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Section II — Analysis of Program Activities by Strategic Outcome

2.1 Strategic Outcome

 
Strengthen the full participation of women in the economic, social and cultural life of Canada
 

In 2008–2009, SWC sought to achieve a single strategic outcome: strengthen the full participation of women in the economic, social and cultural life of Canada. While different players across the federal government do also contribute to this outcome, SWC plays a crucial role in its realization. As such, the agency has developed a Performance Measurement Framework to monitor progress, identify gaps and make adjustments to ensure this outcome. To monitor progress toward the strategic outcome, SWC uses performance indicators that demonstrate the extent to which women are represented in senior decision-making positions, the labour market and non-traditional occupations. To support this strategic outcome, SWC carries out two program activities, as discussed below.
 

2.2 Program Activity by Strategic Outcome
 


Program Activity 1: Strategic policy advice and partnerships
2008–2009
Financial Resources ($ millions) Human Resources (FTEs)
Planned Total Actual Planned Actual Difference
spending authorities spending      
2.5 3.2 3.1 24 24
Expected Performance Targets Perfor- Performance
results indicators9   mance summary
      status  
  • New and improved policy positions and strategies
Strategies/ policies/ initiatives are developed with key departments that address the situation of women in Canada 100% Met all SWC is making progress toward these expected results through:
  • increased partnerships with federal organizations in addressing issues that affect women.
  • Sustain- able capacity of other govern- ment depart- ments and agencies to apply GBA8
Percentage of other depart- ments with increased capacity to incorporate GBA into their policy and program activities    
  • increased knowledge of GBA among federal departments/agencies,
  • enhanced central agency role in ensuring accountability for gender equality,
  • growing recognition of GBA by departments/agencies in preparing TB Submissions and Memoranda to Cabinet.
 

Benefits for Canadians

As indicated in its Management, Resources and Results Structure (MRRS), SWC provides advice, strategic policy analyses, training and develops partnerships to support federal departments and central agencies in meeting the specific needs of women. It also helps build their capacity to integrate GBA in their policies, programs and services. This is done through the Program Activity, strategic policy advice and partnerships. This Program Activity is linked to the Government of Canada’s outcome, Government Affairs. As such, SWC contributes toward an efficient and effective operation of government machinery, which is demonstrated by federal institutions that are equipped with the knowledge, expertise and tools required to integrate gender considerations in policy formulation, program development and service delivery and to address differential impacts adversely affecting women.

In 2008–2009, SWC implemented a number of initiatives to help build GBA capacity within federal institutions, as demonstrated by the increased number of departments and agencies that sought and/or received the agency’s assistance in this area. As a result, there is evidence of increased familiarity with GBA among federal institutions. As well, with the enhanced GBA challenge functions of central agencies, there is greater focus on accountability for gender equality within the federal government. As central agencies’ capacity to exercise their challenge function continues to grow and departments become more familiar with the expectations of GBA and its implementation, these combined activities are expected to lead to improved policy positions and strategies, strengthening women’s participation. This will, in turn, contribute to SWC’s strategic outcome: strengthen the full participation of women in the economic, social and cultural life of Canada.

Performance Analysis

New or improved policy positions and strategies:  The discussion below shows how the initiatives carried out during the reporting year contributed to the achievement of SWC’s expected result: new or improved policy positions and strategies.

  • Aboriginal women:  In its Report on Plans and Priorities for 2008–2009, SWC committed to continuing to build strategic partnerships with other federal departments, different levels of government and other organizations to remove systemic barriers to women’s participation and to influence public policies and programs. As such, the agency worked with federal institutions, provincial/territorial governments and Aboriginal organizations on evidence-based and culturally relevant policies and programs to address Aboriginal women’s issues. Some of the key results to which SWC contributed are highlighted below:
     
    • Aboriginal women’s human rights protection and repeal of S.67 of the Canadian Human Rights Act
       
    • advancing legislation on matrimonial real property rights on reserves
       
    • As part of federal response, SWC funded initiatives that addressed the National Aboriginal Women’s Summit recommendations related to the well-being, equality and security of Aboriginal women.
     
  • In preparation for the second National Aboriginal Women’s Summit (NAWS) in 2008, SWC hosted a workshop, Moving Toward Culturally Relevant Gender-Based Analysis. The workshop brought together participants from Status of Women Canada and other federal and provincial government bodies to share knowledge and experience about culturally relevant forms of GBA. The FPT workshop which was set up to build momentum for the National Aboriginal Women’s Summit 2008 provided an overview of the key components of a culturally-relevant GBA framework, as it was generated by Aboriginal women and organizations, an update on what was happening on culturally-relevant GBA in the provinces and territories and allowed for the sharing of best practices.
  • Through the federal/provincial/territorial (F/P/T) forum, SWC continued its work in training justice officials on the topic of Aboriginal women and violence. This initiative is expected to bring about changes that help improve the treatment of Aboriginal women by the justice system.
  • Human Trafficking:  In 2008–2009, SWC, in partnership with other federal organizations, developed and delivered training to front-line law enforcement and justice officials across Canada on the laws and issues surrounding human trafficking. In delivering the SWC section of the training, the vulnerability of Aboriginal women and girls to trafficking within Canada was highlighted. It is expected that through this initiative, SWC will have contributed to greater understanding among law enforcement, border and immigration officials in identifying victims of human trafficking and in prosecuting traffickers.
     
  • International:  In March 2009, The Minister of State (Status of Women) led the Canadian delegation at the United Nations Commission on the Status of Women. Canada made important contributions to the outcomes document in key areas, including the need to demonstrate that men and women equally share responsibilities in the efforts to achieve gender equality.
     
  • SWC co-led, with the Department of Canadian Heritage, the preparations for Canada’s appearance in October 2008 before the U.N. Committee responsible for monitoring the compliance by State Parties with the U.N. Convention on the Elimination of All Forms of Discrimination against Women (CEDAW). Canada submitted the combined 6th and 7th Reports (April 1999-March 2006) to the UN CEDAW Committee, highlighting a number of successes and challenges, including the situation of Aboriginal women and women’s economic security.
     
  • Gender Equality Indicators Project:  As indicated in the Report on Plans and Priorities for 2008–2009, SWC continued to work in collaboration with Statistics Canada and other departments such as Indian and Northern Affairs Canada, Human Resources and Skills Development Canada and Health Canada to develop a national set of gender equality indicators. A plan has been developed to establish the gender equality indicators for 2011.
     

Sustainable capacity of other government departments and agencies to apply GBA:  In 2008–2009, SWC continued to provide assistance in the form of GBA trainers and training materials, tools, workshops and expertise to different federal organizations. Departments such as Human Resources and Skills Development Canada and Indian and Northern Affairs Canada continued to look to SWC for leadership, capacity building, expertise and support related to GBA. Others such as Industry Canada are beginning to build GBA capacity. Departments such as Department of National Defence or central agencies (the Privy Council Office, Treasury Board Secretariat, Department of Finance) continue to build a stronger GBA foundation. Other organizations (the Office of the Auditor General, the Parliamentary Research Branch, and the Parliamentary Standing Committee on the Status of Women) required specific assistance in GBA, relevant to their mandate or specific initiatives. To determine the extent to which SWC is achieving the expected result through this Program Activity, a performance analysis was carried out for 2008–2009 with the following key findings:
 

Evidence of growing recognition of GBA as an important tool to integrate gender considerations in policy formulation, program development and service delivery (e.g. the recommendation for the Office of the Auditor General to conduct an audit of the implementation of GBA in federal institutions).
 

  • Evidence of increased interest among federal institutions in GBA as demonstrated by the growing demand for SWC assistance in the form of information, training, advice and expertise to develop GBA capacity.
     
  • With the sustained SWC efforts, Treasury Board Secretariat and the Privy Council Office have taken the initiative to develop their own GBA tools, resulting in increased knowledge of the subject in central agencies.
     
  • Increased number of GBA analysts (120 analysts by 2008–2009) in central agencies, leading to enhanced challenge function to strengthen accountability for gender equality within the federal government.
     

In 2008–2009, the Standing Committee on the Status of Women tabled a report on GBA entitled Towards Gender-Responsive Budgeting: Rising to the Challenge of Achieving Gender Equality. One of the recommendations in this report was for the Office of the Auditor General to conduct an audit on the implementation of GBA in federal organizations. The report of the Auditor General was tabled in June 2009 and will be reported on more fully in the 2009–2010 Departmental Performance Report. While it is too early to assess the impact of this recommendation, it is further evidence of SWC’s progress in promoting GBA within federal institutions.
 


Program Activity 2: Financial assistance for projects to improve social, economic and cultural outcomes for women
2008–2009
Financial Resources ($ millions) Human Resources (FTEs)
Planned Total Actual Planned Actual Difference
spending authorities spending      
29.2 32.9 29.3 65 65
 
Expected Performance Targets Perfor- Performance
results indicators9   mance summary
      status  
  • Increased opportunities for women to participate fully in the economic, social and democratic life of Canada
Proportion of funded projects that demonstrate level of women’s participation in their communities 10% of projects Met all More than 80% of the completed projects demonstrated results that showed increased awareness and knowledge acquisition among women in identifying barriers that impede their participation in society.10 With increased knowledge, there is evidence of women seeking further opportunities to become full participants in Canadian society.

Benefits for Canadians

In fulfilling its mandate, SWC seeks to achieve an enduring benefit for Canadians: strengthen the full participation of women in the economic, social and cultural life of Canada. This strategic outcome flows from the agency’s two Program Activities, which are designed to achieve enabling results (focused on public policies, programs and services) and empowering results (focused on women).

Through this Program Activity, SWC provides financial and professional assistance to projects at local, regional and national levels. These projects are diverse in nature and scope, target different groups, address a range of issues and apply a variety of strategies. The projects are designed to achieve results that demonstrate awareness, knowledge and skills acquired by women to identify and address barriers to their participation in society. The Program Activity is linked to the Government of Canada’s outcome, Economic Affairs.

In 2008–2009, SWC initiatives empowered women by providing them with the tools to identify, address and remove barriers to their full participation in Canadian society. These results will, in turn, contribute to SWC’s strategic outcome: strengthen the full participation of women in the economic, social and cultural life of Canada. Since 2007, SWC-funded projects have had a direct impact on more than 140,000 women and indirect impact on over 1.6 million in three key areas: women’s economic security and prosperity, violence against women and girls and women’s leadership and decision-making roles.
 

Performance Analysis

In 2008–2009, SWC continued to build on the results achieved through the organizational change process of the previous years to enhance the efficient delivery of its funding program. The examples below demonstrate continued efficiency in key Program areas:

  • Program reach:  SWC continued to broaden its reach with a total of 50 first-time applicants that received funding during the reporting year.
     
  • Project impact:  Since 2007, SWC-funded projects have had a direct impact on more than 140,000 women and indirect impact on over 1.6 million in three key areas.
     
  • Resources leveraged:  Through the WPF, SWC leveraged $378,275, in financial and in-kind contributions through collaborative projects completed in 2008–2009.

SWC has also achieved concrete results that demonstrate progress toward its strategic outcome. The following is a performance analysis for the reporting year, which demonstrates the achievement of the expected result for this Program activity.

In 2008–2009, SWC provided a total of $20,873,303 in grants and contributions to support 350 projects, 98 of which were completed last fiscal year. In addition to the completed projects, SWC also provided financial and professional assistance to 144 ongoing11 and 108 new12 projects. Of the total funding expended, 84 per cent came from the Women’s Community Fund (WCF) and 16 per cent from the Women’s Partnership Fund (WPF).

This three-dimensional pie chart shows the balance of spending between the Women’s Community Fund (about five sixths) and the Women’s Partnership Fund (about one sixth).
 

By using a sampling of the projects completed in 2008–2009, a performance analysis was conducted to determine the extent to which SWC is achieving its expected result and making progress toward its strategic outcome. Of the projects analysed, 50 per cent addressed issues related to women’s economic security and prosperity, 42 per cent violence against women and 8 per cent women’s leadership and decision-making roles. These projects targeted different groups, including Aboriginal women, immigrant women, single mothers and senior women. For example, in 2008–2009, a number of projects addressed issues pertaining to Aboriginal women, including economic security, violence and leadership roles. Through SWC-funded projects, Aboriginal women gained valuable work experience through voluntary assignments and were provided with opportunities to gain knowledge about cultural transmission, inter-generational communication, life and parenting skills and others. In an effort to address violence against Aboriginal women, SWC supported projects designed to inform Aboriginal women on ways to prevent abuse, violence and to increase their safety.

The degree to which the expected result of this Program Activity is achieved is demonstrated by the application of the knowledge acquired and skills developed by women to identify and remove barriers that impede their participation in society. Given that this is an intermediate result, it is expected that, at this level, targeted women would have acquired increased understanding to identify and address the barriers facing them. It is, therefore, demonstrated by attitudinal shifts, changes in practices and increased levels of participation by women in their communities. It should be noted, however, that this result is not entirely attributed to SWC given that its achievement can also be influenced by other factors.

The performance analysis shows that SWC is making gradual progress toward this result. The agency has exceeded its target,13 with 88 per cent of its completed projects having demonstrated raised awareness or knowledge acquisition among women in identifying and/or removing barriers to their participation in their communities. The qualitative results were also evident as women, equipped with new knowledge, skills and practices, sought further opportunities to become full participants in society. Performance reports submitted by funding recipients highlighted a number of success stories:

  • Employment:  women joined internship programs, found full-time or part-time jobs or were actively seeking employment opportunities. (e.g. Thêatre des petites lanternes – Quebec)
     
  • Training:  women enlisted in computer courses with local educational institutes, joined adult education programs, entered post-secondary studies and were pursuing independent job-related skill development activities. (e.g. Volunteer Action Centre of Thunder Bay Inc. – Ontario)
     
  • Community engagement:  project participants were involved in various community-based activities, volunteering for different organizations, sharing the knowledge and skills acquired through SWC-funded activities. (e.g. Cowichan Valley Intercultural and Immigrant Aid Society)
     
  • Accessing services:  project participants sought further assistance, including counselling, legal advice and other social services. (e.g. Aboriginal Women’s Association of PEI Inc.)
     
  • Peer support:  women who experience domestic violence have taken the initiative to form support mechanisms to exchange information, connect with each other, receive care and encouragement and participate in various social and educational activities. (e.g. Community Opportunity and Innovation Network – Ontario)

 

While the discussion above is focused on those indicators that demonstrate achievement of the expected result at the intermediate level, the following summary analysis demonstrates the achievement of two other short-term results and their contribution to the intermediate result.


Short-term result Performance indicator
Increased awareness among women in identifying and/or removing barriers to their participation in their communities Proportion of funded projects that demonstrate raised awareness or knowledge acquisition among women in identifying and/or removing barriers to their participation in their communities

 

The following is a highlight of the key indicators of the first short-term result:

  • Improving Women’s Economic Security and Prosperity:  In 2008–2009, 50 per cent of the projects completed focused on women’s economic security and prosperity. These projects were designed to give information, offer training, facilitate linkages, provide opportunities for work experience and carry out other activities. The objective was to equip women with the tools required to identify and address the barriers that impede their participation in this area. The immediate results achieved were demonstrated by: financial literacy, computer skills, increased knowledge of Canadian labour laws and policies, employability techniques, ability to use local supports and resources, access to education and/or training opportunities and using information about small businesses. For example:
     
    • immigrant women entering the labour market were: familiarized with Canadian labour laws and policies, informed about community services and tools that assist with integration, made aware of job finding techniques and linked with potential employers.
       
    • Aboriginal women seeking to enter the labour market gained work experience through voluntary assignments.
       
    • women interested in self-employment increased their knowledge about small businesses, including credit for women, developing business proposals and plans, marketing, fund-raising and access to mentors, capital, local resources and support programs.
       
  • Ending Violence Against Women and Girls:  In 2008–2009, 42 per cent of the projects completed addressed issues of violence against women and girls. The project activities ranged from information sessions to supporting women through skill development, to adapting models to serve the needs of diverse communities and exploring new and improved ways of services. The analysis for this Program Activity shows that SWC not only exceeded its target but also brought about demonstrable qualitative changes among targeted women, as highlighted below:
     
    • Women demonstrated increased knowledge about the causes and implications of violence, types of abuse, violence prevention, availability of and access to relevant services (e.g. counselling, legal advice, etc.), safety plans and others.
       
    • With increased awareness, women were able to seek and/or obtain assistance, such as professional counselling, legal advice on matters related to child custody, child support and property division.
       
    • Improvement of and access to services for women who experience violence, including testing therapies for survivors of sexual assault and abuse.
       
    • Culturally relevant workshop model adapted to help meet the needs of diverse communities in understanding and dealing with violence. 
  • Encouraging Women’s leadership and democratic participation:  In 2008–2009, SWC continued to support projects designed to increase the participation of women in politics, including municipal elections. These projects were designed to encourage women to become more actively engaged in both the democratic life of Canada as well as to assume leadership roles within the private sector and the community. For example:
     
    • Of the 94 project participants, 38 ran as candidates in their local municipal elections: 13 were elected, including one as mayor. (Union of Nova Scotia Municipalities)

 
The second short-term result is achieved through the WPF which supports collaborative projects that facilitate partnerships and leverage resources.


Short-term result Performance indicator
Increased collaboration with other federal departments, levels of government, non-governmental organizations and the private sector. Proportion of funded projects involving partners
 

In 2008–2009, six collaborative projects were completed, resulting in partnerships with: two federal departments, six provincial governments, four private companies and three non-governmental organizations. With the partnerships being developed through the WPF, SWC is gradually building a sense of ownership on women’s issues among Canadian institutions in the public, private and voluntary sectors. The following are examples of partnerships developed through the 2008–2009 collaborative projects:

  • During 2008–2009, some funding came from sections/divisions/branches of public institutions that address the advancement of women, such as the Women’s Policy Office of the Government of Newfoundland and Labrador, not only promoting horizontality within government, but also linking sections of government departments with similar objectives.
     
  • The collaboration between SWC and Indian and Northern Affairs Canada (e.g. Inuit Gender-Based Analysis project) is an example of partnerships that extend beyond SWC’s financial assistance and lead to further activities and continued engagement on women’s issues. While the project began as a collaborative partnership with INAC and succeeded in laying a strong foundation, the third phase of the Inuit GBA project proceeded with funding from INAC.
     
  • Non-financial partnerships between Women’s Economic Equality Society (WEE) in Nova Scotia and community organizations allowed women to be informed about WEE, thereby providing them with opportunities to explore ways to participate in economic activities.
     

Through the WPF, SWC continues to increase the resources invested for gender equality and to diversify the sources of funding for projects that support the full participation of women in society. In 2008–2009, SWC succeeded in leveraging $378,275 in financial and in-kind contributions for WPF-funded projects that were completed during the reporting year. With the leveraged resources and SWC’s funding of $329,582, the agency succeeded in doubling the funds invested in collaborative projects.

Sisters in Spirit:  A sub-activity,14 Sisters in Spirit (SIS) is a five-year research, education and policy initiative designed to increase public knowledge and understanding about race and gender-based violence against Aboriginal women, which often leads to their disappearance or death. SWC administers the funds and plays monitoring, liaison and advisory roles, focusing on commitment to and support for strategic partnerships with federal departments. The initiative is being implemented by the Native Women’s Association of Canada (NWAC).

In 2008–2009, SWC joined NWAC in various SIS activities, including community engagement workshops and vigils, linking with the RCMP regarding trafficking risks to Aboriginal women, educating the international community about issues affecting Aboriginal women and sharing best practices. As part of its efforts to address the root causes of violence against Aboriginal women, SWC also participated in different interdepartmental groups, including: two Sub-Committees of the F/P/T Working Group on Aboriginal Justice (i.e. the F/P/T Subcommittee on Missing and Murdered Aboriginal Women, the F/P/T Subcommittee on Healing); the Family Violence Initiative (FVI) Interdepartmental Working Group; the FVI Working Group on Aboriginal Family Violence and the Interdepartmental Working Group on Trafficking in Persons.

A formative evaluation of this initiative, completed in 2008–2009, shows that SIS has begun to build a strong case for its approach, laid a solid foundation for its continued work and has earned a good reputation based on its expertise and leadership. Some of the key SIS results are:

  • Evidence of increased public engagement on violence against Aboriginal women, as seen by the number of SIS vigils to raise awareness about missing and murdered Aboriginal women and girls. (40 vigils in 2008–2009 vs. 30 vigils in 2007–2008)
     
  • Increased media coverage, with 98 news articles and op-eds. on the subject, up from 53 references in 2007–2008 and 16 in 2006–2007. Further, a total of 127 interviews with NWAC focused on or made reference to SIS.
     
  • In 2008–2009, NWAC continued its partnerships and collaboration with several federal departments and agencies: Indian and Northern Affairs Canada, Justice Canada, Public Safety Canada, the RCMP and Human Resources and Skills Development Canada.
Lessons Learned

This report shows that 2008–2009 was a period of continuing progress in terms of achieving expected results. However, the analysis has also identified challenges in key areas.

  • Database:  SWC has not yet implemented the recommendation to develop a database, following the summative evaluation of the Women’s Program. The agency is currently developing an in-house database which will improve its work in tracking funded projects, collecting and analyzing data and generating information for its decision-making as well as planning and reporting activities.
     
  • Formative evaluation:  The formative evaluation of the Women’s Program, scheduled for 2008–2009, was not carried out as planned. However, the agency was able to gather relevant information through a number of other activities that were conducted in 2007–2008. The review of a sampling of files in the Women’s Program was conducted for due diligence and availability of complete, accurate and current information on project implementation and outcomes. Also, a program impact review carried out during the reporting year provided important performance data to demonstrate the extent to which the agency is achieving its expected results.
     
  • Managing funding:  In 2008–2009, SWC sought approval to re-profile $2 million in contribution funding from fiscal year 2008–2009 into fiscal years 2009–2010 and 2010–2011 ($1 million each year). The purpose of re-profiling these contribution funds was to ensure that a number of key partnership projects, supported through the Women’s Partnership Fund, that required higher level of funding in future years, could be approved in 2008–2009.
     
  • In the spirit of the Transfer Payment Policy reform, the agency will continue to simplify information guides and forms to make the application process more efficient for organizations, thereby ensuring timely submission and approval of funding requests. The completion of the Women’s Program Risk Management Framework will also assist in managing high and low risks. It will also continue to provide professional assistance to organizations so that they are able to prepare proposals that meet its funding requirements and are aligned with its priorities. The agency also participated in the TBS-led process on grants and contributions reform and the renewal of key policies and practices.