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The Chief Electoral Officer's Message

As we look forward and set our plans and priorities for 2009–10, we at Elections Canada see both challenges and opportunities ahead.

Our mandate requires us to be prepared at all times to conduct a federal general election, by‑election or referendum, and to administer the provisions of the Canada Elections Act and other related legislation. The past three general elections have taken place in scarcely more than four years, and each has returned a minority government. Practical considerations require Elections Canada to maintain special vigilance under successive minority governments. In the coming fiscal year, re‑establishing and maintaining election readiness will again be a priority for the agency both in the field and in Ottawa.

In early 2008, we began implementing the 2008–2013 Strategic Plan. This plan is driven by three objectives: Trust, Accessibility and Engagement. This coming fiscal year, we will finalize the frameworks to support the strategies of the plan. We will also focus on specific initiatives – particularly the Accessibility objective.

We will continue to engage Canadians and their representatives in our efforts to make the electoral process more responsive to their needs and expectations. A key part of these efforts in the next fiscal year will be completing our evaluation of the 40th general election. These activities will include assessing the impacts of the recent changes made to the electoral process, particularly the new voter identification requirements. This fall, I will table a report with my recommendations to Parliament.

Recently, there has been some public discussion about a potential referendum on the topic of Senate reform. In that regard, we are in the process of updating the regulation that adapts the provisions of the Canada Elections Act for the purposes of a referendum. It should be noted, however, that the political financing regime set out in the Referendum Act in 1992 differs from the one put in place more recently in the Canada Elections Act. For instance, no limits would be imposed on contributions to referendum committees, nor would there be a prohibition against contributions from corporations or unions that carry on business or hold bargaining rights in Canada. The adaptation authority granted in the Referendum Act does not empower the Chief Electoral Officer to bring the two political financing regimes into congruence. Amendments to the Referendum Act would be required should Parliament conclude that such congruence is needed.

In 2009–10, Elections Canada will devote considerable efforts to the development of human resources as we begin to implement our long-term human resources strategy to be unveiled in early 2009. We will also pursue the renewal of our information technology infrastructure by securing a robust and expandable data centre; this will meet the future requirements for growth and availability as we prepare to offer enhanced electronic services to voters.

Over the next fiscal year, we will undertake a review of our programs and operations, with the aim of ensuring they are aligned with our strategic priorities and the key ongoing results we deliver to Canadians. This will allow Elections Canada to identify opportunities for internal reallocations through efficiency and effectiveness gains. However, given the pace of electoral events and legislative reforms over the last 10 years, we may need additional long-term funding to ensure the agency continues to fulfill its responsibilities. 

_______________________________
Marc Mayrand
Chief Electoral Officer of Canada

 

Section I – Agency Overview

Raison d’Être

The Office of the Chief Electoral Officer, commonly known as Elections Canada, is an independent, non-partisan agency that reports directly to Parliament. Its mandate is to:

• be prepared at all times to conduct a federal general election, by‑election or referendum
• administer the political financing provisions of the Canada Elections Act
• monitor compliance and enforce electoral legislation
• conduct voter education and information programs
• provide support to the independent commissions in charge of adjusting the boundaries of federal electoral districts following each decennial census
• carry out studies on alternative voting methods and, with the approval of Parliament, test electronic voting processes for future use during electoral events

Responsibilities

In fulfillment of this mandate, Elections Canada appoints, trains and supports 308 returning officers and 30 field liaison officers across Canada. It maintains the National Register of Electors, as well as electoral geography information that provides the basis for preparing maps and other geographic products used during electoral events.

The agency also:

• registers political entities, including political parties, electoral district associations, candidates, leadership contestants, third parties that engage in election advertising and referendum committees
• administers the allowances, reimbursements and subsidies paid to eligible candidates, registered political parties and auditors
• monitors compliance with the Canada Elections Act
• discloses information on registered parties and electoral district associations, nomination contestants and leadership contestants of registered parties, candidates, third parties, and referendum committees, including their financial returns

In addition, the agency recommends to Parliament amendments for the better administration of the Canada Elections Act. It does this through the statutory reports of the Chief Electoral Officer after electoral events, as well as through the provision of expert advice when Parliament studies electoral reform.

Strategic Outcome and Program Activity Architecture

Elections Canada has a single strategic outcome supported by the following Program Activity Architecture (PAA):

Note: Our PAA remains unchanged for 2009–10. However, we are presenting financial figures for Corporate Services as a program activity to reflect what has been presented in the Main Estimates.

Planning Summary

The following information summarizes the agency’s plans and priorities for the next three fiscal years.

Financial Resources ($ thousands)

2009–10	2010–11	2011–12
$119,635	$117,532	$117,532

 

Human Resources – Full-Time Equivalents (FTEs)

2009–10	2010–11	2011–12
394	404	404

Program Activities by Strategic Outcome

The following chart summarizes Elections Canada’s four key programs (mandated priorities), which complement our single strategic outcome.

Strategic Outcome: an electoral process that contributes to fairness, transparency and accessibility for all participants, in compliance with the legislative framework.

Mandated Priority (Key Program)	Forecast Spending 2008–09 ($ thousands)	Planned Spending ($ thousands)
		2009–10	2010–11	2011–12
Key Program 1* Electoral event delivery, political financing, and compliance and enforcement	273,380	39,876	33,676	33,676
Key Program 2** Electoral event readiness and improvements	78,991	43,906	49,529	49,529
Key Program 3 Public education and information, and support for stakeholders	6,274	10,628	10,628	10,628
Key Program 4 Electoral boundaries redistribution	0	0	0	0
Corporate Services	n/a	25,225	23,699	23,699
Total	358,645	119,635	117,532	117,532

* The variance between the Forecast Spending in 2008–09 and the Planned Spending for 2009–10 can be attributed to the cost of the 40th general election.

** The variance between the Forecast Spending in 2008–09 and the Planned Spending for 2009–10 can be attributed to the cost of pre-event readiness and the transfer of expenses from the Elections program activity to the Corporate Services program activity.

Contribution of Priorities to the Strategic Outcome

The following charts summarize the contribution of Elections Canada’s operational program priorities and its management priorities to its single strategic outcome.

Operational Priorities	Type	Description of plan for meeting the priority
1. Maintain a state of readiness to deliver electoral events	Ongoing	Our mandate requires the agency to be ready to conduct an electoral event at all times. To fulfill this priority, Elections Canada will return to a state of full readiness for September 1, 2009, while ensuring it has adequate contingency plans in place should a general election occur before then. We will also assess ongoing legislative reform proposals as they arise for their impact on event readiness.
2. Implement a registration process that allows electors to register in person, by mail, telephone or Internet anytime and anywhere¹	Previously committed to	An e‑registration application will be under construction by the end of fiscal year 2009–10. The goal is to implement the system by October 2010.
3. Deepen our knowledge of youth engagement, and pursue a comprehensive analysis of current information and programs	Previously committed to	To fulfill this priority in 2009–10, Elections Canada will develop research action plans and undertake research to address problems such as barriers to youth voting. In addition, based on evaluations following the 40th general election, the agency will produce various reports intended to increase knowledge of youth electoral participation. For example, the reports will examine voter participation by age group, the impact of the use of technology on youth turnout, and other issues.
4. Complete the modernization of Special Voting Rules (SVR) information management	Previously committed to	This project’s goal is to merge three separate systems used to monitor the SVR for six classes of electors who vote by special ballot. Redundant data will be eliminated and data accuracy will increase as a result. In 2009–10, we will complete the modernization of the SVR information management system.
5. Expand training programs and tools for political entities and Elections Canada employees	Ongoing	Action items in 2009–10 for this priority include an assessment of current training programs for election workers and the development of on-line tutorials for official agents of candidates and financial agents of electoral district associations.

¹This initiative was identified as a key strategy in our Strategic Plan 2008–2013.

Management Priorities	Type	Description of plan for meeting the priority
1. Upgrade our information technology and field systems	Previously committed to	The focus for 2009–10 is to develop an integrated project plan for the centralization of event field data. Existing field applications will also be centralized and Web-enabled by October 2010.
2. Establish a corporate learning function at Elections Canada	New	Elections Canada recently adopted a human resources strategy for 2009–13. A key initiative of the strategy for 2009–10 will be the creation of a corporate learning function. This will develop and implement a whole spectrum of organizational and individual learning requirements.
3. A-Base review	New	To fulfil this priority in 2009-2010, Elections Canada plans to undertake a review of its programs, operations and related resources. The aim is to ensure they are aligned with our strategic priorities and the key ongoing results we deliver to Canadians. This exercise will allow Elections Canada to establish realistic resource levels, while identifying opportunities for internal reallocations through efficiency and effectiveness gains. However, given the frequency and pace of electoral events and legislative reforms over the past ten years, we may need additional long-term funding to ensure sustainability in fulfilling our responsibilities.

Operating Environment

The length of Elections Canada’s business cycle continues to vary in the ongoing situation of minority governments. The uncertainty makes planning and delivery challenging. We must continually monitor parliamentary and political events and trends so that we can take into account circumstances that might affect our electoral readiness and preparations for electoral events. Maintaining a constant state of heightened readiness also imposes a strain on the agency’s human resources.

Elections Canada must continually monitor and implement legislative changes, while maintaining a state of heightened readiness. A number of significant legislative changes have recently been adopted by Parliament. Many of these relate to the conduct of electoral events and were implemented in the 40th general election, on October 14, 2008. We are in the process of evaluating the impact of these changes on the electoral administration. A detailed description of new legislative initiatives and judicial decisions is provided in Section III, Other Items of Interest.

The statutory regime governing the activities of political entities has increased in complexity over the years. Political entities rely largely on the work of volunteers to fulfill their administrative requirements under the Canada Elections Act. Consequently, they face significant turnover of personnel and retain only limited corporate memory of these matters.

To help political entities meet the challenges, Elections Canada conducts a range of activities. For example, it sets up helpdesks during and after electoral events, and offers different types of training sessions across the country. Elections Canada also publishes manuals, guides, lists of frequently asked questions, interpretation bulletins and various other documentation, all designed to assist political entities in understanding and meeting the legislative requirements.

Increasingly, however, political entities expect more than guidance and assistance: they seek to be involved in identifying the problems and developing solutions.

To better fulfill its regulatory mandate, Elections Canada must find ways of becoming more inclusive of stakeholders. It must rationalize its regulatory tools and enhance ongoing communications, particularly with political parties. With them, the agency shares a goal of achieving a sound and workable regulatory framework, consistent with applicable legislation. This framework should not unduly impede the ability of political entities to carry out their fundamental role. At the same time, it should promote the values of fairness and transparency, which are hallmarks of Canada’s electoral system.

The electoral frameworks at the provincial and federal levels are in constant evolution. The changes are often in a similar direction; examples are the introduction of voter identification or additional services for electors, such as on-line voter registration. Since different legislation applies, the voting experience of Canadians can vary significantly at the provincial and federal levels. Elections Canada is redoubling its efforts to work in close partnership with other electoral agencies, with a view to ensuring that our approaches are as consistent as possible, and that agencies share elector registrations and other information. Ultimately, the aim is to provide the best possible service to electors in all electoral events.

Elections Canada conducts referendums much less frequently than it does general elections or by‑elections; the last referendum was held in 1992. However, the agency must be prepared to hold a referendum if called on by Parliament. Recently, there have been some public discussions about a potential referendum on the topic of Senate reform. The Referendum Act provides that, subject to specific provisions of that legislation, the Canada Elections Act applies in the case of a referendum. The Referendum Act authorizes the Chief Electoral Officer to make a regulation adapting the provisions of the Canada Elections Act for the purposes of a referendum. The last such referendum regulation was made in 2001. In view of the significant changes to the Canada Elections Act since that time, work is under way to update the regulation. Before the Chief Electoral Officer makes the proposed regulation, it must be tabled with the clerks of both the House of Commons and the Senate. This provides the opportunity for a committee of each house of Parliament to review the regulation and make recommendations to the Chief Electoral Officer.

As stated earlier, the political financing regime set out in the Referendum Act differs from that now set out in the Canada Elections Act. In particular, no limits would be imposed on contributions to referendum committees, nor would there be a prohibition against contributions from governments in Canada or from corporations or  unions that carry on a business or hold bargaining rights in Canada. Whether congruence should exist between the two political financing regimes is a question of policy. In the Referendum Act, Parliament has set out the regime applicable to contributions and expenses of referendum committees. Amendments to that act would be required to achieve congruence.

The agency is making significant investments for a necessary renewal of its information technology (IT) infrastructure. We had no choice but to stretch its lifespan to meet our ongoing readiness goals in the situation of minority governments. The existing IT environment has reached the limits of its capability and cannot be augmented further to meet new requirements. This affects every aspect of the IT environment. To address this risk, an IT Renewal project has begun and will, over a period of years, replace our current infrastructure with one better suited to meet the expectations and future needs of stakeholders. The timely renewal of IT infrastructure is also essential to our organizational capacity and our ability to meet the future service demands of the Canadian public, Parliament, other stakeholders and our employees.

In 2008–09, Elections Canada consulted with employees, managers and executives to better understand the results of the staff survey conducted in 2007. Through this process, we gained a better understanding of our core challenges and areas that required our attention. To address these, in early 2009 the agency adopted a four-year human resources strategy in support of the Strategic Plan 2008–2013.

Expenditure Profile

The Office of the Chief Electoral Officer is funded by an annual appropriation that provides for the salaries of permanent full-time staff, and by the statutory authorities contained in the Canada Elections Act, the Referendum Act and the Electoral Boundaries Readjustment Act. The statutory authoritiesprovide for all other expenditures, including the costs of electoral events, reimbursements of election expenses to eligible candidates and parties, quarterly allowances for eligible political parties, redistribution of electoral boundaries, and expenses incurred by the Commissioner of Canada Elections or on behalf of the Commissioner in connection with the enforcement of the legislation. There are two further statutory items: the salary of the Chief Electoral Officer and contributions to employee benefit plans.

2009–10 Forecast Spending² by Key Program

For 2009–10, Elections Canada plans to spend $119.6 million to meet the expected results of its program activities that contribute to its strategic outcome. The following chart presents the allocation of funding by key program.

²Excluding event budget

Voted and Statutory Items

The following table presents Elections Canada’s voted and statutory items for the specified reporting period, as tabled in Parliament.

Voted and Statutory Items Listed in Main Estimates

Vote # or Statutory Item (S)	Truncated Vote or Statutory Wording	2008–09 Main Estimates ($ thousands)	2009–10 Main Estimates ($ thousands)
15	Program expenditures	22,062	27,397
(S)	Expenses of elections	84,318	87,316
(S)	Salary of the Chief Electoral Officer	260	265
(S)	Contributions to employee benefit plans	3,861	4,657
	Total	110,501	119,635

Note: The year-over-year change of $9,134,000 in the Main Estimates is due mainly to an increase in salary and benefits approved by the Treasury Board in 2008, as well as to activities following the 40th general election held in October 2008.

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