. These are just a few of the highlights from the last year which Canadians can be proud of.

The progress that has been achieved this year is due in large part to the dedication of Public Safety Canada staff across Canada, along with the support of our many partners here and abroad. Public Safety Canada continues to evolve as an organization and is making the changes required to remain focused and flexible in today's dynamic security environment. By identifying priorities for 2010-11 that were meaningful to Canadians and by delivering real results, Public Safety Canada advanced its vision of achieving a safe and secure Canada as well as strong and resilient communities.

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Section I: Organizational Overview

Raison d'être and Responsibilities

Public Safety Canada plays a key role in discharging the Government's fundamental responsibility for ensuring the safety and security of its citizens. The Department of Public Safety and Emergency Preparedness Act 2005 and the Emergency Management Act 2007 set out two essential roles for the Department: (i) support the Minister in his or her responsibility for all matters, except those assigned to another federal minister, related to public safety and emergency management, including national leadership; and (ii) coordinate the efforts of Public Safety's Portfolio agencies and providing guidance on their strategic priorities.

The Department provides strategic policy advice and support to the Minister of Public Safety on a range of issues, including: national security, emergency management, law enforcement, border management, corrections and crime prevention. The Department also delivers a number of grant and contribution programs related to emergency management and community safety.

Operations across Canada and Internationally

The Public Safety Portfolio encompasses nine distinct organizations which directly contribute to the safety and security of Canadians. While Portfolio agencies deliver public security operations according to their individual mandates, Public Safety Canada, in its Portfolio coordination role, brings strategic focus to the overall safety and security agenda.

Public Safety Canada is structurally organized into five branches: Emergency Management and National Security, Community Safety and Partnerships, Law Enforcement and Policing, Strategic Policy, and Corporate Management. The Branches are supported by a Chief Audit Executive, the Communications Directorate and the Legal Services Unit. Also situated within Public Safety Canada is the Office of the Inspector General of CSIS, which carries out independent reviews of CSIS' compliance with the law, ministerial direction and operational policy. The Department has regional offices in all provinces, as well as in the Northwest Territories and Yukon, which focus on emergency management, Aboriginal policing and the delivery of crime prevention programs. The Department also has representation in Washington, D.C. and London, England.

Strategic Outcome and Program Activity Architecture (PAA)

The chart below illustrates Public Safety Canada's strategic outcome and its Program Activity Architecture (PAA).

Public Safety Canada's strategic outcome of a safe and resilient Canada is a core responsibility of government that provides enduring benefits to Canada and Canadians in terms of our social well-being and economic development. This strategic outcome is derived from the Department's legislative mandate and is also central to the objectives of the Public Safety Portfolio agencies. Through the development and implementation of innovative policies and programs and the effective engagement of domestic and international partners, the Department contributes to Canadian's safety and ensures that Canada is able to recover from threats to its security, be they local, national or transnational.

Although there are many departments and agencies that have a direct role to play in ensuring the safety and resiliency of Canada and Canadians, the measurement of these concepts at a national level is still in the early stages with limited numbers of potential frameworks in place. While many departments only measure and collect information specific to their respective mandates, Public Safety Canada in fulfilling its national leadership and coordination role, has taken the lead in the horizontal coordination of measuring the safety and resilience of Canadians in the context of its strategic outcome. The goal is to provide the country with metrics on the extent to which Canadians are free from danger, hurt or injury, including damage to property, as well as the level at which Canada is prepared for and the speed at which Canada is able to fully recover from any event that affects its safety.

During 2010-11, the Department established a phased approach to developing a robust and relevant measurement framework and developed interim performance measures to track progress towards a safe and resilient Canada. In future years, Public Safety Canada will continue to work closely with other levels of government, departments and agencies, as well as with academia and international partners on this endeavour.

Organizational Priorities

This section describes the Department's progress in having met its priorities for 2010-11. Public Safety directed its efforts toward four key priorities:

Priority 1

Improve the Department's performance in meeting the requirements of the Emergency Management Act and continue making enhancements to Canada's national security framework

Priority 2

Support whole-of-government priorities

Priority 3

Advance border management initiatives with the U.S.

Priority 4

Provision of national leadership in developing strategies and policies to support policing in Canada and to combat serious and organized crime

Priority 1: Improve the Department's performance in meeting the requirements of the Emergency Management Act and continue making enhancements to Canada's national security framework

Type ^[2]: New

Status ^[3]: Mostly Met

Program Activities: National Security, Emergency Management

Public Safety Canada achieved progress towards enhancing the Government of Canada's readiness to respond to emergencies by announcing the National Strategy and Action Plan for Critical Infrastructure in 2010 and establishing a public-private sector approach to strengthening resilience across ten critical infrastructure sectors. The ten sector networks were established to facilitate continuous dialogue among government and industry partners on risks and threats to Canada's vital systems and assets. In addition, the Department published a Risk Management Guide for Critical Infrastructure Sectors. The Department also carried out its first annual review of the Federal Emergency Response Plan (FERP). Furthermore, the Department announced Canada's Cyber Security Strategy, which is a cornerstone of the Government's commitment to countering cyber threats. Public Safety Canada continued to enhance Canada's national security framework by successfully leading the Government of Canada's response to the Air India Inquiry. Furthermore, the Department led the development of policy designed to improve key security elements of the immigration system and enhance the management of national security inadmissibility cases. Owing to several factors, namely competing priorities, the Department was unable to finalize a mechanism for interagency review of national security activities. However, several options were prepared for future consideration and development. The development of national security policies and programs were also enhanced through the engagement of the Cross-Cultural Roundtable on Security, providing policy-makers with insight into community views and perspectives on issues ranging from borders and immigration to radicalization leading to violence, thereby contributing to the strengthening of Canada's national security framework.

Priority 2: Support whole-of-government priorities

Type: New

Status: Mostly Met

Program Activities: National Security, Law Enforcement

In 2010-11, the Department supported the development of Canada's post-2011 engagement strategy for Afghanistan. All of the nine security system progress indicators for the Afghanistan mission identified for 2011 were met, including those related to the work undertaken by the RCMP, CSC, and CBSA in support of Afghan national police, corrections officers, and border officials. Public Safety Canada continued to provide integrated advice and support related to operations, capacity building and transition planning with respect to whole-of-government priorities. For example, the Department provided strategic advice to promote Canadian domestic security interests via the “G8 Leaders Statement on Countering Terrorism” and supported law enforcement partners to provide safety and security at the G8 and G20 summits through the Security Cost Framework Policy.  Public Safety Canada also reviewed and helped develop approximately six counter-terrorism projects globally and 36 anti-crime projects in the Americas.

Priority 3: Advance border management initiatives with the United States (U.S.)

Type: New

Status: Mostly Met

Program Activities: Border Management

Public Safety Canada continued to advance Canada's interests and strengthened strategic dialogue on shared border objectives with the U.S. In 2010-11, two formal bilateral meetings took place between the Minister of Public Safety and the Secretary of Homeland Security, which established the basis for a Canada-U.S. shared perimeter vision. The Prime Minister of Canada and the President of the United States announced “Beyond the Border: a shared vision for perimeter security and economic competitiveness” in February 2011. The 11th annual Canada-U.S. Cross-Border Crime Forum (CBCF) Ministerial was held in Washington in November 2010. The dissolution of Parliament in March 2011 delayed the Parliamentary study of legislation to implement the Shiprider Framework Agreement. The Department collaborated with its U.S. and domestic partners to share information and best practices on radicalization, including the development of a work plan which outlines key bilateral initiatives over the next 12 to 24 months.

Priority 4: Provision of national leadership in developing strategies and policies to support policing in Canada and to combat serious and organized crime

Type: New

Status: Mostly Met

Program Activities: National Security, Law Enforcement, Crime Prevention

Public Safety Canada exercised national leadership to develop effective strategies and policies that support policing, as well as contribute to the fight against serious and organized crime. In 2010-11, it continued to negotiate with provinces and territories the renewal of the Royal Canadian Mounted Police (RCMP) Police Services Agreements, and introduced legislation to enhance and modernize civilian oversight of the RCMP. In May 2010, the Department announced several key initiatives to combat contraband tobacco based on the recommendations made by the Task Force on Illicit Tobacco Products. Additional policies and strategies in support of policing included strengthening the framework for DNA analysis and the National DNA Data Bank, by successfully negotiating Biology Casework Analysis Agreements with all other contract jurisdictions. The Department continued to advance the National Work Plan to Combat Organized Crime including the National Research Agenda on Organized Crime. The Department also developed a national research agenda and national guidelines concerning the use of Conducted Energy Weapons. In addition, the Department completed a comprehensive review of the First Nations Policing Program (FNPP).

Risk Analysis

Risk management principles are valuable for all government policies and programs; they are particularly relevant for organizations responsible for the safety and security of Canada and its citizens. In a fast-evolving threat environment, decisions must be made rapidly, and resources prioritized while maintaining transparency and accountability to Canadians for the outcomes of those decisions.

As an important step in the risk management process, Public Safety Canada released its Integrated Risk Management Policy and piloted its first corporate risk profiling exercise in 2010-11. This pilot focused on alleviating the most important risks impeding the achievement of departmental objectives. The risks were largely concentrated in National Security, Emergency Management and Law Enforcement, but also included Internal Services. 

The ability for Canada to effectively respond to various threats relating to national security and emergency management lies with the Department's capacity to develop efficient response tools and mechanisms. One example of how the Department improved its ability to respond to national security threats was through the advancement of the modernization of Canada's national security legislative framework. This included policy and legislative proposals providing law enforcement and national security agencies with up-to-date tools to fight crime in an evolving telecommunications environment. Additionally, to ensure the Department can effectively respond to emergency management and national security threats, Public Safety Canada implemented Canada's National Security Strategy and Action Plan for Critical Infrastructure, released Canada's Cyber Security Strategy, and the All-Hazards Risk Assessment pilot project.

In addition to the program risks, the Department focused its efforts towards addressing internal management risks to effectively and efficiently deliver its mandate. More specifically, the Department reduced delays in filling staffing vacancies, and implemented a new secure, separate internal network for processing, storing and sharing classified information.

In the upcoming fiscal year, Public Safety Canada will continue monitoring the top risks, and apply the lessons learned to further progress the implementation of integrated risk management in the Department.

Summary of Performance

The tables below provide a summary of the Department's overall performance and demonstrates linkages between resources and results. It depicts Public Safety Canada's total financial resources, total authorities and actual spending for the 2010-11 fiscal year, in addition to a summary of the total planned human resources and actual human resources for the Department.

2010–11 Financial Resources ($000s)

Planned Spending	Total Authorities	Actual Spending
571,587.7	685,544.9	532,597.2

2010–11 Human Resources (Full Time Equivalents ^[4] (FTEs)

Planned	Actual	Difference
1,071	1,125	54

The increase in Actual compared to Planned FTEs is mainly attributable to an internal realignment of resources to address critical shortfalls in the Department's Internal Services. Funding received for the implementation of Canada's Cyber Security Strategy and funding to manage immigration cases involving classified information under Division 9 of the Immigration and Refugee Protection Act (Security Certificate) also contributed to the increase in FTEs from the initially planned figure. The increase was counterbalanced by reductions under Emergency Management for planned FTEs related to Lawful Access that did not materialized as well as reductions following Strategic Review.

Total Departmental Spending by Program Activity

Program Activity	2009–10 Actual Spending	2010–11 Main Estimates	2010–11 Planned Spending	2010–11 Total Authorities	2010–11 Actual Spending	Alignment to Government of Canada Outcome
National Security	6,722.2	4,730.6	6,760.6	8,529.2	8,127.8	A safe and secure Canada
Emergency Management	154,963.9	168,898.3	168,898.3	157,481.6	142,245.9
Law Enforcement	118,454.6	143,530.2	272,124.2	379,281.8	252,557.1
Corrections	7,572.7	7,133.5	7,133.5	8,588.3	8,568.7
Crime Prevention	40,944.9	64,770.4	64,770.4	54,740.4	51,367.2
Border Management	1,971.2	2,440.9	2,440.9	2,145.0	1,999.3
Interoperability	3,749.6	3,489.1	3,489.1	930.9	942.8
Internal Services	61,394.1	45,735.5	45,970.5	73,847.7	66,788.4
Total	395,773.1	440,728.7	571,587.7	685,544.9	532,597.2
Less: Non-respendable Revenue	(9,140.8)	N/A	(3,528.0)	N/A	(10,096.0)
Plus: Cost of services received without charge	17,714.0	N/A	-	N/A	-
Total Departmental Spending	404,346.3	440,728.7	568,059.7	685,544.9	522,501.2

Explanation of change: The planned spending of $571.6M is reflective of the Main Estimates and other known funding approved in the fiscal framework as presented in the 2010-11 Report on Plans and Priorities (RPP). This forecast of spending was subsequently increased by $113.9M to reflect the addition of funding and other adjustments authorized through the Supplementary Estimates process which resulted in total authorities of $685.5M for the 2010-11 fiscal year. As such, funding was provided in support of the security requirements for the 2010 G8/G20 Summits, the contributions agreements with the provinces of Ontario and Quebec for Biology Casework Analysis as well as in support of the implementation of Canada's Cyber-Security Strategy and the critical policing infrastructure for the First Nations Policing Program (FNPP). The net increase of $113.9M from the Planned Spending also takes into account adjustments to reflect a transfer to the Royal Canadian Mounted Police (RCMP) for First Nations community policing services, as well as a reduction resulting from the 2009 Strategic Review.

Actual spending of $532.6M was less than the Total Authorities provided. Operating funding of $9.7M remained unspent at the end of the fiscal year. This lapse was largely due to a planned carry-forward to 2011-12 of $6.9M and $2.8M of funding reprofiled from the 2010-11 fiscal year to 2011-12 and subsequent fiscal years for the Emergency Management Core Capacity and planned Urban Transit Exercises.

Grants and contributions funding totalling $143.3M remained unspent at the end of the fiscal year. Of this amount, $128.5M relates to funding provided for specific purposes (i.e. 2010 G8/G20 Summits, Disaster Financial Assistance Arrangements and Repatriation of Canadian evacuees from Haiti following earthquake) which the Department was not at liberty to reallocate. The remaining $14.8M can be explained by lower than planned expenditures under the FNPP and the National Crime Prevention Centre of $8.3M, as well as by a $5M intended transfer to RCMP for First Nations community policing services that did not materialized due to dissolution of Parliament.

Expenditure Profile

During 2010-11, Public Safety Canada spent $532.6M to meet the objectives of its program activities. This resulted in a net increase of $136.8M in the Department's spending level compared to 2009-10. The increase is primarily related to costs incurred in support of the security requirements of the 2010 G8/G20 Summits. Other spending increases were incurred for contributions in support of Safer Communities, and the Biology Casework Analysis Contribution Program, counterbalanced by decreases under the Disaster Financial Assistance Arrangements program and FNPP. Operating Expenditures account for $5.5M of the total increase in spending and were mainly incurred in salary.

In 2010-11, Public Safety Canada spent $2.6M on Canada's Economic Action Plan initiatives. The funding was used for critical policing infrastructure for the FNPP.

The decrease in planned spending in future fiscal years is mostly attributed to the sunsetting of initiatives such as: security requirements related to the 2010 G8/G20 Summits, short-term sustainability of First Nations policing agreements and the comprehensive review of the FNPP, as well as the Youth Gang Prevention Fund (YGPF). Reductions for savings under the 2009 Strategic Review also contributed to the decrease in planned spending for futures fiscal years. The planned spending does not reflect anticipated transfers to the RCMP for First Nations community policing services. Following 2011-12, the overall level of funding will stabilize around $410M.

The above graphs illustrate Public Safety Canada's trend from previous years and planned spending for future years to 2012-13.

Estimates by Vote

For more information on departmental organizational votes and/or statutory expenditures, please see the 2010–11 Public Accounts of Canada (Volume II) publication.

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