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Section II: Analysis of Program Activities by Strategic Outcome

2.1 Strategic Outcome

In support of its mandate, Infrastructure Canada has one Strategic Outcome, which was approved in May 2008:

Quality, cost-effective public infrastructure that meets the needs of Canadians in a competitive economy, a clean environment and liveable communities.

The new strategic outcome reflects the long-term and enduring benefit to Canadians that stems from Infrastructure Canada’s mandate, vision and mission. It focuses on the area of direct influence on investments in quality and cost-effective public infrastructure. It also represents a clear end-state for the department to strive towards and for which the measurement of progress is more easily quantifiable.

2.2 Program Activity

The information presented in this section is organized by Infrastructure Canada’s Program Activity Architecture for 2009-10, which consists of five program activities. Overall, the program activities’ expected results are the construction, renewal and/or enhancement of public infrastructure that contribute to a competitive economy, a clean environment and liveable communities. Infrastructure Canada’s Performance Measurement Framework will be completed in 2009-10 and will be the basis for establishing performance indicators and specific targets under each program activity.

2.2.1 Program Activity 1: Targeted Project-Based Infrastructure Funding

Human Resources (FTEs) and Planned Spending (in $ thousands)

2009-10		2010-11		2011-12
FTEs	Planned Spending	FTEs	Planned Spending	FTEs	Planned Spending
98	4,296,478	–	4,161,494	–	2,138,578

Program Activity Summary: This program activity includes a series of infrastructure contribution programs that reimburse recipients for project-specific costs based on pre-determined eligibility criteria. Project categories vary depending on the specific initiative, but they all contribute to the construction, renewal and/or enhancement of public infrastructure and build infrastructure capacity in partnership with recipients. Eligible project costs are defined under the terms of standard contribution agreements between the Crown and a recipient government and/or private-sector entity, and support federal priorities for public infrastructure development through investments in targeted projects.

Planning Highlights: During the planning period, the program will:

• implement measures aimed at reducing duplication, streamlining federal processes, fast tracking project approvals and accelerating funding under the Building Canada plan and implementing the new infrastructure funds announced in Budget 2009 in partnership with provincial, territorial and municipal governments;
• expedite specific projects under the of the Building Canada Fund – Major Infrastructure Component identified in partnership with each jurisdiction that could be advanced to begin construction in the next two years;
• work to accelerate approvals of community projects by offering to approve the entire funding envelope under the Building Canada Fund – Communities Component for worthwhile projects provided provinces and municipalities can match the funding;
• continue to oversee the sound administration of the sunsetting programs in cooperation with federal delivery partners;
• continue working with the provinces and territories to identify the projects that will be funded by the remaining uncommitted funds, as well as seeking Treasury Board approval for these projects, if required, and negotiating the related contribution agreements; and
• manage the implementation of Public Transit Fund agreements, including coordination and collaboration with provinces, territories and municipalities for the Fund’s administration.

Benefits to Canadians: The expected result of this program activity is to maximize economic, social, cultural and environmental benefits for Canadians, through investments in public infrastructure in a coordinated manner with provincial, territorial and municipal governments, and First Nations. Recognizing the current economic situation, the Government of Canada is providing an important economic stimulus, helping to create jobs for Canadians and contributing to the long-term prosperity of communities by fast tracking infrastructure funding under the Building Canada Fund.

The Building Canada Fund will total approximately $8 billion over seven years, focusing on projects that deliver economic and environmental benefits to all Canadians. In order to provide an economic stimulus, Building Canada Fund spending will be accelerated where jurisdictions agree to provide matching funding over the same period. The Building Canada Fund provides a national framework within which to address regional infrastructure priorities. Investments target the strategic national priorities of core national highway system routes, drinking water, wastewater, public transit and green energy. Other eligible investment priority areas include environmental projects (solid waste management), projects that support economic growth and development (short-line rail and short-sea shipping, connectivity and broadband, tourism and regional and local airports), as well as projects that contribute to the ongoing development of safe and strong communities (disaster mitigation, culture, sports, local roads and bridges, and brownfield redevelopment). Funding is being used to support public infrastructure owned by provincial, territorial and municipal governments and entities, as well as the private and non-profit sectors where appropriate.

2.2.2 Program Activity 2: Provincial-Territorial Infrastructure Base Fund

Human Resources (FTEs) and Planned Spending (in $ thousands)

2009-10		2010-11		2011-12
FTEs	Planned Spending	FTEs	Planned Spending	FTEs	Planned Spending
5	824,131	–	824,196	–	0

Program Activity Summary: This program activity provides a pre-determined level of base funding to provinces and territories for their core infrastructure priorities, balancing the Building Canada Fund’s per capita allocations. An equal annual amount of funding is flowed in support of each jurisdiction’s annual capital plan accepted by the Minister. These plans outline infrastructure initiatives that support priorities in a given jurisdiction within the scope of eligible federal investment categories. While payments are made to provinces and territories, ultimate recipients could also include local and regional governments or private sector bodies. Payments are made in advance and provinces and territories may pool, bank, or cash-manage these funds in a manner that will afford them greater flexibility in implementing their annual capital plans. Provincial-Territorial Base funding will be accelerated where jurisdictions agree to provide matching funding over the same period.

Planning Highlights: During the planning period, the program will:

• conclude Provincial-Territorial Base Funding agreements with those jurisdictions who have not yet signed their agreement;
• offer to accelerate Provincial-Territorial Base Funding for projects in the 2009 and 2010 construction seasons where provinces and territories are able to cost-share their portion of accelerated funding; and
• ensure sound administration of the Provincial-Territorial Base Fund.

Benefits to Canadians: The Building Canada plan provides $25 million annually to each province and from $26 million to $27 million for each territory over seven years. This represents an expenditure of $2.301 billion. The Provincial-Territorial Base Fund provides significant flexibility to provinces and territories to support their core infrastructure priorities, including all of the categories under the Building Canada Fund, as well as non-core national highway system infrastructure and the safety-related rehabilitation of infrastructure.

Recognizing the current economic situation, the Government of Canada is providing an important economic stimulus, helping to create jobs for Canadians and contributing to the long-term prosperity of communities by offering to accelerate Provincial-Territorial Base Funding.

Funding will be matched by provinces (50% federal share) and territories (75% federal share) to maximize investment by all orders of government, but, similar to the Gas Tax Fund, federal funding will be provided up-front and on a regular basis. This ensures additional financial flexibility to provinces and territories as part of the Building Canada plan. All provinces and territories will benefit from this investment in modern public infrastructure, particularly smaller jurisdictions, which generally have lower population densities.

2.2.3 Program Activity 3: Gas Tax Fund

Human Resources (FTEs) and Planned Spending (in $ thousands)

2009-10		2010-11		2011-12
FTEs	Planned Spending	FTEs	Planned Spending	FTEs	Planned Spending
15	1,976,488	–	1,974,452	–	1,974,452

Program Activity Summary: This program activity provides municipalities with predictable and long-term funding, enabling them to invest in infrastructure projects that address local needs and help to produce the shared national outcomes of cleaner air, cleaner water and reduced greenhouse gas emissions. The Gas Tax Fund is administered through agreements between the federal government and provincial/territorial governments that set out eligible infrastructure investment categories, and provide recipients with a pre-determined annual allocation based on a per-capita distribution across jurisdictions. Recipients are responsible for providing aggregate reporting to Canada on the use of funds and results achieved on an annual basis. Funded projects fall in one of the following categories: water, wastewater, solid waste, public transit, community energy systems, local roads and bridges, and capacity development to enable communities to design and implement integrated community sustainability plans. Funds are paid to a province or territory, a municipal association, and the City of Toronto. Provinces, territories or municipal associations in turn provide funding to municipalities.

Planning Highlights: During the planning period, the program will:

• manage the implementation of Gas Tax Fund agreements, including the coordination and collaboration with provinces, territories and municipalities for its administration;
• continue the amendment process for Gas Tax Fund extension agreements with provinces/territories to add the new Gas Tax funding committed in Budget 2007 for 2010 to 2014;
• support the signatories in development of their outcomes reports and facilitate the development of a national outcomes report; and
• develop a policy framework for converting the current Gas Tax Fund program to a permanent funding feature (starting in 2014) as announced in the Budget 2008.

Benefits to Canadians: The Gas Tax Fund committed $5 billion from 2005-06 to 2009-10 of funding to municipalities through agreements with provinces and territories and to on-reserve First Nations communities. Budget 2007 added $8 billion in new funding and extended the Gas Tax Fund from 2010 to 2014 at $2 billion per year. Additionally, in Budget 2008, the Gas Tax Fund was made permanent at $2 billion annually starting in 2014. Eligible investments include capital expenditures in environmentally sustainable municipal infrastructure. It also provides funding to increase the capacity of communities to undertake long-term planning. Funding for planning capacity is complemented by a requirement for communities to develop integrated community sustainability plans, which are long-term plans aimed at addressing issues facing cities and communities for their improved sustainability.

The Gas Tax Fund seeks to provide maximum flexibility to provinces and municipalities in terms of its administration, while harnessing a unique collaborative partnership between three orders of government (federal, provincial and municipal) to produce better overall results. For municipalities, this means an up-front flow of stable, predictable funding for projects, and includes the financial flexibility to pool, bank and borrow against the funding for their infrastructure investments. This flexibility is balanced by agreements that set out a rigorous shared accountability regime that enables the Minister to report to Parliament on how the funds are being spent, and in particular how those expenditures relate to Government of Canada priorities for the economy, the environment and prosperous communities.

2.2.4 Program Activity 4: Knowledge and Research

Human Resources (FTEs) and Planned Spending (in $ thousands)

2009-10		2010-11		2011-12
FTEs	Planned Spending	FTEs	Planned Spending	FTEs	Planned Spending
36.5	19,565	–	11,167	–	9,167

Program Activity Summary: This program activity helps to ensure that Canada’s infrastructure investment priorities and activities include the building, connecting and sharing of applied knowledge and research on infrastructure issues, projects and programs. It targets key gaps in infrastructure knowledge and information, promotes the development of an enhanced evidence base for sound decision making at all levels of government, and contributes to improved measurement of the impacts of infrastructure policy and investment decisions. This program activity supports strategic research capacity and knowledge generation and applications at the national level, as well as cooperation with other orders of government in addressing their unique research and capacity-building needs. It levers research resources and expertise across various orders of government and stakeholder groups to address the infrastructure challenges and proposed solutions for Canada’s economy, environment and communities.

Planning Highlights: During the planning period, the program will:

• support economic analysis and research to improve information on the state and performance of Canada’s core infrastructure and to strengthen the information base for decision-making;
• promote the development of effective policies and strategies for dealing with infrastructure issues through feasibility and planning studies;
• address joint federal-provincial/territorial infrastructure priorities and improve the capacity of other orders of government through collaborative projects;
• contribute to international activities related to infrastructure, including participating in conferences, delegations and initiatives, as well as contributing to the Organisation for Economic Co-operation and Development (OECD) Territorial Reviews;
• strengthen multi- and bilateral relationships with national organizations, provinces, territories, non-government organizations, and municipal associations;
• shift from primarily high-level and exploratory research to more applied internal and external research with partners and end-users;
• increase economic analysis of infrastructure issues; and
• strengthen partnerships to better exchange information and knowledge, better advise on infrastructure priorities, leverage resources to produce higher quality research, and address knowledge and data gaps.

Benefits to Canadians: This program activity will improve research, knowledge and capacity-building that will promote innovation and progress in delivering world-class public infrastructure and fill knowledge gaps. It will strengthen the information base for decision making and the development of effective policies, including improving understanding of the state and impacts of public infrastructure, identifying internal and external conditions that shape Canada’s infrastructure needs, emphasizing applied research, technical excellence and sharing of best practices to increase the life expectancy of public infrastructure. It will improve understanding of long-term infrastructure issues, such as how to adapt infrastructure to changes in climate, and maintenance and rehabilitation of infrastructure. This includes innovative land use, financing issues, asset management and interdependencies between asset types.

2.2.5 Program Activity 5: Internal Services

Human Resources (FTEs) and Planned Spending (in $ thousands)

2009-10		2010-11		2011-12
FTEs	Planned Spending	FTEs	Planned Spending	FTEs	Planned Spending
101.5	18,223	–	959	–	473

Program Activity Summary: This program activity promotes excellence in program and corporate management in support of Infrastructure Canada’s priorities. Internal services consist of Information Technology, Information Management, Financial Management, Human Resources Management, Legal Services, Facilities/Asset Management, Internal Audit; Evaluation, Public Affairs/Communications and Management and Oversight.

Planning Highlights: During the planning period, the program will:

• review its financial systems and processes to improve service levels and facilitate accelerated payment processing; implement new risk-based financial policies, procedures and controls to ensure a sound financial management regime is in place; and continue modernizing departmental facilities to increase the efficiency of functional design and space utilization;
• continue its efforts to realize the priorities outlined in the 2008-09 Integrated Human Resources Plan including:
  • Modernization/Enabling Infrastructure: Human Resources planning remains a high priority, and plans will be developed, both at the corporate and branch levels.
  • Recruitment: Recruitment to close the gaps in all occupational groups will be intensified, taking into account turnover rates and the need to attract employees with the right mix of skills and experience.
  • Retention: Turnover rates will continue to be monitored closely, and exit survey highlights will be shared with management and employees via semi-annual postings on the department’s InfraNet. The development of retention strategies will continue.
  • Development: Infrastructure Canada will implement an ES Development Program for ES-2 to-4 employees. As well, at least 90% of all employees will have learning plans that are reviewed and updated as required.
  • Diversity, Employment Equity and Official Languages: A diversity awareness survey will be conducted, and diversity training related to staffing will be offered. Employment equity targets will continue to be monitored and any gaps will be considered in staffing actions. Infrastructure Canada will continue to ensure it has the capacity to deliver its programs and services to both employees and the public.
• continue to implement its Values and Ethics initiatives to support the 2008-09 Public Service Renewal Action Plan and serve to guide and support its employees in their professional activities, and maintain and enhance public confidence in the integrity of the public service. An Inherent Values and Ethics Risks survey was conducted at the end of 2008 as an initial step to the development of the departmental Code of Conduct;
• continue to evaluate the effectiveness of utilizing interdepartmental resources for departmental access to an Integrity Office as well as for Informal Conflict Management Services through Memoranda of Understanding with Transport Canada and the Department of Fisheries and Oceans;
• continue, through a variety of communications and marketing initiatives, to raise awareness among Canadians about the Government of Canada’s accelerated investments in infrastructure for which the department is responsible and also continue to proactively engage media in announcements, and respond to media and public enquiries;
• continue to support the department through the management of briefing coordination, executive correspondence and services relating to access to information requests;
• continue using information technology and information management products and services strategically to support Infrastructure Canada priorities;
• manage the existing Master Service Agreement for shared services, related to information technology, with Public Works Government Services Canada and implement additional shared services.
• promote timely identification of Shared Information Management System for Infrastructure requirements to enable continued support of the Building Canada plan and implement further improvements to the reporting tools and easier access to information captured in the system;
• further develop a new GeoPortal to organize all Infrastructure Canada-funded projects by location on a virtual map and provide detailed information on all projects;
• continue application of the Management of Information Technology Security standards to all departmental applications and technical solutions;
• decrease Internal Audit dependence on consultants for the provision of audit services. All audit engagements will be planned, managed and reported on by Infrastructure Canada internal audit resources. Consultants will be engaged only to assist with the examination phase when required. Infrastructure Canada will be compliant with the Treasury Board Policy on Internal Audit with regard to the audit committee requirements in that it will have in place an audit committee comprised of three external members and chaired by the Deputy Minister, and effective April 1, 2009, the independence of the Chief Audit Executive will be secured with a direct reporting relationship to the Deputy Minister. Internal Audit will expand its services to include continuous auditing and introduce a robust follow-up procedure for audit recommendations and related management action plans. Professional development of staff will continue and compliance with the Institute of Internal Auditors’ Professional Standards will be monitored;
• continue to implement the departmental evaluation policy by providing several results-based management services in different areas, in support of the sound administration of programs, to its internal clients to ensure that Infrastructure Canada’s managers obtain timely, strategically focused, objective and evidence-based information on the performance of programs and policies to produce better results for Canadians. Evaluation Services will continue to hire new employees at senior and junior positions to ensure that it has the capacity to deliver its evaluation plan. A new Treasury Board evaluation policy is expected to be released in 2009-10. Based on this new policy and expected guidance and support of the Treasury Board on best practices of evaluation, Infrastructure Canada will review its roles and responsibilities, planned activities and resource requirements for evaluation; and
• continue to promote an integrated risk management approach within the department.

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