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Minister's Message
The Government of Canada is committed to building a country in which all citizens have the chance to participate in our cultural and economic life. Our Government recognizes the importance of arts and culture in reaching this goal. The Department of Canadian Heritage is working to provide all Canadians with opportunities to celebrate and share our rich historical, cultural, artistic, and social heritage.
In the past year, Canadian Heritage proudly supported the commemoration and celebration of such noteworthy occasions as the 400th anniversary of the founding of Québec City, the 250th anniversary of parliamentary democracy in Nova Scotia, and the 150th anniversary of the founding of the Crown Colony of British Columbia. We were also proud to support our athletes at the Beijing Olympic and Paralympic Games as they delivered the third-best ever performance for Canadian Summer Olympians and brought home 50 Paralympic medals and 18 Olympic medals.
Our Government also took new directions with the launch of cultural initiatives. For example, we reaffirmed the importance of access to Canadian programming on all media platforms with the announcement of the Canada Media Fund. This new fund will ensure Canadian viewers will have access to what they want, when they want it, and will also respond to the evolving technological environment by harnessing new technologies. The Canada Periodical Fund announced in February 2009 will also provide support to maximize value for money and to ensure that global and technological opportunities are seized. Both programs will be launched in the 2010–2011 fiscal year.
In June 2008, the Government of Canada also announced the Roadmap for Canada’s Linguistic Duality 2008–2013: Acting for the Future—an initiative of $1.1 billion over 5 years dedicated to ensuring the vitality of official language-minority communities and assisting all Canadians to fully benefit from our country’s two official languages. I am pleased to be coordinating this major undertaking, which involves 14 federal partners. In 2008–2009, over $180 million were invested toward Roadmap initiatives in areas such as education, economic development, justice, health and immigration.
As Minister of Canadian Heritage and Official Languages, I am pleased to present the 2008–2009 Departmental Performance Report of the Department of Canadian Heritage. This report provides a detailed account of the Department’s accomplishments and demonstrates the ways in which it supports our Government’s priorities.
The Honourable James Moore, P.C., M.P.
Minister of Canadian Heritage and Official Languages
Section I – Overview
1.1 Summary Information
1.1.1 Raison d’être
The Department of Canadian Heritage and Canada’s major national cultural institutions play vital roles in the cultural, civic and economic lives of Canadians. We work together to promote culture, the arts, heritage, official languages, citizenship and participation, Aboriginal, youth, and sport initiatives.
1.1.2 Responsibilities
The Department’s legislative mandate is set out in the Department of Canadian Heritage Act. The Department is responsible for formulating policies and delivering programs that help all Canadians participate in their shared cultural and civic lives. The Department is specifically responsible for formulating and implementing cultural policies related to copyright, foreign investment and broadcasting, as well as policies related to arts, heritage, official languages, sport, state ceremonial and protocol, and Canadian symbols. The Department’s main activities involve funding community and other third-party organizations to promote the benefits of culture, identity, and sport for Canadians.
The Department oversees the administration of a large set of governing legislation, notably: the Broadcasting Act, the Copyright Act (formulation of cultural policy), the Official Languages Act (Part VII), the Museums Act, the Cultural Property Export and Import Act, the Status of the Artist Act, and the Physical Activity and Sport Act (in respect of sport).
The Minister of Canadian Heritage and Official Languages is accountable and answerable to Parliament for the Department and the 19 organizations that make up the Canadian Heritage Portfolio. A Minister of State (Status of Women) and a Minister of State (Sport) were assigned to assist the Minister of Canadian Heritage and Official Languages in carrying out his ministerial responsibilities. In October 2008, an Order-in-Council transferred the powers, duties and functions of the Minister of Canadian Heritage in relation to multiculturalism to the Minister of Citizenship and Immigration.
1.1.3 Strategic Outcomes
During the 2008-2009 fiscal year, the Department’s work was structured around the following two Strategic Outcomes:
- Canadians express and share their diverse cultural experiences with each other and the world. The
Department helps to ensure that Canadians can express their creativity, showcase their talents, and share their diverse
experiences via the arts, heritage institutions, cultural industries, and sport activities, both professional and amateur.
To achieve this outcome, the Department enacts policies and programs that seek to create an environment where Canada’s
diverse voices and distinctive accent on liberal democratic values can be strengthened and shared, both at home and
abroad.
- Canada is an inclusive society built on intercultural understanding and citizen participation. The Department seeks to respond to both certain challenges to cohesion and to the many creative opportunities that come with an increasingly diverse social fabric. To achieve this outcome, the Department provides programming in support of socio-economic inclusion for disadvantaged groups such as off-reserve Aboriginal people and official language minority communities, but also exchange and dialogue on shared citizenship values between Canadians of all origins and backgrounds.
1.1.4 Program Activity Architecture
The Program Activity Architecture (PAA) is a structured inventory of the Department of Canadian Heritage’s programs. These programs are arranged in a hierarchical manner to depict the logical relationship between each Program Activity, its Sub- and Sub-Sub-Program Activity level and the Department’s Strategic Outcomes to which they contribute. In short, the PAA serves to create an overview of how the Department’s policies, programs and activities are linked and how their expected results are organized to contribute to achieving the Department’s mandate and Strategic Outcomes. The PAA provides a skeleton structure to which financial and non-financial performance information are linked.
The Program Activity Architecture is a major component of the larger Management, Resources and Results Structure (MRRS). A complete MRRS includes Strategic Outcomes, the PAA, the financial and non-financial information for each element of the PAA, and the Departmental governance structure (Program Activity 8, entitled Internal Services, is also part of the PAA, but is not shown in the following one-page graph).
The Performance Measurement Framework (PMF) is an administrative document linked to the PAA with the purpose to design a consistent approach for systematically collecting, analyzing, utilizing and reporting on the performance of a department’s or agency’s programs and activities. The PMF contains, for all levels of the PAA, expected results, performance indicators, target dates to achieve expected results, sources of data, collection methods, frequency of collection and titles of positions accountable for the results. The PMF is a tool that enhances the management and reporting of the programs and activities of an organization by measuring the organization’s level of achievement of results.
The Department of Canadian Heritage notes that the 2008-2009 PAA and PMF are early iterations of a maturing document, and, as such, the performance story does not yet show the full benefits of the recently-approved PAA and supporting PMF for 2009-2010. Therefore, this 2008-2009 Departmental Performance Report reflects the limitations of the available data. The Department has already improved its results-based management processes going forward and has dedicated significant time and effort to improve its Performance Measurement Framework, as reflected in the PAAs and PMFs for subsequent years as well as the 2009-2010 Report on Plans and Priorities.
Machinery of Government Changes and PAA
Aboriginal Partners (Program Activity 6.1)
In April 2007, a letter was signed by the Prime Minister to approve the transfer of the authority and resources for core
funding for the Aboriginal Representative Organizations, which were part of the Aboriginal Peoples’ Program (Program Activity
6.1.1), from the Department of Canadian Heritage to the Department of Indian and Northern Affairs and the Office of the
Federal Interlocutor for Métis and Non-Status Indians. This transfer benefits both the Government of Canada and the national
Aboriginal representative organizations by providing a more streamlined and focused core funding relationship for the political
activities of these organizations. The PAA for 2009-2010 reflects this change (Program Sub-Activity 5.5 – Aboriginal Peoples’
Program).
Multiculturalism (Program Activity 7.1)
In October 2008, responsibility for the Multiculturalism Program, the Historical Recognition Programs and Canada’s Action
Plan Against Racism was transferred to Citizenship and Immigration Canada (CIC). The Minister of CIC therefore became the
Minister of Citizenship, Immigration and Multiculturalism. With the addition of responsibility for the Canadian Multiculturalism
Act, CIC’s mandate now includes long-term and short-term integration issues for both new and established Canadians.
Changes in the Department of Canadian Heritage’s Program Activity Architecture (PAA) to reflect the machinery of Government
change were approved by the Treasury Board of Canada in May 2009.
1.2 Performance Summary
| Planned Spending | Total Authorities | Actual Spending |
|---|---|---|
| 1,426.8 | 1,464.3 | 1,393.9 |
| Planned | Actual | Difference* |
|---|---|---|
| 2 354 | 2 384 | - 30 |
*Note: The difference between Planned and Actual FTE amounts for 2008-2009 is mainly explained by the fact that the Planned amount did not include the Collective Agreement funding received in 2008-2009. Therefore, the average salary used to determine the Planned FTE amount did not take into account the Collective Agreement funding.
1.2.1 Performance Summary
| Performance Indicators (See Note) |
Targets (See Note) |
2008-09 Performance Mostly met |
||||
|---|---|---|---|---|---|---|
| ($ millions) | ||||||
| Program Activity | 2007-08 Actual Spending |
2008-09 | Alignment to Government of Canada Outcomes | |||
| Main Estimates |
Planned Spending |
Total Authorities |
Actual Spending |
|||
| 1. Creation of Canadian content and performance excellence | 342.8 | 339.6 | 351.3 | 362.5 | 352.1 | A vibrant Canadian culture and heritage |
| 2. Sustainability of cultural expression and participation | 245.5 | 173.1 | 188.1 | 195.9 | 168.2 | |
| 3. Preservation of Canada’s heritage | 43.8 | 39.8 | 39.8 | 44.4 | 46.3 | |
| 4. Access to Canada’s culture | 167.3 | 207.2 | 210.6 | 204.7 | 181.7 | |
| Total | 799.4 | 759.7 | 789.8 | 807.5 | 748.3 | |
| Performance Indicators (See Note) |
Targets (See Note) |
2008-09 Performance Mostly met |
||||
|---|---|---|---|---|---|---|
| ($ millions) | ||||||
| Program Activity | 2007-08 Actual Spending |
2008-09 | Alignment to Government of Canada Outcomes | |||
| Main Estimates |
Planned Spending |
Total Authorities |
Actual Spending |
|||
| 5. Promotion of inter-cultural understanding | 136.7 | 121.5 | 121.5 | 122.6 | 134.9 | Diverse society that promotes linguistic duality and social inclusion |
| 6. Community Development and capacity-building | 247.9 | 252.9 | 252.9 | 253.9 | 247.2 | |
| 7. Participation in community and civic life | 207.5 | 257.2 | 262.6 | 280.3 | 263.5 | |
| Total | 592.1 | 631.6 | 637.0 | 656.8 | 645.6 | |
Note: Canadian Heritage has dedicated significant time and effort to ensure compliance with the Treasury Board Management, Resources and Results Structure (MRRS) Policy. Each year the Department has systematically made progress on its Program Activity Architecture (PAA) and Performance Measurement Framework (PMF) and improved the quantity and quality of performance measurement information. In 2007, the Department completely revised its PAA and developed a comprehensive 2009-2010 PAA, PMF and accompanying governance structure. This will markedly increase the Department’s ability to demonstrate results in future reporting years.
1.2.2 Contribution of Priorities to Strategic Outcome(s)
| Operational Priorities (as in 2008-2009 Report on Plans and Priorities) | Type | Status* | Links to Strategic Outcome(s) |
|---|---|---|---|
| Priority 1: Adapting Cultural Policy to Changing Technology and a Global Marketplace The October 2007 Speech from the Throne noted the Government of Canada’s commitment to improve the protection of cultural and intellectual property rights, including copyright reform, thus ensuring that cultural policy is adapting to changing technology and a global marketplace. Responsive cultural policy helps secure a space for Canadian voices nationally and internationally, and furthers the Government’s desire to create a national environment that encourages “the capacity of Canadians to (…) build an even stronger Canada, striving for excellence (…) with growing confidence that they can make a difference at home and in the world" (Speech from the Throne 2006). |
Previously Committed | Mostly met | Strategic Outcome 1 |
| Priority 2: Promoting Canada Through Community Engagement and Major Events 2008 is an important year for the promotion of Canada as the country will celebrate several major events such as the 400th anniversary of the founding of Québec City, the 250th anniversary of the establishment of Nova Scotia’s representative assembly, and the 150th anniversary of the founding of the Crown Colony of British Columbia. The promotion of Canada also plays out in communities across the country, notably through recently funded local festivals and the expression and celebration of local arts and heritage. |
New | Met | Strategic Outcome 2 |
| Priority 3: Delivering New Support for Official Languages The 2006 Speech from the Throne recognized that “linguistic duality is a tremendous asset for the country,” while Budget 2007 announced significant funding dedicated to supporting official language minority communities and promoting linguistic duality, as well as for events surrounding the 400th anniversary of Québec City. |
New | Mostly met | Strategic Outcome 2 |
| Priority 4: Investing in Canadian Sport Canada’s achievements as a sporting nation, with the excellence of its athletes recognized in national and international competitions, contribute to the strength of the Canadian identity as well as to the economic, social, and cultural fabric of the nation. Recognizing this, the Government has provided significant funding for the 2010 Olympic and Paralympic Winter Games while also supporting community sport participation, athletic development and excellence in winter sports. |
Previously committed | Met | Strategic Outcomes 1 and 2 |
| Management Priorities(as in 2008-2009 Report on Plans and Priorities) | Type | Status* | Links to Strategic Outcome(s) |
|---|---|---|---|
| Priority 5: Strengthening Management Practices The Department is reviewing and continually adjusting its corporate management infrastructure and its governance structure to respond to new requirements regarding results-based management, comptrollership, risk management, internal audit and evaluation, service delivery, and public service modernization. Extensive redesign of the Department’s Program Activity Architecture (PAA) and Performance Measurement Framework (PMF) is also currently under way, to further enhance governance and accountability through informed and transparent policy development, decision-making and risk management. |
Ongoing | Mostly met | Strategic Outcomes 1 and 2 |
* Note: The status of a priority is determined by the status of the Key Initiatives related to the priority. Please see Appendix A for more information.
Results of Priority 1: Adapting Cultural Policy to Changing Technology and a Global Marketplace
In 2008-2009, the Government progressed in adapting its cultural programs and policies to the current environment where changing technologies are fundamentally transforming the national and international cultural landscapes. Policy and program developments focused on innovation by harnessing technological change, encouraging partnerships to deliver more efficient services and diversify funding, building international competitiveness, and putting Canadians first, all of which will leverage success in a global knowledge economy.
In February 2009, the Department announced the creation of the Canada Periodical Fund, which will be launched in 2010-2011. The Canada Periodical Fund will reform the delivery of the Department’s support to the periodical industry by replacing two programs with a single streamlined program, supporting diversity by reallocating resources to smaller publications, rewarding publishers for their success in building readership, and broadening support to include online magazines for the first time.
In March 2009, the Government announced the creation of the Canada Media Fund, a public-private partnership, which reallocated $14.3M from the Canada New Media Fund and $120.4M from the Canadian Television Fund. The role of the Canada Media Fund will be to support both traditional television content and interactive digital content, ensuring long-term viability and relevance of the broadcasting industry by linking audiences across platform choices. Canadian viewers will have better access to Canadian programming on all media platforms following the creation of the Canada Media Fund. The reformed and integrated Fund will be fully implemented and in place by April 1, 2010.
Copyright policy work focused on the overall need to define a copyright legislative framework that enhances the viability of Canadian creation and production and the accessibility of content in light of rapidly changing technology. This requires an understanding of both the complex international context and of the quickly transforming digital world. It also involves seeking input from Canadian citizens and stakeholders so that the copyright policy framework is responsive to the challenges of the globalized digital age. Bill C-61, an Act to amend the Copyright Act, was introduced in Parliament in June 2008 but died on the order paper when Parliament was prorogued on September 7, 2008. In the October 2008 Speech from the Throne, the Government restated its commitment to proceed with legislation to modernize Canada’s copyright laws and ensure stronger protection for intellectual property.
The Arts Presentation Canada (APC) program provided supplementary funding to professional arts festivals that made significant and demonstrable commitments to community engagement activities. In 2008-2009, APC awarded a total of $7M in supplemental funding to 231 festivals in 98 locations in order to, for example, extend programming to new communities, reach out to new audiences through schools or community centres or enable professional artists to offer master classes in a variety of art forms.
In addition to these Key Initiatives, the Department was also engaged in ensuring that foreign cultural investments produced positive results for Canada and Canadians. The Investment Canada Act is co-administered; the Minister of Canadian Heritage is responsible for applying the Act to foreign investments in the cultural sector, while the Minister of Industry is responsible for its application in all other sectors of the economy. In July 2007, the Government established the Competition Policy Review Panel to examine Canadian competition and investment laws and policies. The Panel released its final report in June 2008, that contained a wide range of recommendations to enhance Canada’s competitiveness and productivity. The Panel affirmed the importance of Canadian culture and determined that responsibility for the review of foreign cultural investment should continue to reside with Canadian Heritage. As a follow-up to the Panel report, in March 2009, the Investment Canada Act was amended. In keeping with the Panel recommendations, the amended Act preserves a distinct approach for assessing foreign investment in Canada’s cultural sector while introducing improvements to make its administration more streamlined, transparent and timely.
Results of Priority 2: Promoting Canada through Community Engagement and Major Events
The Department of Canadian Heritage has a mandate to encourage attachment to Canada and supports activities and events that encourage citizens to take pride in Canada and its heritage. Among the most prominent events of 2008 were successful celebrations of the 400th anniversary of the founding of Québec City, the 250th anniversary of parliamentary democracy in Canada (Democracy 250) and the 150th anniversary of the founding of the Crown Colony of British Columbia.
Activities marking the 400th anniversary of the founding of Québec City represented an important opportunity to increase awareness of this country’s rich history among Canadians. The Société du 400e anniversaire de Québec, the organization charged with overall responsibility for the celebrations, received $40M from the Department for the anniversary celebrations, in addition to the funding received from the Province of Québec and the City of Québec. An external audit conducted during 2008-2009 confirmed that the Société’s governance structure was effective and that funds received were used appropriately. The Department also supported 135 celebration projects across Canada with investments totalling approximately $4.2M. In addition, Departmental funds enabled 540 youth to participate in the Exchanges Canada Program.
A March 2009 survey indicated that 60 percent of Canadians were aware that 2008 was the year commemorating the 400th anniversary of Québec City’s foundation, compared to 37 percent in June 2007. Moreover, 84 percent of survey respondents agreed that celebrating the 400th anniversary of Québec City gave them a chance to learn more about Canada’s history.
As part of its mandate for the promotion of Canada, the Department of Canadian Heritage is also responsible for Canada’s participation in international expositions. In 2008-2009, the Department, in a collaborative arrangement with the Cirque du Soleil, developed the creative concept for the Canada Pavilion at Expo 2010 in Shanghai, China. Important steps were taken to design and create the Pavilion’s public presentation, organize Canada’s cultural program, and develop strategic corporate alliances for the Expo. In 2008, a construction contract for the Canada Pavilion was awarded to SNC Lavalin Inc.
The Department’s commitments for 2008-2009 included two key initiatives managed through the Multiculturalism Program:
- At the time of its transfer, the first call for project proposals under the Community Historical Recognition Program
had been completed and $2.57M in funding to
10 community-based projects related to the recognition of wartime measures and immigration restrictions had been approved for payment beginning in 2009-2010. In the same period, a Memorandum of Understanding was signed with Parks Canada under the National Historical Recognition Program to finance initiatives that recognize and commemorate First World War internments. Management of this file now rests with Citizenship and Immigration Canada.
- The second key initiative was to move forward on Canada’s involvement in the Global Centre for Pluralism. The Centre, which received a $30M endowment through the Department of Canadian Heritage, focused on activating its governance structure, developing leadership capacity, opening a temporary office, beginning redevelopment work on the Centre’s future home at 330 Sussex Drive and developing the Centre’s program capacity. Management of this file now rests with Citizenship and Immigration Canada.
Results of Priority 3: Delivering New Support for Official Languages
The Department achieved its results through activities related to a five-year plan for linguistic duality and official languages, the celebration of the 400th anniversary of the founding of Québec City, youth activities and the development of a new program to support linguistic rights.
Roadmap for Canada’s Linguistic Duality 2008-2013: Acting for the Future
On June 19, 2008, the Government of Canada initiated the Roadmap for Canada’s Linguistic Duality 2008-2013: Acting for
the Future (Roadmap). This five-year plan for linguistic duality and official languages is the product of analyses,
consultations with the 14 departments and agencies involved, and extensive discussions with main stakeholders, provincial
and territorial governments and the public.
The Roadmap is an unprecedented, Government-wide investment of $1.1B divided among
14 federal partners. Its goal is to strengthen the vitality of official language minority communities and help Canadians
access the benefits of the country’s two official languages. It includes a new arts and culture component, new programs
for economic development and justice, and additional investments in health and immigration. The Government of Canada allotted
more than $180M to implement Roadmap initiatives during 2008-2009. To help coordinate these initiatives, the Department
of Canadian Heritage developed a Horizontal Results-Based Management and Accountability Framework (HRMAF). The HRMAF defines
activities, results and governance structure, along with the roles and responsibilities of federal departments and agencies
and various interdepartmental committees.
The Canadian Radio-television and Telecommunications Commission (CRTC) held public hearings in January 2009 to review the accessibility and quality of broadcasting services provided to Anglophone and Francophone minority communities under section 15 of the Broadcasting Act. On March 30, 2009, the CRTC published a report on the hearings, meeting its commitment under the Roadmap. The Government will take note of the report’s findings and recommendations and will take them into account as part of its commitment to the promotion of both official languages and access for Canadians to quality French and English broadcasting services across Canada.
400th Anniversary
of the Founding of Québec City
The Department supported programs such as Francoforce, which involved a tour of emerging French-Canadian artists,
and an additional 47 projects (totalling $2.4M) involving Canada’s official language communities (see also results of Priority
2).
Youth activities
The Department of Canadian Heritage continued to implement youth development activities. The Department’s support focused
on developing and strengthening Francophone identity through leadership training courses for young Francophones in Canada
along with student councils and youth parliaments, teaching aids, community radio, youth participation in the August 2008
Jeux de la francophonie canadienne, and youth exchange programs. During 2008-2009, the Department’s Official Languages
Support Programs invested more than $2.7M.
In support of the Department’s objective of creating environments where youth in minority situations can learn and develop in their native language, six capital projects were funded during 2008-2009. A total of $9.8M was granted to community-school centres across the country.
Language Rights Support Program
The Department of Canadian Heritage continues to develop the new Language Rights Support Program, announced in June 2008.
The Program, to be administered by a third party, will be operational by the end of 2009-2010.
Results of Priority 4: Investing in Canadian Sport
The Department of Canadian Heritage has made a significant investment in sport, helping to strengthen Canadian identity.
On April 29, 2008, the Government of Canada announced its new Federal Policy for Hosting International Sport Events with an additional $14.7M investment, providing the foundation for a proactive and strategic approach for the bidding and the hosting of international sport events in Canada. Examples of events financially supported by Canada in 2008-2009 include the 2008 North American Indigenous Games in Cowichan, British Columbia, and the 2008 Winterstart Men’s and Women’s World Cup of skiing in Lake Louise.
In Budget 2008, the Government committed an additional $24M over two years and then $24M annually to provide funding for targeted summer Olympic and Paralympic Sports with medal potential for 2012 and 2016. In 2008-2009 the first $8M of this investment was provided to support the preparation of Canadian athletes for the Beijing and the London Olympic and Paralympic Games. In addition, the early completion of Olympic venues has provided Canadian Olympic and Paralympic athletes with the added advantage of being able to train in the very venues where they will be competing during the 2010 Olympic and Paralympic Winter Games in Vancouver and Whistler. Such venues include the University of British Columbia Thunderbird Arena for ice hockey and ice sledge hockey, as well as the Richmond Olympic Oval for speed skating.
Beyond the 2010 Winter Games in Vancouver, the Department of Canadian Heritage has established a summer Olympic performance objective of a top-10 ranking in 2020, and a Paralympic objective of a top-5 Paralympic gold-medal ranking in 2020. In 2008-2009, the Department invested over $163M through its three sport funding programs: the Athlete Assistance Program, the Sport Support Program, and the Hosting Program, representing the core of Canada’s investment in sport.
Canada has hosted the World Anti-Doping Agency (WADA) headquarters in Montréal since 2002. The Department coordinated efforts to renew the agreement for an additional 10 years, until 2021. The presence of WADA’s headquarters in Montréal has helped strengthen Canada’s position as one of the leading countries in the international fight against doping in sport and has strengthened domestic anti-doping efforts.
Results of Priority 5: Strengthening Management Practices
Responding to Blue Ribbon Panel Recommendations on Grants and Contributions
As a major transfer payment department (80 percent of its budget is directed to grants and contributions funding), the Department
of Canadian Heritage continues to play an important role in grants and contributions reform. The Department is an active
contributor on governance committees at the Deputy Minister, Assistant Deputy Minister and Director General levels. In 2008-2009,
Canadian Heritage staff from headquarters and regions and their clients participated in a series of recipient engagement
events across the country, which were organized by the Treasury Board of Canada Secretariat to receive feedback on reform.
The Department continued the implementation of its initial Blue Ribbon Panel Action Plan
(2007-2009) and formulated a follow-up Grants and Contributions Reform Action Plan for
2009-2011 in support of the May 2008 Government of Canada
Action Plan to Reform the Administration of Grant and Contribution Programs. The Executive Committee continues
to track progress and cost of Canadian Heritage plans.
One priority for 2008-2009 (and 2009-2010) was implementation of the revised Treasury Board Policy and Directive on Transfer Payments. Many of the projects undertaken relate to the risk-based approach embodied in the Policy and Directive, and involve considerable adjustments to Departmental processes, procedures, tools, training and even systems. Canadian Heritage is on track to implement requirements by April 1, 2010. One particularly pivotal project is the Project Risk Assessment and Monitoring (PRAM) tool, which indicates overall project risk (high, moderate, or low) and specifies the appropriate monitoring and reporting for mitigation where risk is higher, and identifies opportunities for reduction of the monitoring and reporting burden where risks are lower. A Business Process Mapping initiative, beginning in 2009-2010, will ensure smooth interaction of all the new elements that are being put in place to comply with the new direction from Treasury Board and take advantage of opportunities for streamlining and standardizing.
As indicated in the Sixteenth Annual Report to the Prime Minister on the Public Service of Canada from the Clerk of the Privy Council, the Department of Canadian Heritage contributed to a reduction in client administrative and reporting burden related to grants and contributions. This was accomplished through increasing the use of grants by 10 percent and increasing multi-year contributions by 10 percent for selected programs, and even for the Department as a whole, one year ahead of the commitment for March 2009.
Public Service Renewal
Along with active partnerships with targeted universities, the Department was able to recruit more than 65 post-secondary
students while meeting the 20 percent target of visible minority representation. Student programs and bridging opportunities
were successful in increasing the number of recruits obtaining managerial positions and of participants in the Management
Trainee Program, raising the total number of participants to six.
As part of its commitment to employee development, the Department put in place new performance review processes and a training monitoring system for financial and human resources delegation authorities. An orientation program entitled Working @ PCH for new employees was reviewed and a new on-boarding approach for new employees was introduced to strengthen their engagement and retention within the department.
For the important role played by managers in the retention of employees, the Department committed itself to Leadership Development as an additional action item. A new two-day program entitled Managing @ PCH was introduced for all managers, along with a series of initiatives to strengthen managers’ leadership skills. These include: a Departmental mentoring initiative; a coaching and feedback skills pilot training session; written learning, career and performance plans for all staff who supervise employees; cascading performance commitments; coaching circles; and Communities of Practice for managers and directors.
Generic work descriptions for the AS (Administrative Services) and CR (Clerical and Regulatory) groups are now complete and will be implemented incrementally. Generic work descriptions for the PM (Program Management) group are being finalized and will also be implemented incrementally. The Department developed generic work descriptions for the ES (Economics, Sociology and Statistics) group in preparation for the EC (Economic and Social Services) group conversion. Interdepartmental CS (Computer Systems) and PE (Personnel Administration) generic work descriptions are also being implemented.
Results-Based Management
As part of its Integrated Planning Strategy, the Department of Canadian Heritage invested significant resources in 2008-2009
to develop the frameworks and processes required to create a corporate environment sustaining a results-based management
regime:
Performance Measurement – The full implementation of the MRRS (Management, Resources and Results Structure) policy led the Department to renew its Program Activity Architecture (PAA) and Performance Management Framework (PMF), which came into effect on April 1, 2009. These frameworks represent the foundation of the Department’s results-based management approach.
Integrated Business Planning – In response to the Clerk’s requirement to integrate business and human resources planning, the Department also renewed its planning process to enhance corporate governance and accountability, risk assessment and priority-setting, as well as resource and performance management. In 2008-2009, the implementation of its integrated business planning process informed both the development of the Department’s Report on Plans and Priorities and Integrated Business and Human Resources Plan, as well as a number of functional plans (e.g., Information Management and Technology, procurement, international travel, etc.).
To build awareness and support the rollout of these new Departmental tools, learning products (such as the Canadian Heritage planning fold-out) and events were developed to initiate – among managers and staff – the organizational culture change required to sustain results-based management at Canadian Heritage.
Risk Assessment and Management in Operations
The Department reviewed the Risk-based Audit Frameworks (RBAFs) and Treasury Board Submissions, taking into consideration
the advice and recommendations brought forward by program managers. The Department’s risk management practices met the target
of “Acceptable” in the Management Accountability Framework assessment and strengthened risk awareness and analysis in operations
across the organization. The Department developed a process for comprehensive risk-ranking that led to an improved overall
Corporate Risk Profile. The Department also established a Departmental recipient compliance audit function in support of
Government and Departmental accountability and risk management initiatives.
Internal Audit
The Department established its Departmental Audit Committee (DAC) in 2008-2009 and implemented the new Treasury Board Policy
on Internal Audit. The Department Internal Audit Charter, Internal Audit Policy and the DAC Terms of Reference were all
finalized and approved by DAC and the Deputy Minister.
Shared Services and Information Management/Information Technology (IM/IT)
The Department of Canadian Heritage completed the annual revision of its Information Technology (IT) Plan (2008-2009), which
this year integrated Information Management (IM) priorities. As part of integrated business planning and leveraging existing
governance structures, the Department established an IM/IT project approval process offering greater transparency, clearly
identifying decision-making authorities and facilitating the prioritization of IM/IT projects. The Department advanced on
implementation of its multi-year IM Strategy with deployment of the Records, Document and Information Management System
(RDIMS-InfoCentre) complete in 20 to 25 percent of the Department. The Department continued with the implementation
of the Treasury Board Secretariat IT Generics organizational model as part of a two-year plan.
1.3 Risk Analysis
The Department of Canadian Heritage delivers its mandate in an environment characterized by the rapid evolution of social,
economic and technological landscapes. Achievement of results in
2008-2009 was influenced by these inherent factors, as well as additional foreseen and unforeseen risks that materialized.
The rapid social, economic and technological change presented the possibility that certain policies or programs would not align with a changing operating environment. This challenge was seized as a risk opportunity in several of the priorities in the 2008-2009 Report on Plans and Priorities.
The Department of Canadian Heritage also identified potential risks in the 2008-2009 Report on Plans and Priorities in relation to: sound management and stewardship (to support proper management and disbursement of funds); demonstrating program results (to underscore the value to stakeholders of Departmental activities); and effective and values-based human resource management (to support all results achievement).
These identified risks were effectively mitigated and no material risk events occurred. Actions taken to achieve this included a specific focus to develop new risk assessment and management practices in grant and contribution management, strengthened internal audit and recipient compliance auditing, and important efforts associated with renewal of staff and human resource management. Other Key Initiatives in Program Activity 8 (Internal Services) also contributed to risk mitigation and provided a stable foundation for achievement of Strategic Outcomes and Program Activity results.
An example of how the Department was able to benefit from risk opportunity is illustrated with Priority 1, which was to adapt cultural policy to changing technology and a global marketplace. This priority was met, in part, with the announcement of the Canada Media Fund (CMF) in March 2009 – an innovative response to the profound change in the way Canadians expect to be able to consume media content. The Department took two existing programs, the Canadian Television Fund and the Canada New Media Fund, and realigned and rebranded them in a public policy initiative that promises to keep pace with the needs of Canadians and meet the goal of furthering Canadian media production on a variety of distribution platforms in a global environment. The reformed and integrated CMF will be fully implemented and in place by April 1, 2010.
Context and Operating Environment
Financial and Economic Situation
Canadian Heritage programs and policies continued to evolve through rapidly changing demographics, transformative digital
technologies and an unexpected world financial and economic crisis that began in the fall of 2008.
Canada’s artistic and cultural industries are not immune to the prevailing economic climate. Industries that depend heavily on advertising revenues, such as over-the-air broadcasters, magazines and newspapers, are affected by the economic decline. Not-for-profit arts organizations are being affected by businesses having fewer resources to provide sponsorships, and by downturns in both charitable donations and revenues from investments and endowment funds. A growing number of arts and heritage organizations are experiencing economic difficulty in the form of weakened or potentially weakening ticket subscription sales. The same may apply to heritage institutions and museums. The recession in the United States, Canada’s largest trading partner, may lead to a decrease in Canadian cultural exports, and less disposable income at home and abroad could affect sales of cultural products. In light of global economic challenges, the federal government’s recovery plans are taking into account the needs of the arts and culture sector for stability and additional support.
For sporting organizations, obtaining or maintaining Government funding and sponsorships may be more difficult than in the past. This can be seen with the 2010 Vancouver Organizing Committee for the Olympic and Paralympic Winter Games (VANOC). VANOC had to cut back on expenses and revise its revenue projections several times throughout the past year. There will also be a decrease in funding after the 2010 Games as the focused effort of the past years comes to an end. In the current economic environment, it can be expected that many national sport organizations will increasingly experience challenges in accessing support from the private sector.
Diverse Society
Canadians, whether newcomers or born in Canada, contribute to the diverse linguistic, cultural and religious fabric of our
society. Although pluralism can challenge Canadian society with the risk of polarization and fragmentation between and among
communities, it holds tremendous potential for boosting Canada’s economic competitiveness, cultural wealth, and international
image.
The average age of Canadians continues to rise and our population is becoming more and more diverse and urbanized. In 2006, approximately 80 percent of Canadians lived in urban areas.[1] A record high of 13.7 percent of Canadians were aged 65 or over, and a record low of 17.7 percent were under 15 years of age.[2]
Immigration is regarded as an important component for maintaining healthy population growth and meeting anticipated labour shortages. Newcomers accounted for about two-thirds of the population growth between 2001 and 2006.[3] At these rates, newcomers could account for virtually all net labour force growth by 2011.[4]
Canada’s Aboriginal population is growing faster than the general population, increasing by 20.1 percent from 2001 to 2006, and comprising 3.8 percent of the Canadian population. The urban Aboriginal population is growing at an advanced pace – currently 54 percent of Aboriginal Canadians live in urban areas.[5]
Canada is also becoming much more multilingual, with over 200 languages spoken and 20 percent of Canadians identifying their mother tongue as being other than English or French. It remains that more than 98 percent of Canadians can speak English or French, or both.[6] Today’s pluralistic Canada presents new citizenship and identity challenges; while many members of Canada’s diverse communities fully participate in all aspects of Canadian life, others encounter barriers to their full social, economic and cultural participation. Indeed, Canadians today are asking whether living side-by-side is enough and if there should not be greater emphasis on living together and affirming what we share in common as Canadians.
Spending on Culture and Technology
Over the last 10 years, Canadian household spending on culture has grown to an estimated $18.9B.[7] Average household spending on culture has increased 20 percent
from $1,243 to $1,495 over this same period. Department of Canadian Heritage programs, supporting live performing arts and
festivals, allow further access to cultural activities that enrich the lives of Canadians. Attendance at various festivals
and arts and cultural events make a community a better place to live.[8]
More and more Canadians use the Internet.[9] The average amount of time spent online has increased from 13 hours per week in 2004 to 17 hours per week in 2007.[10] Canadian youth are leading the consumption of online culture and communications products. Internet use is almost universal among Canadian youth, with 96 percent of 12- to 17-year-olds online. Rapid technological changes are transforming the dissemination of cultural products and allowing Canadians to consume, create and participate in culture online, providing opportunities as well as challenges for cultural industries. The Department responded to these changes by adapting many of its cultural programs and policies to new technologies.
Canadians still continue to use traditional media to access cultural content. In 2008, Canadians listened to the radio 18.3 hours a week on average, and watched television 26.6 hours a week on average.[11] While radio listening is down slightly from its weekly average of 19.1 hours in 2005, television’s weekly average viewing has increased slightly over its 2005 weekly average of 26.3 hours.
Overall, the arts and culture sector plays an important multi-faceted role in creating cultural content, promoting social cohesion and contributing to the Canadian economy. The Conference Board of Canada estimates that the arts and culture sector had a direct economic impact of $46B to Canada’s Gross Domestic Product in 2007[12], which constituted 3.8 percent of Canada’s real Gross Domestic Product and directly employed more than 662,000 Canadians.[13]
For more detailed information on the situation of the arts and culture sector in 2007-2008, please consult the following
report: Canadian Heritage, Intersections: Navigating the Cultural Landscape, Cultural Affairs
Sector 2007-2008 Annual Report
http://www.pch.gc.ca/pc-ch/org/sectr/ac-ca/pblctns/anl-rpt/2007-2008/index-eng.cfm.
Sport
Sport is a cultural manifestation experienced by millions of Canadians at the local community, national and international
levels. Department of Canadian Heritage programs enhance opportunities for Canadians to participate and excel in sport.
As well, the hosting of international sport events in Canada provides Canadian athletes access to upgraded facilities, modern
equipment and competition opportunities. Hosting events such as the 2010 Olympic and Paralympic Winter Games in Vancouver-Whistler
yields significant economic, social, sport and cultural benefits to Canadians.
Internal Context
The Department of Canadian Heritage encourages access to and participation in our country’s cultural and civic lives. The Department continued to deliver programs supporting Canadians in sharing their cultural experiences with each other and with the world, and in living in an inclusive society based on intercultural understanding and citizen participation.
The Department provides financial assistance through grants and contributions, directly or indirectly, to individuals, institutions, community organizations, not-for-profit organizations, and other orders of government.
The governance and accountability structure and portfolio organizations remain almost the same as in 2007-2008 (See section III) (information on portfolio organizations is available online at: http://www.pch.gc.ca/pc-ch/os-ac/index-eng.cfm).
The Minister of Canadian Heritage and Official Languages is accountable and answerable to Parliament for the Department and the 19 organizations that make up the Canadian Heritage Portfolio. A Minister of State (Status of Women) and a Minister of State (Sport) were assigned to assist the Minister of Canadian Heritage and Official Languages in carrying out his ministerial responsibilities. In 2008-2009, the Department completed its review of current activities and renewed its Program Activity Architecture (PAA). The new PAA for 2009-2010 is designed to address the need for financial and non-financial information. It will also provide the Department with improved performance-based data and information in support of program evaluations, especially in relation to program relevance and performance. This year’s Departmental Performance Report is the last one reporting against the previous PAA originally designed in 2004 and updated until 2007-2008.
To support the new PAA, the Department also developed its Performance Management Framework (PMF) for 2009-2010, and the accompanying implementation action plan.
Government Announcements and Strategic Review
Under the Government’s new Expenditure Management System all departments and agencies are required, over a four-year cycle, to undertake a Strategic Review of their programs and spending. In 2007 and 2008, the Department of Canadian Heritage conducted a full assessment of the funding, relevance and performance of all its program spending and put forward reallocation proposals that could be reinvested in priorities across government.
Strategic Review decisions made by the Treasury Board and affecting Canadian Heritage have all been announced and their implementation continues to proceed as planned. Strategic Review reallocation decisions implemented in 2008-2009 affect the following programs or program components:
- Culture.ca web portal: reduction of $2.828M in 2008-2009 (on a planned total of $3.838M);
- Canadian Cultural Observatory (Culturescope): reduction of $0.128M in 2008-2009 (on a planned total of $0.562M);
- Research and Development Components of Canadian Culture Online: reduction of $1.914M in 2008-2009 (on a planned total of $5.64M);
- Book Publishing Industry Development Program: elimination of the Supply Chain Initiative component for a total of $1M in 2008-2009.
Strategic Review decisions include reinvestments in three Canadian Heritage programs. Two of these reinvestments have been implemented in 2008-2009:
- $2.7M in the Roadmap for Canada’s Linguistic Duality (on an overall planned reinvestment of $30.6M over three years, and $8.2M per year until 2012-2013);
- $8M in the Road to Excellence program for Canadian summer Olympic Athletes (on an overall planned reinvestment of $24M over two years, and $24M per year ongoing).
The announced $24.5M reinvestment in the Torch Relay will be implemented in 2009-2010.
Implementation of the remaining Strategic Review reallocation decisions will be completed by 2010-2011 and results will be reflected in future reporting to Parliament.
1.4 Expenditure Profile
Planned Spending versus Authorized Spending
In 2006-2007, Planned Spending was higher than Authorized Spending, as some planned items identified in the RPP were not
obtained in 2006-2007. Funding such as the Redress Strategy initiative was received the following years via the Historical
Recognition Program.
Planned Spending for 2007-2008 and 2008-2009 are both below their respective Authorized Spending levels. In 2007-2008, the variance is mostly explained by items not included in Planned Spending, such as operating carry-forward, salary compensation and 2010 Olympic and Paralympic Winter Games. In 2008-2009, the variance is mostly explained by items not included in Planned Spending, such as operating carry-forward, salary compensation and Collective Agreement adjustments.
Actual Spending versus Authorized Spending
In 2006-2007, the variance between Actual Spending and Authorized Spending was mainly explained by the Department’s surplus
and approval of reprofiles of funds to be used in future years that were not published in the Supplementary Estimates. The
following programs had funds reprofiled to future years: 2010 Olympic and Paralympic Winter Games, International Expositions,
Cultural Spaces Canada, Historical Recognition Program and Canada’s Action Plan Against Racism.
In 2007-2008, Actual Spending was lower than the Authorized Spending level. This situation is mainly explained by the Department’s surplus and the approval of reprofiles of funds to be used in future years that were not published in the Supplementary Estimates. The following programs had funds reprofiled to future years: Historical Recognition Program, International Expositions, Cultural Spaces Canada, Québec 2008, Action Plan Against Racism, Summer Museum Internships and Canadian Culture Online.
In 2008-2009, the variance between Actual Spending and the Authorized Spending level is mainly explained by the surpluses of the Multiculturalism and Historical Recognition Programs and the approval of reprofiles of funds to be used in future years that were not published in the Supplementary Estimates. The following programs had funds reprofiled to future years: 2010 Olympic and Paralympic Winter Games, International Expositions and Historical Recognition Program.
1.5 Voted and Statutory Items($ millions)
| Vote # or Statutory Item (S) | Truncated Vote or Statutory Wording | 2006-07 Actual Spending |
2007-08 Actual Spending |
2008-09 Main Estimates |
2008-09 Actual Spending |
|---|---|---|---|---|---|
| 1 | Operating expenditures | 227.0 | 246.0 | 272.2 | 262.8 |
| 5 | Grants and contributions | 1,149.1 | 1,117.0 | 1,088.8 | 1,101.0 |
| (S) | Contributions to employee benefit plans | 25.0 | 26.4 | 28.3 | 27.9 |
| (S) | Minister of Canadian Heritage – salary and motor car allowance | 0.1 | 0.1 | 0.1 | 0.1 |
| (S) | Salaries of the Lieutenant-Governors | 1.1 | 1.1 | 1.1 | 1.1 |
| (S) | Payments under the Lieutenant-Governors Superannuation Act | 0.9 | 0.7 | 0.6 | 0.8 |
| (S) | Supplementary Retirement benefits – former Lieutenant- Governors | 0.2 | 0.2 | 0.2 | 0.2 |
| Total | 1,403.4 | 1,391.5 | 1,391.3 | 1,393.9 | |
