Home : Reports and Publications : Audit & Evaluation : Evaluation of the WCBSN – Sept 2004
3.2 Relationship With Other Network Members and WD
Governance and Delivery
Is the current partnering arrangement between WD and the members of the network appropriate?
Is the level of financial support of WD appropriate?
Are the contractual arrangements appropriate? Complete?
Is WD the only partner to the network organizations? What is the role of the other partners?
Are the roles and responsibilities of each member clear? Are they appropriate?
Is the frequency and format of the communications/meetings between network members appropriate?
Is the network fostering a consistent and cohesive approach? Are members working together? Is there a need for a regional association among partners?
3.2.1 Relationship Between Network Members
Overall Findings
Many WD key informants cite some recent improvements in relations among network members in terms of increased cooperation and lessening of tensions that initially arose with the formation of new network organizations. Some WD and stakeholder key informants indicate that WCBSN cannot be characterized as a network as there are few formal linkages across the organizations. The relationship, according to WD and stakeholder key informants, can vary by network organization, locality and region. The relationships and linkages among like member organizations are cited to be stronger and more cohesive (e.g. CF network) as compared to the WCBSN.
While many stakeholder key informants and focus group participants had little awareness of the WCBSN concept, the majority of survey respondents reported regular exchanges with other network partners. Sixty-nine (69) per cent of survey respondents agreed that the network members regularly exchanged information. The majority (64 per cent) of survey respondents stated that they meet regularly with other network members to improve services. Sixty-one (61) per cent of survey respondents stated that the network members regularly referred clients to each other. Forty-nine (49) per cent of survey respondents agreed that WCBSN members share a consistent and cohesive approach to business and economic development.
Survey respondents in Manitoba (80 per cent) and Saskatchewan (78 per cent) also report that CFDCs, CBSCs, WEIs and FEDOs regularly refer clients to each other. Survey respondents in Alberta (88 per cent) and Saskatchewan (90 per cent) report that their organizations regularly exchange information with other network members.
Other key findings in this section include:
- Some community representatives expressed the need for increased awareness as to role of network members particularly FEDOs and WEI organizations (i.e. mandate, products, services, locality).
- Challenges to strengthening the WCBSN include the need to maintain local responsiveness, the need for network members to operate within a number of other networks, geographic distances and lack of awareness with respect to WCBSN and its members.
- There is general agreement as to the potential benefits of the Pan Western "all-partners" meetings. Many suggest improvements could be made by making meetings more strategic.
- The majority of key informants and survey respondents (91 per cent) agree that there is an ongoing need for the CF Pan Western Association.
- Many WD and community representatives note that the partnering arrangement between WD and the network members is appropriate. Some concerns were expressed with respect to the lack of clarity with respect to WD's role, the need for consistent WD support for the WCBSN and the need for enhanced communication from WD.
- A major source of dissatisfaction for survey respondents relates to financial support with only 21 per cent agreeing that WD funding met the basic operational needs of their organizations.
Detailed Findings
Many WD informants noted improvements with respect to enhanced cooperation among network organizations. Some WD key informants also report that moving the Service Partnership Secretariat (SPS) to national headquarters has the potential to improve WD coordination and oversight of SPS activities. While the administration of the program remains at the regional level, the intention is to integrate the WCBSN through strategic planning.
WD and community representatives cited the following specific examples of collaboration:
- Joint development of common tools such as loan assessment tools among CFDCs.
- Joint development of self-employment module (13 CFDCs, Alberta).
- WEIs are working with CFDCs in some rural areas to provide joint loans (Saskatchewan).
- WEI and CFDCs have shared training, financing and special events in Manitoba.
- FEDOs and CFDCs developed and delivered a Youth Entrepreneurship Camp (Saskatchewan/Alberta).
- Sharing of assessment tools between Saskatchewan and Manitoba.
- Many CF offices have responsibilities for Regional Access Centres – thereby providing client access to CBSC (Alberta).
- In some cases the network partners co-locate (e.g. CBSC and WEI in BC).
- Some sharing of booth space at events among network partners (BC).
- Some loan fund pooling.
WD key informants noted a number of challenges to building the WCBSN relating to network complexity, the need to maintain local responsiveness and geographic distances. Each network organization operates within a number of networks. There are local, provincial, Pan West and the WCBS networks. It is a challenge for each organization to operate at all of these levels particularly given time and resource constraints. The geographic spread of CFDCs and their focus on the local community also create challenges for networking beyond the local level. Some focus group participants also noted the challenges of personal exchanges between network members given the broad geographic base and the large number of organizations within the WCBSN.
Detailed Findings by Type of Network Organization
The following subsections provide more detailed findings by type of network organization:
CFDCs
Many key informant and focus group participants noted good formal and informal linkages between the CFDCs and between CFDCs and CBSCs and some collaboration with FEDOs and WEI.
Focus group participants reported that overall the CF network operated effectively with regular exchanges (both formal and informal) of information (e.g. quarterly management meetings, annual conferences, phone calls, e-mails). Participants also noted that CFDCs provide referrals to each other, particularly where communities are in close proximity. There is some sharing of resources, particularly with respect to larger projects. On the whole, participants had positive comments about the Best Practices section on the Pan West Web site. Some participants also felt that the CF network acted as a mentoring system with established CFDCs assisting new ones.
With respect to interactions between CFDCs, the majority of survey respondents report the following:
- 91 per cent report that CFDCs regularly exchange business information.
- 77 per cent report that CFDCs meet regularly to improve their services.
- 74 per cent report that CFDCs share best practices about loan management and community economic development.
- 61 per cent share best practices about client training/counseling.
Some stakeholder key informants noted the recent trend towards developing common projects among CFDCs. However, they noted that there were a number of hurdles to establishing these projects. For example, it was sometimes difficult obtaining agreement between CFDCs and other local organizations. Another key informant commented on the challenges for CFDCs to network beyond the sub-regional level. According to this key informant a framework of protocols for networking at the regional level is required. The role of the CFDC needs to be clarified when it comes to larger regional initiatives, as this role can sometimes conflict with the municipal role.
CBSCs
While some focus group and key informants noted some variations as to the strength of the relationship between CFDCs and CBSCs, many stated that the relationship with CBSC and other network members was positive and that CBSCs were a useful resource. Sixty-one (61) per cent of survey respondents reported partnerships with CBSCs. Survey findings show some reported regional variation in partnerships with CBSCs (Alberta -30 per cent of survey respondents report partnerships with CBSCs; B.C. - 57 per cent; Manitoba – 92 per cent; and Saskatchewan – 100 per cent).
Some focus group participants cited the Talk Back service provided by CBSCs as very useful. Some focus group participants reported that CFDCs regularly attend training seminars hosted by CBSCs and in turn they provide business profiles for CBSC clients. Other participants stated that the 1-800 number provided by the CBSCs was useful.
FEDOs
Key informants reported a positive relationship between FEDOs. Partnerships are maintained amongst the Francophone Economic Development Organizations (FEDO) via a western FEDO committee. The four western FEDOs meet on a regular basis to exchange information, ideas and to develop and implement joint projects. A close partnership between British Columbia, Manitoba and Saskatchewan FEDOs has resulted from the Corridor touristique francophone de l'Ouest (the Alberta FEDO is conducting a portion of this project on its own).
Stakeholder key informants and focus group participants noted that the strength of the relationships between network members and FEDOs varied, depending on various factors such as location, region and organizational management style. Focus group participants noted some exchanges between FEDOs, CFDCs and WEIs, mainly in terms of referrals. WD key informants noted that some FEDOs are still in developmental stages, which may impact on the nature of the relationship with WCBSN members.
Key informants and focus group participants cited some specific examples of cooperation:
- Sharing of database between CFDC and FEDO.
- High speed internet project in Saskatchewan.
- CFDCs and FEDOs have formed partnerships in some rural areas.
According to key informants, there are some regional differences in exchanges between FEDOs and other network members. For example, in Manitoba there is a strong FEDO/WEI/CFDC cluster. Saskatchewan was also reported to have a good CBSC/FEDO partnership. In Alberta, it was reported that there are exchanges and joint projects between WEI, FEDO and CBSC. British Columbia noted informal linkages between CFDCs and WEI. WEIs and CBSCs are also co-located in this region.
FEDO key informants note that they have some partnerships with WEIs, CBSCs and CFDCs. They note that the formation of linkages with other network members can sometimes be challenging given competition for resources. Key informants also noted that FEDOs have significant partnerships with other types of organizations, such as Francophone organizations.
WEIs
A positive relationship was reported between offices of the WEI. WEI organizations meet four times a year to discuss best practices. Stakeholder key informants indicate that WEI is more likely to partner with other network members at the local level, but less likely to partner with other network members at the regional level or across regions.
Key informants reported good relationships with CBSCs and FEDOs and some CFDCs. WEI is considering additional strategies to work more closely with the CFDCs in order to reach rural clients. Increasingly, CBSCs and WEI organizations collaborate on delivering training that includes WEI clients.
Focus group participants reported close ties between WEI and some CFDCs. Members have shared training, financing and special events. They also refer clients to each other to maximize their portfolios. Focus group participants and key informants cited good collaborative relationships among WEIs, CFDCs and FEDOs in Manitoba. There is a good referral system and some sharing (e.g. co-lending, co-counselling) or splitting of services.
WEIs are co-located with CBSCs in British Columbia, Alberta and Manitoba. In Alberta the CBSC, FEDO, CFDCs and WEI are working on a joint proposal called "Capacity West" – detailing a pilot project for video conferencing technology to link members in the province.
3.2.2 WCBSN Meetings
WD key informants state that there are semi-annual "all partner" Pan-West Meetings that have been called on an ad hoc basis for the past two years. In the fall of 2003, WD announced that these meetings were to become an established semi-annual occurrence. These meetings bring together Assistant Deputy Ministers, WD officials, the chair and directors of each CF association and WEIs, and the managers of the CBSCs. Some regional WD key informants also report additional provincial meetings comprised of partner organization representatives at the provincial level (e.g. B.C.).
The majority of WD key informants agree that the frequency of the meetings (bi-annual) is appropriate given resources, work schedules and distances. There were mixed opinions as to the appropriateness of the meetings. Some key informants state that the meetings have resulted in some positive impacts such as decreasing tensions between network partners, identifying opportunities for partnership, providing opportunities to discuss issues and disseminating information back to the regional and local levels. Other WD key informants felt that the meetings were not appropriate because there was little buy-in from network members as to the value of the network.
While many WD key informants felt that the meetings had potential, they also felt that improvements were needed. Some WD members expressed the opinion that the meetings had been too "reactive" and were used primarily as a forum to discuss financial issues. Key informants indicate that members need to buy-in to the concept of the network. They have to see the value and benefits to being part of the network. Some WD key informants point out that this idea cannot be "forced". They suggest that WD play an enabling and support role to facilitate strengthening of the network. According to one WD key informant, responsibility for coordination of future meetings will rest with WCBSN representatives.
WD key informants made a number of suggestions to improve the meetings. They suggested that meetings should:
- Be more strategic.
- Be action-oriented and focused on what is useful to members.
- Be supplemented by smaller working venues. Meetings at the regional level would provide opportunities for community and WD representatives to discuss issues in-depth.
- Provide more opportunities for community representatives to interact.
- Consider existing meetings, conferences to enhance network collaboration.
3.2.3 Regional Associations
The majority of WD key informants indicate that the CF provincial associations and the CF Pan West Association are necessary to coordinate information at the provincial and pan western levels. The association helps to facilitate links between WD and the CFDCs. Some WD informants, however, cautioned that WD must continue to be directly linked to individual CFDCs. A majority of survey respondents agree (91 per cent) that there is an ongoing need for a Pan Western CF Association.
A minority of WD key informants felt that there was no need for the CF Associations. These key informants believed WD could more efficiently do the coordinating and liaising function played by the CF associations. One key informant suggested that the operating budgets of individual CFDCs could be "topped up" to cover additional administrative/coordinating costs.
Some stakeholder key informants pointed out that the associations played a coordinating role (e.g. coordinate conferences). In addition, information from the provincial association provides local CFDCs with a provincial perspective of the Community Futures program. Focus group participants expressed mixed opinions with respect to the ongoing need for a pan western CF association. Some participants stated that the association had relevance with respect to exchange of up-to-date information between regions, and as an advocate for CFDCs at the pan western level. Some participants expressed concern about an additional layer or structure and that there continues to be a need to be responsive to regional and local needs.
Some suggestions were made to improve the Pan Western CF Association. These include:
- Adequate promotion and funding.
- Keep Pan West Web site up to date.
- Need for consistency in governance of association.
- Improved communication to members as to what's happening with the association.
3.2.4 Partnering Arrangement Between WD and Network Members
Two-thirds of WD key informants felt that the partnering arrangement between WD and the members of the network was appropriate because it provides accountability and allows community organizations the independence to respond to community needs. One-third of the WD key informants indicated that the partnering arrangement was not appropriate. Some key informants felt that the funder/recipient relationship was not appropriate; they would prefer an arrangement where both partners could deal with each other on a more equal footing.
Many stakeholder key informants and focus group participants stated that a positive relationship exists between WD and the network members. Some focus group participants credited WD for organizing a four-page flyer describing the partner members and the services they provide.
WEIs and WD
There were mixed responses from stakeholder key informants with respect to the relationship between the offices of the WEI and WD. While respondents felt that the relationship has some key strengths (e.g. good relationships with WD contact people), they also noted areas where improvements were needed. These include:
Improved coordination and communication (e.g. sufficient notice of WD meetings, clear and consistent communication with respect to WD direction and rationale for changes).
Consistent attendance of WD at Board of Director meetings.
There is also some variation as to the extent WEI file managers are involved in activities of the organization, with some attending Board meetings as ex-officio members and providing support and information to office staff. Others are less involved with little knowledge of the issues facing WEI organizations.
FEDOs and WD
Overall FEDO key informants agreed that their relationship with WD was appropriate. However, it was noted that WD project staff turnover is challenging at times. Some FEDO key informants have also voiced concerns with respect to the timeliness of project payments from WD. FEDO key informants also felt that WD should consider each FEDO as unique and facing specific challenges related to their context.
3.2.5 Roles and Responsibilities
About half of the WD key informants and some community representatives indicated that WD's roles and responsibilities require some clarification. Some WD key informants note that the role and responsibilities have been shifting and that WD's direction has shifted (i.e. sustainable communities). However, as one key informant pointed out it is difficult to develop a "common" view of WD among different community organizations, each with their own views. In addition, regional differences in WD may also contribute to differing perceptions of WD's role.
Other sources of role confusion were also noted. One key informant stated that the CBSC National Secretariat is sometimes confused with the Service Partnership Secretariat within WD. Some WD key informants indicated that the move of the Service Partnership Secretariat to the WD Headquarters would help to clarify WD's role and responsibilities. One key informant also noted that there is lack of clarity between the role of the Community Economic Development Network (CCDNet) and the Community Futures network.
A number of WD and stakeholder key informants felt that additional clarity and communication was required with respect to:
- WD's role, vision, direction, objectives and rationale for changes in policies and operations.
- WD's expectations of the network partners (i.e. Innovation? Capacity building?).
- The role and operations of other network members. For example, additional clarification of FEDOs and WEI organizations is required. It should be clear to other network members that FEDOs are responsible for the province as whole. Moreover, some stakeholder key informants expressed a lack of awareness of WEI, its mandate, services and products.
- The purpose and objectives of the WCBSN.
3.2.6 Contractual Arrangements
Most WD key informants indicate that the contractual arrangements are appropriate. Sixty-one (61) per cent of survey respondents agreed that the terms and conditions of the contribution agreement were appropriate (with 31 per cent neither agreeing nor disagreeing). Eighty-five (85) per cent of survey respondents agreed that WD staff is available to help interpret the terms and conditions of the contribution agreement.
WEI organizations in Alberta, Manitoba and Saskatchewan are suggesting that the loan limits be raised to $250,000 from the current $100,000. The rationale for this is that the larger loans would fill the gap between the WEI limit and the new program the BDC is offering to women starting at $250,000.
WD key informants noted that the move to five-year contracts had improved planning Some WD key informants noted the need for clarification with respect to ownership of assets, use of investment funds and Official Language Act responsibilities. One WD key informant also noted that it would be more appropriate to have WD review the Articles of Incorporation more carefully. At present CFDCs only have to notify WD with respect to the Articles of Incorporation.
3.2.7 Level of Financial Support
Most WD key informants agreed that the level of financial support for WEIs, FEDOs and CBSCs was appropriate. Just over half of the WD key informants indicated that CFDCs could use additional resources, with many advocating modest increases to CFDCs to compensate for increasing costs. Some WD key informants advocated more substantial increases to CFDCs for community economic development activities.
However, only 21 per cent of the survey respondents agreed that WD funding met the basic operational need of their organizations with the majority (60 per cent) disagreeing with this statement.
Some WD key informants pointed out the difficulty of setting appropriate average funding levels given local and regional differences. One WD key informant noted that the practice of leveraging other sources has had unintended impacts. In some cases, the involvement of other partners may result in activities that are not entirely consistent with CF and WD objectives.
3.2.8 WD's Supporting Role
Many stakeholder key informants and focus group participants had positive comments with respect to WD's support to network members. Sixty-one (61) per cent of survey respondents agreed that WD was effective in providing support for the management of their organizations. Seventy-five (75) per cent of survey respondents reported that they regularly contacted WD for support and information. Some stakeholder key informants noted variations with respect to WD's role with respect to the WCBSN. It was noted that some WD representatives have taken a leadership role to bring board members and Executive Directors of the WCBSN together for networking/ familiarization events. Other WD representatives have not undertaken this activity.
About half of WD key informants had suggestions for improving WD's supporting role. These suggestions include:
- Adopting a partnership approach with community members by encouraging members to come forward with project ideas.
- Keeping current with respect to global trends, service delivery best practices and approaches.
- Continuing to improve infrastructure and management support (i.e. computer support and training).
- Clarifying purpose and objectives of the network.
- Facilitating and supporting unstructured and structured opportunities for network partners to share information.
Some specific suggestions from stakeholder key informants and focus group participants for enhancing WD's supporting role include:
- Clarifying WD's three pillars (Innovation, Entrepreneurship and Sustainable Communities).
- Reducing WD project officer turnover.
- Providing training/information packages to volunteers to help them better understand the WD system.
- Providing more information and best practices with respect to board governance.
- Regular meetings with WD Regions (i.e. 2 to 4 times a year) and increasing opportunities for face-to-face meetings with senior WD personnel.
- Increasing network member participation at WD managers' meetings.
3.2.9 Other Partners to the Network Organizations
WD is the predominant funding partner for CFDCs, WEIs, and FEDOs. CBSCs are federally and provincially funded. FEDOs also receive some funding from other federal departments such as the Department of Canadian Heritage and Human Resources and Social Development. While WD is the predominant funding partner for the CFDCs there is also some variation in the number of funding partners across CFDCs. In B.C., for example, WD key informants state that the CFDCs have a higher number of partnerships on loan funds and a higher percentage of leveraging from other sources. Some key informants attribute this difference to a number of factors such as location, tourism and other regional differences. There is also considerable variation within provinces. For example, in Alberta, CFDCs vary greatly with respect to percentage of dollars leveraged from other sources (i.e. according to one WD key informant - between 10 and 80 per cent).
Survey respondents most frequently reported partnerships with other CFDCs (91 per cent). Partnerships with business associations (88 per cent), the provincial government (86 per cent), municipalities (80 per cent), HRSD (77 per cent) and other federal government departments (79 per cent) were also frequently reported.
CFDCs partner with a number of organizations such as provincial governments, other federal departments (Human Resources and Social Development and Industry Canada), educational institutions, economic development organizations and Chambers of Commerce. A stakeholder key informant noted that CFDCs were uniquely placed in their local communities to deliver programs and disseminate information for other organizations to the community level.
FEDO respondents also noted partnerships with various organizations such as EducaCentre, Tourism, Conseil scholaire, the Chambre de commerce, la Société historique, l'Assemblée communautaire fransaskoise, le Conseil culturel, Canadian Club and other local organizations such as les Guichets uniques.
WEI organizations also exchange information with educational institutions, non-government organizations, banks and credit unions, and other economic development organizations.