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·	From Theory To Practice

Introduction

Human Resources and Skills Development Canada (HRSDC) plays a key role in the development of Official Language Minority Communities. In setting up the Secretariat, Official Language Minority Communities and its Support Fund, HRSDC has demonstrated its commitment towards implementing section 41 of the Official Languages Act.

The SOLMC has examined the formative evaluation carried out by the Audit and Evaluation Directorate and endorses the results.

Main Observation

The evaluation shows that progress has been achieved in three years. The Support Fund enabled the Comité national de développement des ressources humaines de la francophonie canadienne (referred to as the Francophone Committee) and the National Human Resources Development Committee for the English Linguistic Minority (referred to as the Anglophone Committee) to establish from the ground up a network of delegated organizations, the Réseau de développement économique et d'employabilité (RDEEs) and the Community Economic Development and Employability Committees (CEDECs) throughout the country which allows them to implement their strategic plans. The Official Language Minority Communities did not have these infrastructures and capacities prior to 1999.

The evaluation emphasizes the relevance of the Support Fund and its consistency with section 41 of the Official Languages Act. The document also makes a number of positive observations, such as the establishment of a Canada-wide infrastructure and the multiplying and leveraging effects in terms of investment and partnerships.

It notes, however, there is a dichotomy between the mandate/objectives of the Support Fund and those of the Employment Benefits and Support Measures (EBSM), its funding source, especially with respect to economic development.

The evaluation mentions some early signs that the Support Fund is beginning to mobilize communities and build their capacities in terms of economic growth and employability.

It also shows that a number of systems still need to be put in place and some adjustments made to the administration of the Support Fund, including data collection, the development of a comprehensive framework of performance indicators and a better knowledge of the needs of the local labour market of the communities.

O: Observation - A: action planned

Relevance and Design of the Support Fund

O 1: The ad hoc nature of the commitment to the Support Fund places the delegated organizations in a situation of uncertainty.

A 1: The Department recognizes that the temporary nature of the funding creates a climate of uncertainty within the delegated organizations.

In order to ensure long-term funding, SOLMC has developed a three-pronged strategy: (1) make use of Labour Market Partnership (LMP) in the short term; (2) search for additional, complementary funding sources to finance objectives, activities and expenditures that do not meet the LMP eligibility criteria but fall within the Department's mandate; and (3) seek for a government long term funding solution.

HRSDC is working with other federal partners to seek authorities for long term funding mechanisms and program delivery models that take into account all the human resources, economic development and community capacity-building issues facing Official Language Minority Communities.

In this way, HRSDC endeavours to solidify its commitment to the Anglophone and Francophone minority communities and ensure the sustainability of the delegated organizations.

O 2: There is a lack of symmetry between the mandate/objectives of the Support Fund and those of the Employment Benefits and Support Measures, especially in terms of economic development.

A 2: SOLMC agrees with this observation.

HRSDC is working with federal partners to seek long term authorities to establish program delivery models that take into account all the human resources, economic development and community capacity-building issues facing Official Language Minority Communities. Activities of the minority communities were limited to those meeting the LMP Terms and Conditions up to October 1, 2004. Since that time HRSDC has obtained authorities to implement new terms and conditions and Consolidated Revenue Fund funding until March 31^st, 2005. These new authorities close the gap between the mandate objectives of the Support Fund and the activities the department can financially support. The lack of symmetry issue is thus fully resolved in the short term.

O 3: The alignment of the Anglophone National Committee's strategic and action plans, on the one hand, with the mandate of the Support Fund, on the other, is less clear.

A 3: The Anglophone Community Table has developed a strategic plan designed to position the Anglophone community in terms of the major trends in community economic development and employability. The Anglophone National Committee has acted on a number of fronts to strengthen the community capacity of English communities in Quebec. In April and May 2003, the SOLMC held two information sessions with the representatives of the Anglophone National Committee to raise their awareness of how to put the LMP to better use in pursuing their strategic priorities. Furthermore, the authorities sought for fiscal year 2004-2005 will ensure better support for the community capacity-building work undertaken by the Anglophone National Committee as part of its strategic planning. Finally, any solutions explored in order to provide a long-term government solution will take into account the differing needs of the two communities and their respective planning.

Implementation and Management of the Support Fund

O 4: Certain respondents are concerned about the consistency of information provided by the SOLMC.

A 4: The inconsistency of information is to a large degree attributable to high staff turnover. The short term nature of the program funding has not allowed establishing permanent positions for the Support Fund during the period covered by the evaluation. Since that time, the Department has authorized the SOLMC to hire indeterminate staff. Over time, this will diminish the instability and high staff turnover. Furthermore, sponsor guides and enhanced staff training should also contribute to improved consistency of information.

O 5: The lack of clarity around the criteria and the procedure for processing funding applications creates problems.

A 5: A Guide to the Funding Application was developed in January 2001, revised in the fall of 2002 and distributed to the entire network.

The SOLMC also developed criteria for prioritizing the funding applications and, as part of the LMP orientation sessions held in April and May 2003, distributed a checklist for evaluating proposals to ensure a clear understanding of the terms and conditions of the LMP and of the application approval procedures.

On the question of application processing, on February 16, 2004, the Employment Programs Branch implemented directives dealing with the separation of duties in the life cycle of grants and contributions projects, the use of internal review committees and the introduction of enhanced financial controls/mandatory audit clause. The Support Fund is governed by those directives and the SOLMC will inform the network partners of them. The new directives will clarify the criteria and procedure for processing funding applications and the process itself will become more streamlined and efficient.

O 6: Some regional co-ordinators and other members of the review committees do not adequately understand the Support Fund or their role in the process of reviewing contribution applications. This limits the reliability of their recommendations and their contribution to decision-making.

A 6: A communication strategy has already been implemented to address this observation. In particular, SOLMC has communicated with departments of the Government Table to confirm their review role which is to avoid any overlap or duplication in the funding of projects and to ensure optimal use of public funds. Support Fund officers have also met with many HRSDC officers in the field during regional travel to discuss their role. In addition, information on the program has been distributed at the Department's annual meetings of official language representatives.

Should a new program delivery model be introduced, the need to involve a review committee will be assessed. Such a committee could include representatives from local and regional offices and from departments and organizations members of the network. If the need to maintain the contribution application evaluation process is demonstrated, the SOLMC will develop and implement a communication strategy describing the new mandate and responsibilities of the review committee members in the context of the new program.

O 7: The SOLMC has not provided a functional and operational definition of what an enabling fund is.

A 7: SOLMC will provide a functional and operational definition of what is an enabling fund for Official Language Minority Communities which will build on the implicit definition that can be inferred from how the Support Fund is used. It implies that the Fund generates spill-over effects that contribute to community progress. With the funding granted to support the implementation of the Official Language Minority Communities strategic plan, the delegated organizations have leverage to approach potential partners and rally government, financial and community stakeholders, thus accessing other funding sources in order to achieve projects in their communities and ensure their viability.

As an example, the Agricultural Rural Minority Language Community Planning Initiative clearly shows the growth-generating effect and positive impact of the Support Fund. Under this initiative, Agriculture and Agri-Food Canada and Canadian Heritage invested $2 million to assist agricultural rural minority language communities in building a consensus on development options that draw on the community assets and balance economic, social and environmental objectives. At the same time, some sixty communities acquired a community-planning tool.

O 8: The delegated organizations have only a partial and unequal understanding of the needs of the workforce and of the labour market and, for some, work still needs to be done in this area.

Training and experience within the delegated organizations are lacking.

A 8: In preparation for developing a more definitive approach in supporting Official Language Minority Communities, the delegated agencies will be requested, over the short term, to conduct studies and implement projects that identify community assets, needs and opportunities with regard to human resources and labour market planning. This work will permit the acquisition of capacities for community planning of human resources.

The SOLMC will assist community representatives to develop community profile template by providing guidance and training sessions.

O 9: The SOLMC has not set clear, measurable objectives and does not use performance indicators in administering the program.

The SOLMC and the national committees have not developed an integrated data collection system to facilitate the documentation and analysis of progress toward the achievement of the Support Fund's objectives.

The delegated organizations produce activity reports of marginal value.

A 9: The lack of performance indicators for the Support Fund and data on the current situation of Official Language Minority Communities means that targeted data on program performance cannot be collected.

In the short term, SOLMC will ask the delegated organizations to develop community profiles that provide quantitative and qualitative data on the current socio-economic situation of the Official Language Minority Communities.

It will also consult with the national committees and delegated organizations to develop performance indicators and put a reporting structure into place that combine the Support Fund objectives with those of the strategic directions of both national committees and community plans.

In the context of the implementation of a long-term government solution that takes into account any human resources, economic development and community capacity-building issues facing Official Language Minority Communities, HRSDC will introduce a Results-based Management and Accountability Framework that includes performance indicators and reporting mechanisms dependent on the mandate of the new initiative.

Results and Structuring Effects of the Support Fund

O 10: The infrastructure created under the Support Fund has had varying degrees of success in translating the strategic plans of the delegated organizations into sustainable and measurable results in the field.

A 10: SOLMC agrees with this observation. It should, however, be noted that the delegated organizations did not all come into being at the same time and the reality of minority communities is that they have specific characteristics that vary by region, province and territory. Certain delegated organizations have a support structure extending beyond federal departments, while others do not even have access to funding from regional economic development agencies.

Given the variety of resources available to the communities, the challenges facing the Department requires it to adopt an asymmetrical approach, while keeping in mind the strategic planning of the two networks and the best interests of each. The Department will continue to work directly with stakeholders from the two networks to assist them in understanding the program requirements and ensure training and renewal within the delegated organizations.

O 11: There is still much to be done by federal institutions in terms of adapting their policies, programs and services to the economic development and employability needs of Official Language Minority Communities.

A 11: HRSDC is committed to find ways to optimize the involvement of other departments and organizations.

HRSDC is seeking their full engagement in bringing recommendations that will address the human resources and the economic development of the Official Language Minority Communities.

The implementation of the Governmental Action Plan for Official Languages also creates an environment favourable to the development of new interdepartmental partnerships.