Whole-of-government framework: Background

Since 2005, the Policy on Management, Resources and Results Structures (MRRS) has supported the development of a common, government-wide approach to the collection, management, and reporting of financial and non-financial information on program objectives, performance, and results. All federal organizations receiving appropriations must plan and manage their operations and report their performance against strategic outcomes that represent enduring benefits to Canadians.

As a complement to this regime of departmental performance management and reporting, the Government of Canada has adopted a whole-of-government framework for reporting to Parliament on progress made as a nation. The whole-of-government framework maps the financial and non-financial contributions of departments, agencies, and Crown corporations receiving appropriations to a set of 13 high-level Government of Canada outcome areas within four Government of Canada spending areas—Economic, Social, International, and Government Affairs.

As noted in Appendix C of the Guide to the Approval of Strategic Outcomes and Program Activity Architectures for Departments , departments and agencies must take the whole-of government framework into account when developing or amending their Program Activity Architecture (PAA) for Treasury Board approval. For information on the MRRS development process, consult the Instructions to Departments for Developing a Management, Resources and Results Structure . Departments and agencies are also required to indicate in their Report on Plans and Priorities (RPP) and Departmental Performance Report (DPR) the alignment of program activities to Government of Canada outcome areas.

Alignment of Program Activities to the Whole-of-Government Framework

This section describes each of the 13 outcome areas, namely the essence of what each outcome area is trying to achieve for Canadians, and enumerates the types of program activities typically found in those areas. This is provided as a tool for departments seeking guidance on how to align their program activities to the whole-of-government framework.

Because the alignment of strategic outcomes and their corresponding program activities to the whole-of-government framework makes it possible to calculate spending by Government of Canada outcome area and also correctly total all government spending, a program activity can only be aligned to one Government of Canada outcome area . A strategic outcome, however, can contribute to more than one outcome area.

Descriptors for Government of Canada Outcomes

I. Economic Affairs

Income security and employment for Canadians

Program activities in the income security and employment for Canadians outcome area aim to provide income support for and improve the financial situation of Canadians, especially those who are most vulnerable. This outcome area also includes Employment Insurance.

The program activities typically aligned with this outcome area work to:

• administer tax benefits, credits, and allowances;
• provide retirement and survivor pensions and compensation as well as non-tax benefits for vulnerable populations, including children and people with disabilities;
• safeguard the Canada Pension Plan and regulate and supervise private pension plans; and
• provide support and targeted skills development to Canadians entering or repositioning themselves in the labour market.

  Strong economic growth

Program activities in the strong economic growth outcome area aim to increase economic growth and development in all regions and all sectors of the economy.

The program activities typically aligned with this outcome area work to:

• create a sound fiscal policy framework that supports economic growth;
• egulate and supervise financial institutions;
• build and strengthen physical infrastructure;
• improve transportation systems and corridors;
• increase the competitiveness of Canadian businesses;
• promote public-private partnerships;
• encourage migration that benefits the Canadian economy;
• strengthen community economic development in particular regions, such as Western Canada, Atlantic Canada, Quebec, and the North;
• support economic development and the governance of land and natural resources in Aboriginal communities;
• manage energy and natural resources; and
• increase economic opportunities in the natural resources sector by enhancing competitiveness through new technologies and by developing value chains.

An innovative and knowledge-based economy

Program activities in the innovative and knowledge-based economy outcome area aim to prepare Canada for future challenges by investing in innovative scientific research and development and in specialized education and training.

The program activities typically aligned with this outcome area work to:

• fund and support academic research and research partnerships in such areas as natural sciences, health, engineering, and social sciences;
• support increased access to post-secondary education;
• conduct scientific research and development (e.g. on Canada’s natural resource base, such as agriculture and fisheries, and in space exploration);
• develop Canadian knowledge and expertise (e.g. in the areas of climate change adaptation, physical geography, and the polar environment);
• support industrial innovation and the application of new technologies aimed principally at strengthening Canada’s economy (e.g. energy development, infrastructure, and transportation)*;
• provide incentives for innovation through such things as copyrights; and
• support the commercialization of new science and technologies.

* Applied research that is directed toward achieving another Government of Canada outcome and not primarily at strengthening Canada’s economy should be placed under the appropriate outcome area.

A clean and healthy environment

Program activities in the clean and healthy environment outcome area aim to ensure that Canada’s environmental resources are used sustainably and protected for future generations.

The program activities typically aligned with this outcome area work to:

• ensure environmental stewardship over air, water, and land resources;
• improve information on and knowledge of weather, environmental conditions, and sustainable farming;
• manage chemicals, pollution, and nuclear waste in an environmentally responsible way;
• reduce the impact of the production and use of energy on the environment;
• manage environmental assessment; and
• protect biodiversity and manage ecosystems sustainably.

A fair and secure marketplace

Program activities in the fair and secure marketplace outcome area aim to create an enabling environment for private investment and business activities and to ensure consumer confidence in the Canadian marketplace.

The program activities typically aligned with this outcome area work to:

• establish and monitor national regulatory frameworks and standards for economic activities;
• protect consumers through a strengthened framework for competition;
• regulate and support agricultural production and marketing systems;
• provide a trade environment in Canada that is predictable; and
• adjudicate on trade disputes.

II. Social Affairs

Healthy Canadians

Program activities in the healthy Canadians outcome area aim to create a responsible, accessible, and sustainable health system. This outcome area also includes the Canada Health Transfer.

The program activities typically aligned with this outcome area work to:

• build Canada’s public health capacity;
• reduce health inequalities between First Nations and Inuit and other Canadians;
• create efficient health services;
• improve access to health care;
• reduce environmental health risks; and
• support applied health research for policy development.

A safe and secure Canada

Program activities in the safe and secure Canada outcome area aim to create a safe and just society and to protect national security interests. Where Canada acts in concert with its international allies on defence and security issues to defend common interests, such activities should fall under a safe and secure world through international cooperation.

The program activities typically aligned with this outcome area work domestically to:

• prevent and combat crime;
• enforce laws;
• manage custody and corrections;
• secure Canada’s land and marine borders and other points of entry;
• build capacity to respond to security threats;
• manage nuclear installations and processes safely; and
• build preparedness for and responses to health-related emergencies.

A diverse society that promotes linguistic duality and social inclusion

Program activities in the diverse society that promotes linguistic duality and social inclusion outcome area aim to promote and protect Canada’s official languages, cultural diversity, basic living standards, and the participation of all groups in Canadian society.

The program activities typically aligned with this outcome area work to:

• support Canada’s official languages;
• support immigration and the integration of new Canadians;
• promote intercultural understanding;
• protect human rights in Canada;
• address housing needs;
• support a fair and transparent electoral system; and
• foster the meaningful participation of all groups in Canadian society.

A vibrant Canadian culture and heritage

Program activities in the vibrant Canadian culture and heritage outcome area aim to support a broad range of cultural and heritage activities.

The program activities typically aligned with this outcome area work to:

• support the arts and create and support cultural institutions and Canadians’ access to them;
• enhance knowledge of and foster public engagement in Canada’s history and cultural heritage;
• support artists and producers working in the cultural sector;
• protect national heritage sites, nationally significant physical assets, and federal lands; and
• honour and preserve military history.

III. International Affairs

A safe and secure world through international cooperation

Program activities in the safe and secure world through international cooperation outcome area aim to promote freedom, democracy, human rights, and the rule of law throughout the world. Where Canada acts independently to ensure its own security interests (e.g. disaster preparedness, counter-terrorism), such activities should fall under a safe and secure Canada.

The program activities typically aligned with this outcome area work internationally to:

• provide military and police support for combat and peace support operations;
• promote and support human security, human rights, democratic development, good governance, and refugee protection;
• provide support to other countries and build capacities for counter-terrorism;
• combat international crime and the proliferation of weapons;
• reduce disaster risk and improve responses to it; and
• ensure the movement of people and goods from Canada to other countries.

Global poverty reduction through sustainable development

Program activities in the global poverty reduction through sustainable development outcome area aim to assist developing countries promote and protect democracy and human rights, build effective and accountable governance systems, improve levels of social and economic development, and manage the environment in a sustainable way.

The program activities typically aligned with this outcome area work to:

• provide developing countries with international development assistance;
• provide international humanitarian assistance as well as reconstruction and peace-building support;
• provide debt relief to developing countries;
• conduct research aimed at improving the quality of life in developing countries; and
• engage Canadians and heighten their awareness of international development and related issues.

A strong and mutually beneficial North American partnership

Programs activities in the strong and mutually beneficial North American partnership outcome area aim to improve the socio-economic well-being and security of citizens across the continent. Canada’s efforts in this outcome area touch on issues ranging from security, trade facilitation, and transportation to the environment and public health.

The program activities typically aligned with this outcome area work to:

• identify and work together on strategic priorities that are common to the North American partners;
• negotiate and administer trade agreements with the United States and Mexico; and
• prevent or resolve disputes with North American partners.

A prosperous Canada through global commerce

Programs activities in the prosperous Canada through global commerce outcome area aim to increase international trading partners and investment opportunities to strengthen Canada’s private sector and create domestic wealth.

The program activities typically aligned with this outcome area work to:

• assist Canadian businesses to gain access to international trade and investment opportunities;
• promote Canadian products and services internationally in key sectors;
• regulate and enforce standards for Canadian products to meet international market requirements;
• facilitate the expansion of trade and investment between Canada and other countries; and
• negotiate and administer international trade agreements (beyond North America).

IV. Government Affairs

Government Affairs is the fourth spending area. It includes program activities that improve the effectiveness and efficiency of the machinery of federal government, strengthen the justice system, support Parliament and Cabinet operations, and ensure that Canadians are well-served by a government that is accountable and transparent. The Treasury Board of Canada Secretariat is currently exploring the possibility of developing outcome areas for Government Affairs.

Whole-of-Government Reports

Since 2002, the whole-of-government framework has been used in the annual report to Parliament entitled Canada’s Performance: The Government of Canada’s Contribution , tabled in the fall of each year by the President of the Treasury Board as a companion piece to DPRs. The framework allowed actual spending broken down by Government of Canada outcome area to be published for the first time in the 2006–07 report. In the 2007–08 Canada’s Performance, spending information was expanded to include comparisons of planned versus actual spending.

Significant progress is being made to strengthen government-wide reporting using the whole-of-government framework. The online tools available on the Planning and Performance Gateway, such as the DPR Overview and the RPP Overview, apply this framework and complement Canada’s Performance. The DPR Overview and the RPP Overview both allow readers to navigate from general information, consolidated according to spending and Government of Canada outcome areas, to more specific information on the program activities and strategic outcomes of departments and agencies.

The framework continues to be further refined, making incremental improvements to the federal government’s reporting to Parliament and Canadians.

If you have questions, please contact the whole-of-government reporting team .