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Minister’s Message
Denis Lebel
As Canada’s Minister of Transport, Infrastructure and Communities, I am pleased to present Infrastructure Canada’s Report on Plans and Priorities for 2012-13. The report outlines the Department’s commitment to continue to work with other orders of government to sustain and improve Canada’s network of public infrastructure, while keeping costs down and ensuring value for Canadians.
2012 marks an important milestone for Infrastructure Canada as it celebrates its 10th anniversary. Infrastructure Canada’s work in partnership with others has resulted in many thousands of projects nationwide since its creation in 2002. In the last few years alone, under Canada’s Economic Action Plan and the Building Canada Plan, the Department has committed more than $10.7 billion towards approximately 6,400 infrastructure projects across the country. Together with the funding from provinces, territories and municipalities, the total investment is more than $30 billion since January 2009. This investment has helped support jobs in every part of Canada and has fostered a competitive national economy.
These projects have also helped generate lasting benefits for communities across Canada. Contributions towards better roads, bridges and public transit, to more recreational facilities and to cleaner and more reliable water supplies together make a community and a country stronger.
Our work fostering jobs and economic growth is not finished. The Building Canada Plan and other sunsetting programs will continue to support thousands of public infrastructure projects across Canada until 2017. The Department will also deliver $2 billion annually through the Gas Tax Fund, providing stable and predictable funding for municipal infrastructure on a permanent basis.
For the longer term, I and my Department are working with provinces, territories, the Federation of Canadian Municipalities and other stakeholders to develop a long-term plan for public infrastructure that extends beyond the expiry of the Building Canada Plan in 2014.
We have already started this process by working with our partners to take stock of our collective accomplishments and to identify priorities and key challenges for the future. As this important work unfolds over the next year, its results will contribute to the ongoing renewal and improvement of public infrastructure, which will provide concrete and lasting benefits for all Canadians.
I invite you to follow our progress as we move forward in implementing our infrastructure goals, at www.infrastructure.gc.ca.
The Honourable Denis Lebel, P.C., M.P.
Minister of Transport, Infrastructure and Communities and Minister of
the Economic Development Agency of Canada for the Regions of Quebec
Section I: Organizational Overview
1.1 Raison d’être
Modern, world-class public infrastructure is a key factor in achieving the Government of Canada’s priorities of a stronger economy, a cleaner environment, and more prosperous, safer communities. Infrastructure Canada leads the Government of Canada’s efforts in addressing Canada’s public infrastructure challenges.
1.2 Responsibilities
I. Overview
Infrastructure Canada is responsible for federal efforts to enhance Canada’s public infrastructure through investments in provincial, territorial and municipal assets, engagement in key partnerships and the development and implementation of sound policies. Established in 2002, the Department provides funding support to provincial, territorial and municipal governments to ensure that Canadians benefit from world-class public infrastructure from coast to coast to coast.
As shown in Figure 1, federal support for provincial, territorial and municipal public infrastructure has increased significantly over the past decade. Infrastructure Canada
is the key contributor of federal support.
Figure 1: Federal Infrastructure Support for Provincial, Territorial and Municipal Infrastructure
Building for Prosperity
A Strong Tradition
From the canals of the pre-confederation era, to trans-continental rail, to the golden age of public infrastructure investments in the 1960s, Canadian nation-building has been a collaborative endeavour that has united a growing country and created a sound foundation for today’s prosperity. Over the past decade, provincial, territorial and municipal governments, with the funding support from the Government of Canada, have been working to address public infrastructure needs across the country. From the creation of Infrastructure Canada in 2002, to the historic Building Canada Plan in 2007 and the success of the recent Economic Action Plan, the Government of Canada has leveraged tens of billions of dollars for investments in public infrastructure projects – projects that provide cleaner water, get us to work, encourage job creation, bring our goods to market and bring us together at the community level.
Looking at where we are today, the benefits of these investments in public infrastructure are clear. But the success of recent investments does not mean that the work of Canada’s three orders of government is complete. While the average age of Canada’s core public infrastructure has declined over the past decade (see Figure 2), construction, rehabilitation, replacement and expansion of public infrastructure remains necessary in a globally competitive environment. Governments everywhere are looking at how to invest responsibly in order to maintain competitiveness and high standards of living.
Figure 2: Average Age of Infrastructure
Long description
Public Infrastructure in Canada
Canada’s public infrastructure forms the backbone of our nation. From the water we drink to the roads we drive on, infrastructure touches every citizen each and every day. Our quality of life, prospering communities and resilient economy depend on our systems of public infrastructure.
Economy: Public infrastructure investments support our economic growth and productivity by allowing goods and people to move more efficiently, facilitating trade activities, promoting local and regional development, and supporting job creation. As an exporting nation, an integrated and efficient national transportation system, with strong local and regional networks, is of critical importance to Canada. These systems are key areas where the benefits of labour intensive investment are realized. They facilitate commerce, reduce the costs of trade, and ultimately support competitiveness and long-term growth.
Environment: Improved infrastructure systems also support Canada’s efforts to protect its natural environment. Applying sustainable design principles as well as building green infrastructure, such as wastewater treatment plants and green energy facilities, makes our cities more liveable and ensures that Canadians benefit from clean air, water and land now and for future generations.
Community: Communities compete globally for investments and for a skilled labour force. Investments in safe drinking water and access to reliable public transit as well as to cultural and recreational facilities are vital to building attractive, prosperous communities that are competitive. Infrastructure investments, even small investments in community infrastructure, can be transformational, creating vibrant places to work and live.
Looking Ahead
Sustaining and improving Canada’s network of public infrastructure requires the involvement of all orders of government. While the bulk of public infrastructure in Canada is owned and managed by provincial, territorial and municipal governments, the Government of Canada recognizes the central role that this infrastructure plays in the lives of all citizens and in the overall economic well-being of the country.
In Budget 2011, the federal government committed to working with provinces, territories, the Federation of Canadian Municipalities and other stakeholders to develop a long-term plan for public infrastructure that extends beyond the expiry of the Building Canada Plan. In November, 2011 Infrastructure Canada launched a formal engagement process towards developing this long-term plan. Continuing through 2012, this engagement process will take place in three phases to deliver an effective, sustainable, long-term infrastructure plan for Canadians.
For the 2012-13 planning period, Infrastructure Canada will focus on this commitment. Looking forward, the federal government aims to ensure that its significant investments in public infrastructure will continue to support the economic growth and prosperity of the nation.
Additional information on Infrastructure Canada’s Engagement Process for Developing
a Long-Term Infrastructure Plan can be found at: http://www.infrastructure.gc.ca/plan/plan-eng.html.
II. Programs
Infrastructure Canada leads federal efforts to ensure that Canadians benefit from world-class, modern public infrastructure. Our investments address local and regional infrastructure needs, while advancing national priorities. This, in turn, helps to make the water that Canadians drink and the air that they breathe cleaner, keeps people and goods on the move, and makes Canada’s economy
stronger. The Department’s funding is delivered through the following suite of programs: 
1.3 Strategic Outcomes and Program Activity Architecture (PAA)
Infrastructure Canada’s Program Activity Architecture (PAA) structure has two active strategic outcomes1 comprised of nine program activities, as detailed in Figure 3. Section II of this report discusses in detail the program activities, as well as the Internal Services program activity.
The Department’s strategic outcomes speak to longer term infrastructure investments which include stable and predictable funding programs such as the Gas Tax Fund, as well as targeted programs such as the Building Canada Fund. While Strategic Outcome 1 provides federal transfers to provincial, territorial and municipal governments for their infrastructure priorities in order to help maintain a high level of quality core public infrastructure across the country, Strategic Outcome 2 provides targeted project-specific investments to address federal/provincial/territorial priorities in both large and small communities as well as large strategic investments of national and regional benefit. Overall, the program activities result in the construction, renewal and/or enhancement of public infrastructure, contributing to broad government objectives of a competitive economy, a cleaner environment and liveable communities.
Figure 3: Program Activity Architecture (PAA)
Long description
1.4 Organizational Priorities
Infrastructure Canada’s organizational priorities for 2012-13 include the following:
| Priority | Type2 | Strategic Outcome(s) and/or Program Activity(ies) |
|---|---|---|
| Work with provinces, territories, the Federation of Canadian Municipalities and other stakeholders to develop a long-term plan for public infrastructure that extends beyond the expiry of the Building Canada Plan. | New |
|
| Description | ||
Why is this a priority?
|
||
| Priority | Type | Strategic Outcome(s) and/or Program Activity(ies) |
|---|---|---|
| Continue to implement, with sound management and accountability, core infrastructure programs and projects. | Ongoing |
|
| Description | ||
Why is this a priority?
|
||
| Priority | Type | Strategic Outcome(s) and/or Program Activity(ies) |
|---|---|---|
| Continue to make improvements to information management systems, ensuring accurate, flexible and effective data and information, to report on contribution programs. | Previously committed to |
|
| Description | ||
Why is this a priority?
|
||
| Priority | Type | Strategic Outcome(s) and/or Program Activity(ies) |
|---|---|---|
| Maximize operational efficiencies in continued effective delivery of departmental mandate. | New |
|
| Description | ||
Why is this a priority?
|
||
1.5 Risk Analysis
1.5.1 Risk Management Approach
Infrastructure Canada systematically manages a variety of risks as it advances its strategic outcomes. As new environmental risk factors emerge and risk responses are implemented, the Department continues to apply a comprehensive approach to actively identify, assess and manage risks at the strategic, operational, program and project levels. This approach includes conducting regular environmental scans to identify internal and external risk factors, direct participation of the Department’s executives in identifying and assessing key risks and the development of adequate risk responses to achieve departmental priorities and advance strategic outcomes. This information is then captured in the Department’s Corporate Risk Profile and semi-annual update reports. Finally, risk management is fully integrated into Infrastructure Canada’s decision-making processes, and the lessons learned from these regular risk update exercises are embedded into the Department’s culture at all working levels, enhancing program efficiency as well as stewardship.
The last update to the Corporate Risk Profile occurred in the fall of 2011. In 2012-13,
the Department will review and update its risks in the context of announcements in Budget 2012 and initial findings for the long-term plan for public infrastructure and the potential impact these may have on the Department.
1.5.2 Departmental Risks
As a result of the most recent Corporate Risk Profile update, undertaken in 2011-12, the revised risk profile lists three risks fewer than the eleven risks from 2010 with the overall level of likelihood and impact trending downwards for the remaining risks. This is attributed to a maturing and robust integrated risk management capability within the Department as well as the winding down of the EAP infrastructure investment programs. For 2012-13, the following are the three highest ranked risks to the achievement of the Department’s strategic outcomes:
-
Infrastructure Canada may not have the information to generate timely reporting on results and performance.
The associated risk responses are focused on the development of clear measurable results for the Department’s programs. The objective is to ensure that adequate data management processes and governance structures continue to be in place for data quality and integrity. The Department has performance measurement strategies for each funding program, and exemption reports and standardized reporting mechanisms are in place.
Risk responses include an assessment of the current performance measurement approach to determine if additional measures are needed to strengthen departmental and program reporting. The Department will also leverage its IM/IT Investment Plan to address information management gaps to enhance flexible and cost-effective delivery. It will continue to strengthen initiatives that improve data quality including training, data entry and amendment procedures and monitoring of and coordination with delivery partners.
-
Infrastructure Canada’s information management systems and technology may not be sufficiently flexible in responding to the management of its infrastructure programs delivery and reporting requirements on a timely basis.
This risk was the highest ranked risk in the 2010 risk profile exercise. Since then, there has been a significant decrease of its likelihood and impact to the Department. The development of a new Shared Information Management System for Infrastructure (SIMSI) governance framework and the finalization of a long-term SIMSI Strategic Plan have produced positive results linked to the implementation timetable to meet organizational and business needs. However, additional information management systems’ upgrades may not be implemented in a timely manner potentially impacting the Department’s ability to efficiently deliver and report on its programs.
Risk responses, identified in the previous risk profile, will continue to be implemented with particular attention to further enhancements of the long-term SIMSI Strategic Plan. Recognizing the interconnectivity between this risk and the top ranked risk of timely reporting on results and performance, the Department will leverage resources by focusing on implementing risk responses that ultimately mitigate both risks; e.g. the refinement of SIMSI data quality needs.
-
Infrastructure Canada’s actual transfer payment expenses may be less than forecasted by partners thus requiring re-profiling of funds.
The Department works continually with its partners to ensure that forecasts are as accurate as possible, and to profile INFC’s appropriated funding to meet the needs of its partners. However, there is a potential for funding lapses to persist due to the complex nature of infrastructure projects where legitimate delays may occur related to various factors including environmental assessments, weather, and shortages in materials and labour. While the Department commits funds upon project approval, federal funding does not actually flow to contribution recipients until they have submitted claims for actual costs incurred. This is a key risk management approach for the Department, one that ensures that the Department only makes reimbursements for work that has already been undertaken.
Risk responses include rigorous monthly examination of financial reports and applying more stringent monitoring for high risk programs and projects. Integrated financial systems, including their harmonization with the SIMSI can enhance this ongoing monitoring, and such work is underway with the development of the Financial Planning and Analysis Application. Other risk responses include continuing to focus on regular consultations with Provinces/Territories/Private-sector Partners and Stakeholders to reiterate program deadlines, accountabilities and the importance of timely processing of claims.
1.5.3 Risk Tolerance
Senior executives at Infrastructure Canada considered their tolerance level for each risk. In undertaking this activity, risk tolerance was defined as the willingness of the organization to accept or reject a given level of residual risk (exposure). It recognizes that clarity on risk tolerance at all levels of the organization is necessary to support informed risk taking and to foster risk smart approaches to decision-making. As such, risk response efforts, including allocating resources to implement mitigation measures on risk threats or to build on risk opportunities, are influenced by the stated risk tolerance.
This year, only one risk was designated as “not tolerable”:
Infrastructure Canada may conduct insufficient monitoring of partners/recipients/ projects to ensure the funds are used for intended purposes and achieve stated outcomes.
Although not one of the highest ranked risks, senior executives have retained its “no tolerance” designation from its last assessment. As such, while the Department has put in place an extremely robust monitoring strategy for projects under a variety of infrastructure programming over the last two years, this risk will be closely monitored with resources allocated to manage the risk, as required.
1.6 Planning Summary
Please note that the information contained in this report reflects the Department's Main Estimates for 2012-13.
Investment in strong, modern, world-class public infrastructure is a key element in achieving the Government of Canada’s priorities of a stronger economy, a cleaner environment and liveable communities. Over the past three years, federal investments in public infrastructure, through both Canada’s Economic Action Plan and the Building Canada Plan, have further leveraged significant contributions from provinces, territories, municipalities and other stakeholders, resulting in cumulative commitments of more than $30 billion. These investments, supporting large and small projects from coast to coast to coast, are strengthening public infrastructure while enabling and sustaining employment in communities across Canada. Together, they provide an economic platform that will benefit Canadians for many years to come.
The Department will continue to make strategic investments in 2012-13, with forecast spending of $5.1 billion towards construction of public infrastructure, supporting jobs and business growth in many sectors and in regions across the country. As construction on thousands of approved projects advances, the Department will continue to focus on strong management and prudent stewardship, oversight of claims, and project reporting. For programs with available funding, Infrastructure Canada will continue to work with partners to commit funds to priority projects and initiatives. While continuing to deliver on this program mandate, and on the organizational priorities outlined in Section 1.4, the Department will further ensure ongoing value for Canadians through achieving further reductions to its operating expenditures, in support of fiscal restraint and a return to fiscal balance.
1.6.1 Financial and Human Resources
Infrastructure Canada’s financial and human resources information over the planning period are summarized in the two tables that follow.
| 2012-13 | 2013-14 | 2014-15 |
|---|---|---|
| 5,105,563 | 3,594,252 | 887,1503 |
| 2012-13 | 2013-144 | 2014-154 |
|---|---|---|
| 329 | To Be Determined (TBD) | TBD |
Infrastructure Canada’s full-time equivalents (FTEs) are managed flexibly. FTEs are readily re-allocated as needed during the year to reflect specific requirements of funding programs, operational requirements, and other government priorities. Operating funding is also allocated to administration of individual programs on a similar basis. Infrastructure Canada does not have a regular and ongoing level of funding for departmental operational costs (e.g. salaries, operations and maintenance – “A-Base”). Instead, funding for Infrastructure Canada’s operating requirements have been sourced, and approved, from its program funding envelope – with annual funding for operational requirements fluctuating in response to the actual oversight and management necessary for active, or sunsetting, programs.
1.6.2 Program Activities by Strategic Outcome and Planned Spending
The planning summary table below identifies the planned spending and strategic outcomes for each departmental program activity, as well as the alignment of these activities to the Government of Canada outcomes.
| Strategic Outcome 1: Provinces, territories and municipalities have federal financial support for their infrastructure priorities. | |||||
|---|---|---|---|---|---|
| Performance Indicators | Targets | ||||
| Public Investment in Infrastructure as a percentage of GDP (G7 and Euro countries). | G7 average. | ||||
| Program Activity | Forecast Spending 2011-12 (in $ thousands) |
Planned Spending (in $ thousands) |
Alignment to Government of Canada Outcomes |
||
| 2012-13 | 2013-14 | 2014-15 | |||
| Provincial-Territorial Infrastructure Base Fund |
391,069 | 233,392 | 152,534 | 0 | Strong Economic Growth |
| Gas Tax Fund | 2,321,025 | 1,976,118 | 1,974,503 | TBD5 | Strong Economic Growth |
| Sub-Total: | 2,712,094 | 2,209,510 | 2,127,037 | 0 | |
| Strategic Outcome 2: Funding for quality, cost-effective public infrastructure that meets the needs of Canadians in a competitive economy, a cleaner environment and liveable communities is provided. | |||||
|---|---|---|---|---|---|
| Performance Indicators | Targets | ||||
| Average age of core public infrastructure that contributes to a stronger economy is maintained or reduced. | 14.5 years6 | ||||
| Average age of core public infrastructure that promotes liveable communities is maintained or reduced. | 14.7 years7 | ||||
| Average age of core public infrastructure that contributes to a cleaner environment is maintained or reduced. | 17.1 years8 | ||||
| Program Activity | Forecast Spending 2011-12 (in $ thousands) |
Planned Spending (in $ thousands) |
Alignment to Government of Canada Outcomes |
||
| 2012-13 | 2013-14 | 2014-15 | |||
| Building Canada Fund-Communities Component | 241,897 | 251,814 | 142,654 | 102,036 | Strong Economic Growth |
| Building Canada Fund-Major Infrastructure Component | 804,035 | 1,965,120 | 937,026 | 605,148 | Strong Economic Growth |
| Green Infrastructure Fund |
60,294 | 82,105 | 117,392 | 0 | Clean and Healthy Environment |
| Canada Strategic Infrastructure Fund | 267,201 | 410,882 | 235,546 | 167,245 | Strong Economic Growth |
| Municipal Rural Infrastructure Fund | 109,773 | 96,550 | 41 | 0 | Strong Economic Growth |
| Border Infrastructure Fund |
46,679 | 41,838 | 33,104 | 11,344 | Strong Economic Growth |
| Economic Analysis and Research | 2,825 | 3,7979 | 0 | 0 | Innovative and Knowledge-Based Economy |
| Sub-Total: | 1,532,704 | 2,852,106 | 1,465,763 | 885,773 | |
| Strategic Outcome 3: Construction-ready infrastructure projects are provided with federal funding support.10 | |||||
|---|---|---|---|---|---|
| Performance Indicators | Targets | ||||
| Not applicable. Program activities are expected to be completed in 2011-12. | |||||
| Program Activity | Forecast Spending 2011-12 (in $ thousands) |
Planned Spending (in $ thousands) |
Alignment to Government of Canada Outcomes |
||
| 2012-13 | 2013-14 | 2014-15 | |||
| Infrastructure Stimulus Fund | 798,280 | 0 | 0 | 0 | Strong Economic Growth |
| Building Canada Fund-Communities Component Top-Up | 145,479 | 0 | 0 | 0 | Strong Economic Growth |
| Sub-Total: | 943,759 | 0 | 0 | 0 | |
| Internal Services: Underpins and supports the entire Department in meeting Government of Canada outcomes. | |||||
|---|---|---|---|---|---|
| Program Activity | Forecast Spending 2011-12 (in $ thousands) |
Planned Spending (in $ thousands) |
|||
| 2012-13 | 2013-1411 | 2014-1511 | |||
| Internal Services | 42,647 | 43,947 | 1,452 | 1,377 | |
| Sub-Total: | 42,647 | 43,947 | 1,452 | 1,377 | |
| Total Planned Spending: | 5,231,204 | 5,105,563 | 3,594,252 | 887,150 | |
1.6.3 Contribution to the Federal Sustainable Development Strategy (FSDS)
The Federal Sustainable Development Strategy (FSDS) represents a major step forward
for the Government of Canada by including environmental sustainability and strategic environmental assessment as an integral part of its decision-making processes.
Although Infrastructure Canada is not one of the 27 departments required to table a Departmental Sustainable Development Strategy or to report on its contribution to the FSDS, the Department continues to play an important role in enabling stakeholders in moving towards a more sustainable future.
The Department’s broad range of infrastructure programs supports thousands of projects across the nation that contribute to a cleaner environment in areas such as drinking water, wastewater, clean energy, public transit and brownfield redevelopment. Many of these infrastructure investments directly support two of the FSDS Themes:
- Maintaining Water Quality and Availability.
- Addressing Climate Change and Air Quality.
Several projects highlighted in Section 2 of this Report illustrate the ways these two themes are being addressed. For example, in support of the first theme, Maintaining Water Quality and Availability, a wastewater infrastructure project in the Village of La Loche, Saskatchewan, is being funded through Building Canada Fund – Communities Component to enable enhanced wastewater storage capacity and improved water treatment processes (see Section 2.2.1 for more details).
Several projects highlighted also illustrate support for theme two, Addressing Climate Change and Air Quality. The City of Toronto’s use of Gas Tax funding for investment in public transit will further reduce traffic congestion, greenhouse gas emissions and air pollution (see Section 2.1.2 for more details). The Summerside Wind Farm Project in Prince Edward Island, funded through the Municipal Rural Infrastructure Fund, is reducing the demand on fossil fuels (see Section 2.2.5 for more details). And, the Mayo B hydro and Carmacks-Stewart transmission project, supported through the wastewater infrastructure category of the Green Infrastructure Fund, will enhance Yukon’s electricity supply and reduce emissions of greenhouse gases (see Section 2.2.3 for more details).
Beyond providing funding through federal infrastructure funding programs, as noted, Infrastructure Canada has also taken measures in support of Theme 4, Shrinking the Environmental Footprint – Beginning with Government. Infrastructure Canada is moving forward with the implementation of its recent Greening Action Plan, which includes aspects related to green procurement, waste and energy reduction and awareness and promotion. More details on Infrastructure Canada’s green procurement initiatives can be found in the Supplementary Information Tables on Greening Government Operations, accessible through Treasury Board Secretariat’s website: http://www.tbs-sct.gc.ca/est-pre/index-eng.asp.
1.7 Expenditure Profile
1.7.1 Spending Trends
In 2012-13, Infrastructure Canada has planned spending of $5.1 billion on infrastructure investments under its programs to meet the expected results of its program activities and contribute to its strategic outcomes.
Figure 4: Departmental Spending Trend
Note: Planned spending related to the infrastructure funds announced under the Economic Action Plan (Budget 2009) was planned to continue until 2011-12, with the exception of the Green Infrastructure Fund, which extends beyond 2012-13.
1.7.2 Variations in Program Spending Trends
In 2011-12 significant effort was dedicated to the closing out of two key programs the Department was responsible for under the Economic Action Plan (EAP): the Infrastructure Stimulus Fund (ISF) and the Building Canada Fund-Communities Component Top-Up (BCF-CC Top-Up). At the same time, the Department continued to implement programs under the Building Canada Plan.
Since 2008-09, the Department’s spending continued to increase, peaking in 2010-11 with the implementation of the ISF and the BCF-CC Top-Up. From 2010-11 to 2012-13, the level of spending declines as the programs under the EAP wind down and end in 2011-12 (with the exception of the Green Infrastructure Fund, which extends beyond 2012). Beyond 2012-13, the Department will continue to flow funding towards implementation of its existing programs under the Building Canada Plan. In addition, this graph does not include transfer payment funds for the Gas Tax Fund beyond 2013-14. Legislation enacting permanent funding for the Gas Tax Fund received Royal Assent on December 15, 2011. Contribution funding under this program for 2014-15 is not reflected above but will be reflected in future documents after funding is approved by Parliament through a future Estimates process.
1.8 Estimates by Vote
For information on our organizational votes and/or statutory expenditures, please see the 2012-13 Main Estimates publication. An electronic version of the Main Estimates is available at http://www.tbs-sct.gc.ca/est-pre/20122013/me-bpd/docs/me-bpd-eng.pdf.
