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Estimates1998-99A Report on Plans and PrioritiesSECTION II: DEPARTMENTAL OVERVIEW SECTION III: PLANS, PRIORITIES AND STRATEGIES SECTION IV: SUPPLEMENTARY INFORMATION
Canadian Environmental
Assessment Agency Estimates A Report on Plans and Priorities Approved Minister of the Environment SECTION I: MESSAGESMinister's Message More than a decade ago, the World Commission on Environment and Development, in response to growing public concern about the state of the environment, pointed out that a strong economy and a healthy environment need not be mutually exclusive. In fact, they are mutually dependent. The Commission's report, Our Common Future, called on governments worldwide to introduce policies and practices that promote the types of development that meet the needs of the present without compromising the ability of future generations to meet theirs. Thus the concept of sustainable development was born. Canada was quick to endorse the goal of sustainable development and has actively, both nationally and internationally, supported efforts to achieve it. One initiative was the implementation of the Canadian Environmental Assessment Act. Environmental assessment is based on a simple principle: prevention is better than cure. It identifies the possible adverse environmental effects of human activity on the environment before they occur, and leads to better designed, environmentally-friendly projects. Environmental assessment is an idea which, if fully implemented by governments, the private sector and individuals, could revolutionize our approach to the environment as we prepare to make an enlightened start to a new millennium. The Canadian Environmental Assessment Agency (the Agency) is the federal focal point for environmental assessment. It has recently adopted an ambitious new strategic vision, a vision that will have it take a stronger, more assertive leadership role in co-ordinating the federal practice of environmental assessment. The Agency will enhance its science and research capacities to meet the needs of a more efficient and effective process. It will seek a broader acceptance of the practice of environmental assessment by promoting the economic, environmental, and personal benefits of the practice. I am confident that the Canadian Environmental Assessment Act will make a positive contribution toward enlightened decision making in Canada, and provide the federal government and other sectors of society with an effective tool in achieving the goal of sustainable development. The Honourable Christine S. Stewart, P.C., M.P. Minister of the Environment Management Representation Statement MANAGEMENT REPRESENTATION Report on Plans and Priorities 1998-99 I submit, for tabling in Parliament, the 1998-99 Report on Plans and Priorities (RPP) for the Canadian Environmental Assessment Agency. To the best of my knowledge, the information:
I am satisfied as to the quality assurance processes and procedures used for the RPP's production. The planning and reporting accountability structure on which this document is based has been approved by Treasury Board Ministers, and is the basis for accountability for the results to be achieved with the resources and authorities provided. Name:Sid Gershberg Title: President, Canadian Environmental Assessment Agency Date:February 19, 1998 SECTION II: DEPARTMENTAL OVERVIEWEnvironmental assessment is an important tool for protecting and preserving our environment. It provides decision makers the information to make informed and consequently the best possible decisions. These decisions can lead to activities that are more compatible with sustaining a healthy environment for both present and future generations. Environmental assessment involves assessing the effects of a proposed project, policy or program on the ecosystem - the air, water, land, and living organisms including affected human populations. Such assessments provide a solid basis for reducing or eliminating negative environmental effects, and for making informed decisions. Environmental assessment is now a part of public policy and decision making at all levels of government in Canada, and is used worldwide in over 100 countries, in many international organizations, funding agencies, and in industry. The Government of Canada has approximately 25 years of experience in integrating at an early stage, environmental factors, public concerns and community values into the decision-making process. This practice allows governments to make timely decisions concerning projects, and helps them to meet their responsibilities regarding the environment. The purpose of this document is to describe the Canadian Environmental Assessment Agency's (the Agency) objective, goals, strategies and expected outcomes for the upcoming planning period. This is the first year that the Agency has prepared a Report on Plans and Priorities, which covers a three-year period starting in 1998-99. The Agency's activities and outcomes for the period ending March 31, 1997 were reported by the Agency in its November 1997 Departmental Performance Report. Mandate The Government of Canada has made a strong commitment to implement environmental assessment as a means of achieving sustainable development. Toward this end, it created the Canadian Environmental Assessment Agency in December 1994. Operating as an independent entity within the portfolio of the Minister of the Environment, it is guided by the following instruments:
The Agency also assists the Minister of the Environment with the implementation of the 1990 Cabinet Directive on the Environmental Assessment of Policy and Program Proposals, by providing guidance to federal authorities on environmental assessment considerations and requirements in respect of proposed policies and programs. In addition, the President of the Agency has been designated by Order in Council as the federal administrator of the environmental and social protection regimes set out in Chapters 22 and 23 of the 1975 James Bay and Northern Quebec Agreement, and the North Eastern Quebec Agreement. Roles and Responsibilities The main focus of the Agency is to provide environmental assessment leadership in support of sustainable development. To achieve this, it must implement a co-ordinated, effective and consistent federal environmental assessment process. The Agency must also address the issues and concerns of Canadians who seek the opportunity to participate in the decisions that will affect their environment. Above all, the federal process must remain relevant to the Canadian public, and be an important tool to planners and decision makers. The main responsibilities of the Agency, as defined by the Act, are to:
Objective The Agency's main objective is to ensure Canadians receive high quality environmental assessments. The scope of current activity can be divided into two categories: activities relating to the administration of the process, such as managing panel reviews; and activities relating to policy innovation, such as the development of national standards for environmental impact assessments at the screening level. Agency activities are interrelated and designed to meet its mission: To provide Canadians with high quality federal environmental assessments that contribute to informed decision making in support of sustainable development. The means by which the Agency achieves this objective are constantly evolving in response to a changing world. It is involved in the federal sector of public policy and decision making that includes difficult and sensitive issues, with stakeholders who have competing interests. Given the responsibilities outlined above, and the desire by Canadians for a healthy, sustainable environment, the Agency is challenged to ensure that the strategies chosen to achieve its mission are the right ones. These strategies, goals and action plans, as discussed in Section III, constitute the tools for the Agency to make a positive contribution in support of sustainable development. Financial Spending Plan
* Reflects best forecast of total planned spending to the end of the fiscal year. SECTION III: PLANS, PRIORITIES AND STRATEGIESSummary of Key Plans, Priorities and Strategies The Agency's mandate consists of one program with one business line. The plan and strategies designed to meet the objective stated above all flow from this integrated relationship.
Summary of Regulatory Initiatives The following outlines the Agency's major or significant regulatory initiatives scheduled for implementation during the planning period (1998 to 2001): Detail by Program and Business Line Planned Spending
* Reflects best forecast of total planned spending to the end of the fiscal year. External Factors Influencing the Program (Challenges) Changing factors in Canadian society are determining the future effectiveness and direction of environmental assessment and sustainable development. Many initiatives are being undertaken to modernize the delivery of programs and services in an effort to get government right. These initiatives focus on ensuring that the government delivers an ever-improving mix of services that meets Canadians' needs, while respecting government fiscal restraints. They also expect affordable, accessible and responsive service, and opportunities to participate in decisions that will affect their environment. The changing ways in which governance is defined are leading to increasing attention to alternative and innovative service delivery for environmental assessment, including cost recovery and improved harmonization with other jurisdictions. Public Perception of Environmental Quality: Environmental groups and Canadians in general are concerned that the quality of their environment. Good environmental assessments are a fundamental tool in protecting and preserving the environment to the highest extent possible. However, as environmental assessment encompasses numerous stakeholders with often complex and contrasting interests, the quality and consistent application of environmental assessment remains a challenge for the Agency. Through involvement, leadership and innovation, the Agency can strengthen its focus on improving the quality of service to Canadians. This will include providing new mechanisms to facilitate and communicate good environmental management that will lead to the achievement of sustainable development goals. An additional challenge is to improve the prediction and mitigation of adverse environmental effects through sound science and policy measures. This also implies development and communication of demonstrable standards that stakeholders can use to assess the benefits and efficiencies of properly conducted environmental assessments. Efficiency and Effectiveness: The Agency recognizes that efforts must continue to further improve the efficiency and effectiveness of the environmental assessment process. For instance, there is growing pressure to increase consistency and predictability in the conduct of environmental assessment, and to ensure that it is not an impediment to economic development and competitiveness, particularly in international markets. This includes making greater use of existing efficiency tools, and closing gaps in the application of the Act. The Agency is working toward finding the appropriate balance of regulatory and non-regulatory mechanisms that improve the efficiency and effectiveness of the environmental assessment process. However, this effort cannot interfere with high standards of environmental assessment, and must facilitate an increased compliance with the Act from government and industry alike. International Agreements: The federal government has stated its commitment to actively promote sustainable development in the international sphere. To this end, Canada is a signatory to several international bilateral and multilateral transboundary agreements that involve environmental assessment provisions. The Agency is facing increasing pressure to provide leadership for the promotion of sound environmental assessment practices abroad, to respond to concerns regarding the application of environmental assessment to projects outside of Canada, and to conclude key agreements such as the North American Agreement on Environmental Cooperation. The Agency's challenge is to remain in step with the environmental initiatives of international organizations and other countries. This will help to maintain a competitive edge with respect to Canadian exports and ensure the effectiveness of Canada's domestic assessment process. Key Plans and Strategies It is vital that the environmental assessment process continue to evolve in response to changing social, economic and technological factors throughout Canada and the world. Recognizing this, the Agency launched a strategic review exercise with the intention of determining priorities and developing strategic plans to guide its actions over the short to medium term. The results of this exercise will prepare the Agency for the five-year review of the Canadian Environmental Assessment Act. The goals and related action plans are intended to respond to the challenges facing the Agency (discussed above), and to the evolving priorities in environmental assessment, both within and outside the federal government. Each strategic goal discussed below is supported by action items for the planning period which will lead to the goal's achievement, or demonstrable progress toward it. Goal #1: To be recognized as a credible advocate of high quality environmental assessment. Advocacy is crucial in today's business, and will be even more vital in tomorrow's. It is central to the Agency's leadership role in the environmental assessment process in the federal government; a role that is emphasized throughout this document. In order to be an effective advocate of good environmental management, stakeholders and Canadians need to have faith in an environmental assessment system that is relevant to their needs and depends on sound practices. Good environmental management means conducting environmental assessments early in a project's planning stage, to reduce or avoid environmental effects and related financial costs. Through effective advocacy, sustainable environmental management also means conducting environmental assessments that are broad enough to cover all potential environmental effects. The commitment to advocate "high quality" environmental assessment will place pressure on the science and policy capacities of the Agency as well as its overall corporate management of the process. A key to success will be the Agency's ability to convince decision makers of the value of good environmental assessment in terms of its long-term positive impact on the health of the environment. To achieve this goal, the Agency plans to:
Goal #2: To advance the science and practice of environmental assessment. Its capacity for leadership will be limited, unless the Agency works at the leading edge of environmental assessment, and is seen to be so by its partners and stakeholders. The Agency does not intend to duplicate the specific expertise of other federal departments and agencies in strengthening its science capacity. Rather, it intends to be a repository of environmental assessment theories and practices, in order to be an effective and credible advocate and liaison for other departments and the private sector. Solid knowledge capacities lead to sound advice that assists ministers in taking informed decisions on projects that have undergone a panel review or comprehensive study. As governments downsize and privatize programs and services, it is essential for the Agency to initiate innovative approaches to environmental assessment that will improve the quality and practice of environment assessment. This will, in turn, assist in the attainment of the goal of sustainable development. To achieve this goal, the Agency plans to:
Goal #3: To learn from experience and to share results. There are many benefits to utilizing past experience gained from conducting environmental assessments. Evaluating the results of previous panel reviews and other accumulated information greatly assists the Agency in determining appropriate policy directions for the future. Governments and private sector proponents are keenly interested in the economic and environmental benefits of environmental assessment, given that they absorb the majority of the costs. Measuring, reporting and communicating the success and effectiveness of environmental assessment as a whole helps to strengthen public confidence. To learn from experience and to share results also contributes to the Agency's positioning as a centre of expertise. Being recognized as such, the Agency regularly provides advice to national and international stakeholders. This allows the Agency opportunities to communicate its vision and share its knowledge with others pursuing similar objectives. When the Act first came into force, initial training programs were well received because they satisfied the needs of EA practitioners and managers . They clearly explained the scope, objectives and procedures of the new legislation. However, the needs of the Agency's clients have changed. More and more practitioners and managers require specialized guidance for their unique situations, and they want to access this information in a timely manner from a known and trusted source. The Agency is evaluating different mechanisms to effectively provide current and readily accessible information. Effective communication of information is essential in obtaining beneficial public input. The Agency has an opportunity and a responsibility to take a more proactive leadership role in federal environmental assessment, by responding to clients' needs, and ensuring that communication with all stakeholders is maintained and enhanced. To achieve this goal, the Agency plans to:
Goal #4: To improve the Agency's capacity to monitor, assess and foster compliance. Government compliance with environmental assessment processes is an increasingly prominent issue. The Commissioner for the Environment and Sustainable Development is pressing for stronger action and Canadians are looking to the Agency for leadership. Although the Act does not explicitly contain enforcement provisions, the Agency will evaluate how other departments understand their environmental assessment responsibilities, and play a more forceful advocacy role in encouraging compliance. The Agency is developing a framework for compliance monitoring that is designed to assist other federal departments in gathering consistent information on compliance with the Act, and the quality and benefit of environmental assessments. This framework will provide tools to assist in its implementation, including: recommended sources of information, data collection procedures (for monitoring systems), performance standards and measurements, plus data collection instruments. The information that is collected will facilitate program evaluation by the Agency and input to the five-year review of the Act. In addition, the Agency will focus more attention on reporting the challenges in implementing the Act and the results of efforts undertaken. In part, this document serves that purpose. To achieve this goal, the Agency plans to:
Goal #5: To address gaps in the application of the Canadian Environmental Assessment Act. Since the Act came into force in 1995, a number of gaps have been identified in its application. For example, many federal organizations, particularly Crown corporations, are not required to conduct environmental assessments of their activities. To address this issue, the Agency has undertaken steps to enhance the regulatory regime that will broaden the range of activities to be assessed. This effort is evolving from years of extensive, nationwide public consultations and continued input from a multi-stakeholder Regulatory Advisory Committee. Demand has also increased for stronger environmental assessment application of policy and program proposals, or "strategic environmental assessment". This is because it deals with broad based, longer term environmental effects that may be managed at the policy and program level. By expanding the range of activities that is assessed, the application of the Act and other federal environmental assessment processes can become more transparent, predictable and consistent. To achieve this goal, the Agency plans to:
Goal #6: To clarify and improve environmental assessment processes with other jurisdictions and with federal departments and agencies. All federal and provincial jurisdictions in Canada administer some form of environmental assessment regime. The application of both federal and provincial regimes to a single project provides opportunities to harmonize processes to make them more efficient for proponents, the public and government agencies conducting the environmental assessment. As well, conducting a single environmental assessment process avoids conflicting decisions, increases certainty and reduces costs and delays. Current federal government policy with respect to Aboriginal land claims and the inherent right to self-government recognizes the importance of Aboriginal people having greater control over their lives and the environment they inhabit. Land claims are adding another dimension to Aboriginal groups' interests in environmental assessment, as these settlements include the creation of new Aboriginal-based environmental assessment processes to support sustainable development. The Agency works with Aboriginal people to develop tools to ensure that environmental integrity and sustainable development are achieved for their communities. The federal and provincial governments continue to press for greater efficiency and streamlining of the environmental assessment process, and seek co-operative, one-window processes wherever possible. As well, co-operative relations with Aboriginal organizations are important, as their environmental assessment processes play an increasing role in the review of new project proposals. Consistent interpretation of responsibilities under the Act, both by other federal departments and by proponents, is extremely important to stakeholders. The Agency is addressing this issue through a more sustained and directed education and training initiative. The Agency is focussing on providing practical guidance and tangible benefits that foster compliance and improve co-ordination of efforts. To achieve this goal, the Agency plans to:
Goal #7: To strengthen relationships with partners and stakeholders. The Agency's success lies in the strength of working relationships with key partners both inside and outside of government. Effective influence is becoming more a product of value-added service, and less a function of mandate fulfilment. Understanding, fostering and enriching relationships are priorities of the Agency because of the benefits of improved environmental management in general, and advanced federal interest in good environmental assessment in particular. To achieve this goal, the Agency plans to:
Expected Results The goals and action plans discussed above are closely interrelated and all point the Agency toward a new strategic vision. This vision involves taking a more proactive and substantive approach to environmental assessment. The emphasis is to focus on results and value-added service, not simply on maintaining a process. This means developing closer, more productive relationships with key partners and stakeholders. In addition, the Agency is seeking ways to build on its credibility and knowledge capacities, and to effectively disseminate this knowledge to those who need it most. To this end, the Agency envisions environmental assessment as a fundamental tool in providing high environmental quality and protection. Through the achievement of these strategic goals, Canadians can expect the Canadian Environmental Assessment Agency to provide the following long-term results:
Management Issues This report on plans and priorities is designed to provide Canadians with a "snapshot" of the challenges, issues and strategies that guide the actions of the Agency over the coming period. However, the issues that surround and direct the Agency are in constant evolution. The work that was invested into the strategic review exercise has only just begun. The Agency will continue to monitor and assess its performance in terms of previously stated benchmarks and goals, and take appropriate action when results are not as expected. The Agency will also adjust its strategic plans on an ongoing basis in response to emerging challenges. Human Resources: A key theme that emerged from the strategic review exercise was the need to develop and maintain a strong human resource capacity. Without the right mix and level of skills, and the appropriate organizational structure, achieving successful results will be difficult. The focus over the short term will be on the consolidation, adjustment and development of the current workforce. This will involve stabilizing the organizational structure and completing outstanding classification and staffing actions. The Agency will examine ways to utilize available flexibility to staff strategically, so that it has the right mix of skills to provide the levels of service stakeholders expect. The Agency will also invest in the existing workforce through professional and career development initiatives. Mechanisms to facilitate exchanges with other federal, provincial and private organizations will also be developed to allow closer ties with the Agency's partners and to introduce a broader field of expertise to environmental assessment. In addition, the Agency will focus on the implementation of the Universal Classification Standard. SECTION IV: SUPPLEMENTARY INFORMATIONTable 1: Spending Authorities (Extract from the Ministry Summary table in Part II and Reconciliation to Program Expenditure Detail document) Personnel Information Table 2: Organizational Structure Table 2.1: Planned Full Time Equivalents (FTEs) by Program Table 2.2: Details of FTE Requirements Capital Projects Information Table 3: Capital Spending by Program (Nil Report) Additional Financial Information Table 4: Departmental Summary of Standard Objects by Expenditure Table 5: Program Resources by Program for the Estimates Year Table 6: Details of Transfer Payments by Program Table 7: Details of Revenue by Program Table 8: Net Cost of Program for 1998-99 Table 9: Revolving Fund Financial Statements (Nil Report) Table 10: Loans, Investments and Advances by Program Table 11: Tax Expenditures (Nil Report) Other Information Table 12: Listing of Statutes and Regulations Table 13: References Index Table 1: Spending Authorities - Ministry Summary Part II of the Estimates
Explanation of Change: The $1.7 million net decrease 1998-99 over 1997-98 Main Estimates is due mainly to: Decreases:
Vote - Wording and Amounts
Table 2: Organizational StructureThe Agency consists of one program and one business line. The reporting structure to the Minister of the Environment is as follows:
Table 2.1: Planned Full Time Equivalents (FTEs) by Program
Table 2.2: Detail of FTE Requirements
Table 3: Capital Spending by ProgramNil Report. Table 4: Departmental Summary of Standard Objects of Expenditure
Table 5: Program Resources by Program for the Estimates Year
Table 6: Details of Transfer Payments by Program
Table 7: Details of Revenues by Program
Table 8: Net Cost of the Program for 1998-99
Table 9: Revolving Fund Financial StatementsNil Report Table 10: Loans, Investments and Advances by Program
Table 11: Tax ExpendituresNil Report Table 12: Listing of Statutes and RegulationsStatutes and Regulations Currently in Force
Proposed Regulations
Table 13: ReferencesThe Agency and its predecessor, the Federal Environmental Assessment Review Office, have produced a number of publications. Most of these publications are of a general nature and are available free of charge. Publications of a technical nature, which are intended for specialized groups, have an associated price for the printed versions. Agency publications can be consulted free of charge at any library taking part in the federal government's Depository Services Program. The Agency has also published a collection of all its publications from 1975 to 1997 on CD-Rom. A complete list of publications can be obtained from the reference centre. Reference Centre 200 Sacré-Coeur Boulevard Alberta Region Suite 100, Revillon Building Atlantic Region Suite 1030, TD Centre Ontario Region 200 Sacré-Coeur Boulevard, 13th floor
Pacific and Northern Region 757 West Hastings Street, Suite 320 Prairie Region Suite 500, The Federal Building Quebec Region 200 Sacré-Coeur Boulevard, 13th floor
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