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Introduction
Our federal institutions play an extremely important role in our quality of
life. They support the way we govern ourselves as a federation, administer our
laws and justice system, develop and deliver our national social programs and
services, regulate the economy and promote fair trade, and represent and protect
our interests and values in the world.
Canadians rightly expect a lot of their public sector. They expect the
Government to pursue policies and programs that take into account and are
responsive to public priorities. They expect the Government to operate in an
open, transparent and accountable manner. They want to know that government
programs and services are well managed. Above all, they want assurances that
they are receiving good value for their tax dollars.
The Government has listened and acted:
Building on this, the Government will modernize and reform management
practices across the federal public sector as a whole. This means changing the
way the Government works. Initiatives are focused in four areas:
- Improved service quality and efficiency;
- Reinforced capacity of the public service;
- Strengthened governance and accountability;
- Sound stewardship of public resources.
Our goal is to offer Canadians the best public service possible. We must
"work smart," pay attention to the needs of Canadians, and react more
quickly to change. We will support public servants as they deliver services to
Canadians. Coordinated efforts in all of these areas will serve to strengthen
trust, accountability, and the value-for-money that Canadians receive from their
government. They will ensure that the Government continues to strengthen Canada’s
competitive advantage in the world and position the country for the future.
Reg Alcock
President of the Treasury Board and
Minister responsible for the Canadian Wheat Board
What We’re Doing, And Why
| Strengthening and Modernizing Public Sector
Management
The Government of Canada is transforming itself. It is changing the way
it works, the way it accounts to Canadians and the way it serves them. The
sweeping changes that have been put in place are redefining the Government’s
relationship with Canadians. They are forging a culture of modern
management rooted in transparency, quality and efficiency.
The actions being taken by the Government are guided by a code of
democratic, ethical, professional and people values that are at the very
core of our national community. They are values of respect, fairness and
openness. They reflect what Canadians believe to be central to our
national character. These same values are what Canadians deserve and
expect from their government. This document sets out an overview of the
Government’s actions. It represents an ongoing and unshakable commitment
to achieve the objectives of modern government to serve all Canadians
better. It is about delivering results to Canadians through better
service, better use of technology and excellence in pursuit of the public
interest.
The key elements in this transformation to a more modern, efficient,
transparent and effective government are described and explained in this
document. While each is important in its own right, they are mutually
supportive and collectively are essential in achieving the objective of
transforming government.
They include:
- Measures to improve service delivery and accessibility to the
public;
- Initiatives to modernize and improve the public service;
- Action to strengthen transparency and accountability; and
- Steps to strengthen financial management.
Much has been already accomplished. More will be done in the months
ahead. That is the Government’s commitment to Canadians.
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Improving Service Quality and Efficiency
One of the most important tasks of government is to serve citizens well.
Thus, a core challenge of the public service is to be responsive to the needs of
people and deliver the services they require efficiently, effectively and
professionally. But too often public servants do not have the proper tools or
systems in place to meet those crucial objectives. They are hobbled by outdated
structures and systems that fail them and the citizens they serve. That is why
modernizing government, which embodies a commitment to improved, integrated and
efficient service for Canadians, is at the core of the process to transform
government.
The Government of Canada is the largest organization in the country. It
delivers over 1,600 programs and services that improve the quality of life of
Canadians and help bring the diverse parts of the country together. It spends
over $140 billion on programs and services including tens of billions
on its operations.
Modernizing government means acting as one government rather than 116
separate departments and agencies. It means simplifying business processes,
re-using information and systems, and capitalizing on technology to better
manage money and operations. It means using common approaches and shared
internal services wherever possible. In this way, decision-making is improved,
costs reduced and resources saved. Greater operational efficiency means more
available funding for Canadians’ highest priorities.
Steps have been taken to improve service delivery. Government information and
services are much easier to find, thanks to client-focused portals for Web sites
and toll-free telephone services. The main Government of Canada entry point on
the Internet, the Canada Site at www.canada.gc.ca, provides links to services
arrayed by client, topic and department. The information officers at 1 800
O-Canada provide up-to-date information on all federal programs and services.
The Canada Site receives 1.2 million visits each month and 1 800 O-Canada
handles over 100,000 calls per month. Both services are important sources of
information, especially during times of crisis. For example, after the tsunami
on December 26th, information to assist Canadians abroad and friends and
family was posted. Visits to the site numbered approximately 14,000 by
January 6th. As well, more than 5,000 phones calls were answered during the
same period.
Significant strides have been made by departments and agencies to make their
services available on-line, including tax filing and applying for employment
insurance, and to increase citizen satisfaction through faster service. Canada
Revenue Agency’s new My Account—offering secure personalized access to tax
information— had over 1.2 million visits in 2004.
Canadians will benefit from enhanced safety, streamlined procedures and
reduced administrative burden with the introduction of the Smart Regulations
Initiative. For example, under the Therapeutics Access Strategy, progress has
been made to improve the timeliness of the drug review process while maintaining
high safety standards. The Paper Burden Reduction Initiative will identify
concrete initiatives that reduce regulatory burden on business and will evaluate
government’s performance in reducing burden over time. A new management model
for environmental assessments of major projects affecting fish habitat
streamlines the referral process, targets resources to priorities and clarifies
compliance requirements.
Over the Internet, businesses can:
- incorporate and register;
- file corporate income tax returns and T4 returns;
- file record of employment data; and
- submit trademark and copyright applications.
These on-line services provide both clients and government with significant
time savings.
In May 2004, the Government signed a joint service delivery agreement with
the Government of Ontario. Collaborative initiatives will be explored in areas
such as improving electronic service delivery, coordinating emergency management
systems, improving immigration services and an integrated labour market system.
The Government will be seeking similar arrangements with other provinces and
territories in order to move to convenient multi-jurisdictional service
delivery.
The Government’s ambitious agenda is changing the way it works in
delivering services to Canadians and other clients and managing its own internal
administrative operations.
Service Canada: Providing One-stop Access to Canadians
Too often, operational or organizational requirements have dictated the way
government delivers services to Canadians. As a result, citizens find it
difficult to navigate the maze of programs and departments to find the services
they need. Citizens sometimes feel they are being bounced from department to
department rather than being able to go to one place to have most of their needs
met. Better coordination in the delivery of services will help reduce costs and
provide more convenient service.
The Government is working hard to improve services to Canadians and to reduce
the cost of delivering these services. Service Canada will provide one-stop
service to Canadians by phone, on the Internet, and in person for social
benefits and other programs.
Over time, Service Canada will reach over 30 million Canadians, serve
1.3 million employers and provide one-stop service for most government
services—including assistance in finding a job, delivering income support,
helping education and skills development, and many more services. It will
increase the service Canadians receive at the first point of contact and improve
the efficiency of service delivery across government.
Secure Technology Infrastructure
Through its Government On-Line initiative, the federal government now has a
world-class secure technology infrastructure, the Secure
Channel, to support
on-line service delivery. This common infrastructure assures the privacy and
security of information and transactions and provides information technology
services that support all departments and agencies.
The Secure Channel is fully operational, with increasing numbers of
departments and agencies moving to take advantage of its services. This
infrastructure will provide a strong foundation for the transformation of
internal services and external service delivery. However, further investment
will be needed to support its operation and expand its capabilities to meet the
needs of Service Canada and other significant transformational projects.
Modernizing core government operations and taking advantage of the secure
common infrastructure increases efficiency through improved productivity and
simplified processes. Greater consistency in processes across government
enhances quality. Aggregating the business activities in key areas across
departments and agencies lightens the administrative burden on public servants
and reduces costs.
The citizen-focused approach to rethinking service delivery on all channels
and investing in the necessary secure technology infrastructure is one of the
reasons that Canada has been ranked as the leader in e-government for four years
running in Accenture’s annual
survey.
Shared Corporate, Administrative and Information Technology Services
A large number of public servants are engaged in administrative, human
resource, financial, material or information technology activities within
government. They use many different systems for this essential work: for
example, there are seven different financial and material systems and 14
different human resource systems. In many cases, departments and agencies have
further customized these systems. Introducing more shared systems, simplifying
and standardizing processes for these administrative activities, moving routine
activities to self-service on the Internet, and shared service delivery will
result in efficiencies.
The Government is implementing a strategy to improve the delivery of these
internal administrative services and increase operational efficiency. Building
on the areas of greatest opportunity, the Government will introduce a shared
service approach to information technology, human resource management, and
financial services starting with a critical mass of departments and agencies.
The required investments will be made to ensure that this initiative is well
planned, well managed and coordinated across the government.
Introducing a whole-of-government approach to the delivery and management of
administrative services will improve the internal efficiency of operations and
deliver better value-for-money to Canadians. Adopting shared services and
systems also means that consistent information is available for decision-making
within departments and for the government as a whole.
Reinforcing the Capacity of the Public Service
Ultimately, good government is about people. It is about recognizing the
complexity of government expressed in challenges that individuals face and the
skills they need to fulfill the roles they must play. Few organizations have
gone through more change in recent years than the public service. To face the
diverse and changing demands of modern society, the public service has to be
more nimble, more open and more reflective of the population it serves. A modern
public service is filled with people who reflect the quality and values of the
nation itself.
Public Service Modernization
The Public Service Modernization Act recognizes that reality. It
recognizes that fostering excellence in people management and leadership across
the public service is one of the most important priorities for the Government.
It couples changing the way government operates with changing the way the public
service must work. It takes a more collaborative approach to labour-management
relations. It improves the staffing process. Human resource planning and
accountability systems are being strengthened. It introduces a more
cost-effective human resource service delivery model. Finally, it provides an
integrated approach to learning for employees at all levels through the Canada
School of Public Service.
To go through such a transition, departments and agencies across government
will require support and funding to introduce new functions, equip people with
new tools, enhance knowledge and skills, modify systems and, prepare people for
cultural changes. Public servants will be supported through this transition.
Building Capacity Through Core Learning
Modern public service management requires a skilled, well-trained, and
professional workforce. Public servants have consistently shown themselves to be
dedicated to serving the public interest to the best of their abilities. Public
servants will be working in new ways. They will have the tools they need to do
the job.
Learning for all employees, including preparing them for new and increased
responsibilities, remains a priority. Management skills will be upgraded through
a modern curriculum emphasizing managerial accountabilities. This will include
orientation for new employees, retraining of the current workforce, and
strengthening core competencies—including areas such as financial management,
human resource (HR) management and values and ethics. The Government will invest
in the sustained professional development of specialists—including working
with accrediting bodies on programs for procurement officers, HR professionals,
financial managers and internal auditors.
With access to training, public servants are better equipped to manage the
challenges ahead. They are able to feel more confident and supported in managing
the transition. And Canadians can be assured they are being served by a
competent, professional public service.
Building Capacity Through More Effective and Integrated HR Planning and
Strengthened Accountability Systems
Public service organizations need to be supported by effective integrated HR
and business planning processes, as well as sound accountability systems
covering all aspects of HR management—from staffing the right people at the
right time and at the right place, to ensuring that employment equity, official
languages and workplace well-being requirements are met. This will require new
investments to support departments and agencies across government.
In addition, and in collaboration with the Public Service
Commission,
targeted efforts and new financial support will be required to sustain a more
representative and accessible public service—including improved training and
testing capacities for official languages and moving to a national area of
selection. The Government will be able to offer positions and recruit more
effectively across the country and better serve Canadians.
In a changing and increasingly competitive world, we need a public service
that is not only excellent but also connected to all parts of Canadian society.
Therefore, a new exchange program will be introduced to allow interchange
between senior executives in the public service and those in other sectors of
our society. The Prime Minister’s Fellows Program will build mutual
understanding and will allow the sharing of talent and ideas.
Strengthening Governance and Accountability
Good governance and accountability are essential to sound public management.
In an organization as large and complex as the Government of Canada, ongoing
efforts are necessary to maintain and strengthen governance. Moreover,
Parliament and Canadians must know what was achieved through public spending.
Much has been done to strengthen accountability. The Management
Accountability Framework sets out a coherent and comprehensive
accountability regime within government and enables departments and agencies to
strengthen their management capacity. Information is being
"proactively" disclosed to Canadians: travel and hospitality expenses
for ministers and senior officials are now posted on the Internet; and contracts
over $10,000 are reported publicly, as are reclassifications of public service
positions. The new Public Servants Disclosure Protection Bill,
currently before Parliament, strengthens the regime for disclosing and
investigating wrongdoing in the public sector, protecting those who disclose
while ensuring a fair process for those against whom allegations are made. The
new Values and Ethics Code for the Public Service is being
widely promoted as a strong foundation to public service.
Strengthened Governance
More will be done. The Government recently outlined a number of measures to
strengthen the governance and accountability of Crown corporations. These are an
important part of the public sector with combined assets of more than
$78 billion and 73,000 employees. Recent measures, announced following the
most comprehensive review of Crown corporation governance in 20 years, include:
- clarifying the relationship between ministers and Crown corporations;
- strengthening their accountability regimes;
- making the appointments process more transparent;
- strengthening their audit regimes; and
- making the activities and operations of Crown corporations more
transparent.
These reforms will bring the governance of Crown corporations more in line
with reforms in the private sector. Parliament will be better able to hold the
Government to account on Crown corporation activities and ensure that the Crown
corporations are meeting the needs and expectations of Canadians.
Improving Reporting to Parliament
It is Parliament’s job to oversee spending and hold the Government to
account for results. Parliamentarians rely heavily on reports from the
Government to do this. Steps have been taken to improve the presentation of the Estimates
documents and to provide a global view of performance through the annual Canada’s
Performance report. However, despite progress, reporting to Parliament
remains inadequate. Much of the information that Parliament receives about how
funds are spent is difficult to use. Trends are difficult to discern. An overall
picture of performance is hard to gauge. There are literally hundreds of reports
tabled in Parliament, but no easy way of assessing how the Government is doing
overall.
As part of its efforts to enhance accountability and address the democratic
deficit, the Government will consult with parliamentarians in the coming months
to develop a blueprint for improved parliamentary reporting. The blueprint will
include the Estimates as well as many other reports. Options to deliver
on-line access to performance information will be presented. Through these
consultations, the Government will determine how best to provide
parliamentarians with more timely and accessible information on program spending
and results.
These measures will enhance transparency. Canadians will be able to see how
their government is performing and better able to participate in public
discussions on government directions, programs and operations.
Sound Stewardship of Public Resources
Sound stewardship of resources is central to making government work better.
This means ensuring that spending remains under control and is closely aligned
with the priorities of Canadians, and that every dollar is invested with care to
deliver results.
In December 2003, the Government began a review of spending to shift
resources from lower to higher priorities. Last year, $1 billion annually
was freed up from less efficient or lower priority activities and reallocated to
promote economic growth and social progress. Canada has shown leadership in
adopting full accrual accounting in the 2003 Public Accounts. The Treasury Board
Secretariat was re-mandated to focus on providing rigorous oversight of
government expenditures, and the Office of the Comptroller General of Canada
was
re-established within the Secretariat to provide leadership across Government in
financial management and systems, accounting policy and internal audit.
Building on these steps, more rigour and discipline is being brought to
ongoing management of overall program spending. Better information will be
available on the performance of programs and services. Financial management and
audit capacity will be strengthened.
Improving Expenditure Management
A strong expenditure management system helps maintain balanced budgets,
aligns resources with government priorities, and increases the efficiency of
program operations.
The Expenditure Review Committee of Cabinet has made an important
contribution to all three of these objectives. Details of its work are found in
the Budget 2005 booklet on expenditure
review. Significant work is now required
to implement the government-wide service changes and the department-specific
initiatives.
While the focus is shifting to implementation, the Government will continue
the review of federal spending. This will entail strengthening oversight of
direct program spending, identifying new opportunities for further savings,
allocating funds to departments for new policy initiatives following the budget,
and re-allocating resources as required to maintain fiscal integrity.
Work continues on improving the system of gathering and analyzing information
on spending and performance across government. This includes collecting
financial and non-financial information to better link spending on programs to
the Government’s strategic outcomes.
This will result in more effective expenditure management. Moreover, the
Government will have ready access to information about programs, which will
allow it to manage better and report more clearly to Parliament and Canadians on
what was achieved with the money spent.
Strengthening Financial Management and Audit
The Office of the Comptroller General is working with departments and
agencies to strengthen financial management and internal audit by:
- increasing the number of professionally-accredited comptrollers;
- strengthening the capacity and improving the training of financial
management and internal audit professionals;
- implementing strategies and processes for reviewing new expenditures; and
- improving financial systems to track spending and financial
decision-making.
A strategic approach to financial stewardship focusing on areas of risk will
increase trust in government operations. Improved financial and audit capacity
will result in better planning and decision-making in departments and across
government. Appropriate financial controls, monitoring, and enforcement
mechanisms will reinforce the stewardship of public funds.
Better Capital Asset Management
The Government of Canada manages $47.8 billion in capital assets across
the country and around the world. Each year, $7 billion is invested to
maintain these buildings, ships, aircraft, vehicles and equipment.
Sound management of capital assets requires long-term planning that addresses
all aspects of capital management—including acquiring new or more
suitable assets, maintaining and recapitalizing current assets, and
appropriately disposing of those assets that no longer meet program
requirements. A stable, multi-year funding base is essential for departments and
agencies to be able to plan effectively. The Government will implement a more
rigorous approach to capital planning on a pilot basis with a number of
departments. Parliament will be asked to consider multi-year appropriations of
capital funds for departments with a comprehensive capital plan and a good track
record of managing their capital assets.
Proper asset management also includes reducing the health and ecological
risks associated with contaminated sites. As announced last year, up to
$4 billion will be invested over 10 years to clean up contaminated sites on
federal lands as well as sites for which the Government has partial
responsibility across the country. Further steps will also be taken to increase
the "greening" of government operations.
Conclusion: Strengthening Public Sector Management
Through these efforts and others, the Government is building a modern public
service:
- Innovative use of technology will increase service quality and reduce
costs;
- Modernized human resource management will better support public servants
in their efforts to deliver the best results for Canadians;
- Strengthened governance and accountability will help Parliament hold the
government to account and build confidence in federal institutions; and
- Sound stewardship of resources will maintain fiscal responsibility, align
resources with priorities and increase operational efficiencies.
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