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Section II: Analysis of Program Activities by Strategic Outcome
Strategic Outcome 1: Canada’s natural capital is restored, conserved, and enhanced
Description: Natural capital is the extension of the economic concept of capital to environmental goods and services essential for human survival and economic activity. Environment Canada works to conserve, restore and enhance Canada's natural capital by developing and implementing innovative strategies, programs and partnerships that contribute to securing Canada's wildlife, ecosystems, freshwater and wetland resources for present and future generations.
| Performance Indicators |
Targets | 2009–2010 Performance Summary |
|---|---|---|
| Proportion of migratory bird species whose population varies within acceptable bounds of the population goals. | Baseline data will be reported in 2010. A target level and date will be set once these baseline data are available. |
Detailed population assessments for about 100 species of landbirds will be completed and posted on Environment Canada’s website in 2010. Remaining landbird population assessments are to be completed in 2011 with other species to follow in 2012. Population targets are being developed within Bird Conservation Region plans, and an overall assessment of the state of birds in Canada is to be completed by end of 2011. Also, note that this indicator will track progress towards Environment Canada’s Migratory Birds sub-activity in 2010–2011 and a new indicator10 will replace it at the Strategic Outcome level. |
According to Canada’s 4th National Report to the United Nations Convention on Biological Diversity, progress in Canada toward the 2010 Convention on Biological Diversity target of significantly reducing the rate of biodiversity loss is mixed, with significant progress in some areas, and limited progress in others.11 For example, through the efforts of multiple jurisdictions, there have been significant additions to Canada’s networks of protected areas with approximately 9.4 percent of Canada’s terrestrial area12 currently protected as of mid-2009. In other areas, however, there is also evidence that degradation, fragmentation, and shifts in the structure and composition of many ecosystems are taking place owing to a number of pressures.13
Environment Canada’s contribution to this Strategic Outcome was organized into three Program Activities:
| Expected Results |
2009–2010 Performance Status Rating |
Performance Indicators |
Targets | 2009–2010 Performance Summary |
|---|---|---|---|---|
| Populations of wildlife, in particular migratory birds and species at risk, maintained at healthy levels |  Mostly Met |
Percentage of “at risk” species whose status has either improved or has stayed the same upon reassessment | 100% by 2015 | 88% of SARA Schedule 1 species that have been reassessed by the Committee on the Status of Endangered Wildlife in Canada (COSEWIC) since they were first listed was found either to be at the same conservation status or to have improved in status.14 |
| Percentage of the 25 Bird Conservation Region provincial areas which have up-to-date all-bird Conservation Plans | 100% by 2010 | 65% of the work on Bird Conservation Region Plans, incorporating population targets for priority species has been completed for 25 regions across Canada. All plans will be completed by September 2010. | ||
| Habitats for healthy populations of wildlife, in particular migratory birds and species at risk, are protected and conserved |  Somewhat Met |
Land secured by Environment Canada and partners, as a percentage of the total amount needed to achieve population goals for all migratory bird Habitat Joint Ventures | 100% by 201015 | As of March 31st, 2010, Environment Canada, working with its partners, secured 60,246 hectares16 of wetlands and associated upland habitats for migratory birds and species at risk through the North American Waterfowl Management Plan (NAWMP). In total, 2,376,067 hectares have now been secured representing 69.1% of the goal of 3.44 million hectares. |
The Program Activity description can be found in the Main Estimates online.
Benefits for Canadians: Through its responsibilities under the Species at Risk Act (SARA), the Migratory Birds Convention Act, 1994, the Canada Wildlife Act, the Convention on International Trade in Endangered Species of Wild Fauna and Flora (CITES), and the Convention on Biological Diversity, including the Canadian Biodiversity Strategy, Environment Canada has helped protect ecosystems, genetic resources and species and has contributed to positioning Canada as a responsible environmental steward.
Performance Analysis: Collaborative implementation of the Canadian Biodiversity Strategy was advanced through a joint 2010 federal-provincial-territorial program of work that achieved results in a number of key areas: assessing ecosystem status and trends17, reporting on Canada’s progress towards the 2010 target18, initiating research on the value of nature to Canadians, development of draft domestic policy guidance on access and benefit sharing of genetic resources, and implementing an engagement strategy19 for the International Year of Biodiversity.
The Government of Canada continues to implement the Species at Risk Act (SARA). In response to a public commitment, a suite of draft policies has been developed and communicated to stakeholders explaining how the federal government intends to use SARA to meet its obligations. The draft policies clarify key processes and inter-jurisdictional roles and responsibilities, which will improve coordinated action and enhance administrative efficiency in the ongoing implementation of SARA. In addition, significant changes to the recovery planning process took place in 2009 that allowed for a more streamlined approach to the development and posting of future recovery planning documents. As of March 31, 2010, 41 recovery strategies have been completed and 162 recovery strategies are under development.
In 2009–2010, Canada participated in the 15th meeting of the Conference of the Parties to the Convention on International Trade in Endangered Species of Wild Fauna and Flora (CITES). Effective communication and integration of Inuit views on a proposal to ban trade in polar bear resulted in a coordinated, science-based Canadian position which was supported by the majority of parties who recognized that trade is not affecting the status of polar bear. As a result, polar bear status remained unchanged in Appendix 2 of CITES. Environment Canada also successfully coordinated with Fisheries and Oceans Canada to balance conservation concerns and Canadian economic interests regarding a number of marine species. Ultimately, a principle-based Government of Canada position was achieved and supported during the CITES Conference of the Parties.
The Department continues to develop all-bird conservation plans for the 25 Bird Conservation Region (BCR) provincial areas. As of March 31, 2010, three of the six common elements of BCR plans have been completed. Once completed, BCR plans will provide a consistent framework for actions leading to the conservation of migratory birds and their habitats across Canada.
The Government of Canada is committed to protecting wetlands, waterfowl and other wetland-associated migratory birds under the North American Waterfowl Management Plan (NAWMP). The purpose of the NAWMP is to sustain abundant waterfowl populations by conserving landscapes and habitat. As of March 31st, 2009, Environment Canada, working with its partners, secured 60,246 hectares20 of wetlands and associated upland habitats for migratory birds and species at risk through the NAWMP. In total, 2,376,067 hectares, representing 69.1 percent of the goal of 3.44 million hectares, have now been secured.
Environment Canada is working with a variety of partners to advance habitat conservation efforts in the North. Work continues on establishing new protected areas: six new National Wildlife Area (NWA) sites under the Northwest Territories Protected Areas Strategy, three new NWAs in Nunavut under the Inuit Impact and Benefit Agreement (completed), and the designation of Scott Islands, as a Marine Wildlife Area. In 2008, the government announced that the Sable Island, including its marine environment, would be protected as a NWA. In 2009–2010, Environment Canada worked with Parks Canada and held public consultations, concluding that it would be more appropriate to protect the area as a National Park. Parks Canada is now leading the work to create a National Park. All six candidate NWA sites in the Northwest Territories have been identified and designation is proceeding on schedule. The three new NWA sites in Nunavut were listed in the Canada Gazette in early June 2010. The new northern protected areas will play a key role in conserving vulnerable habitat in the face of a variety of threats, including climate change and industrial development. This will demonstrate the Government’s commitment to a balance between conservation and development in Canada’s North.
In addition, the Department completed plans to expand the enforcement program by 50 percent and established the strategic enforcement framework that defines the mission and long-term vision of the enforcement program. Doing so will enhance the Department’s capacity to target high-risk compliance areas, and to respond to referrals and incidents. Additionally, the Environmental Enforcement Act received Royal Assent and will come in to force in 2011.
Lessons Learned: As stated in Canada’s 4th National Report to the Convention on Biological Diversity, “enhancing long-term trend data will enable a more accurate assessment of the rate of biodiversity change and the effects of conservation and sustainable use of policies and practices.”21 Environment Canada and its partners must continue monitoring and collecting the long-term biodiversity trend data needed to make accurate assessments of the rate of biodiversity change and the effects of conservation and sustainable use policies and practices. The department has learned that clarifying key processes and inter-jurisdictional roles and responsibilities, along with a more streamlined approach to the development and posting of future recovery planning documents, will improve the ongoing implementation of SARA.
| Expected Results |
2009–2010 Performance Status Rating |
Performance Indicators |
Targets | 2009–2010 Performance Summary |
|---|---|---|---|---|
| Reduced risks to aquatic ecosystems resulting from human activity | Somewhat Met |
Percentage of water bodies included in the Canadian Environmental Sustainability Indicators Freshwater Quality Index whose quality was rated as either good or excellent | Available data are presently insufficient to report meaningful national trends for this indicator, thus no specific policy target has yet been established | Over three years of data roll-up (2005-2007) 38.6% (59/153) of core national sites monitored were qualified as either good or excellent in the Water Quality Index. About 80% (12/15) of monitored river basins showed some sites with Water Quality Index rating of either good or excellent.22 Note: In the absence of a target for the performance indicator, the performance rating is based on a qualitative assessment by program management of the degree of progress achieved in meeting the commitments identified in the 2009–2010 RPP. |
The Program Activity description can be found in the Main Estimates online.
Benefits to Canadians: Environment Canada worked with its partners to conserve and protect the health of Canada’s aquatic ecosystems and water resources by developing strategic approaches and implementing actions that address significant freshwater issues. For example, Environment Canada’s efforts to deliver the Action Plan for Clean Water is cleaning up polluted bodies of water across the country, including Lake Winnipeg and Lake Simcoe, as well as several areas of concern in the Great Lakes, such as the Niagara River. Protecting and conserving our water is important so that present and future generations of Canadians have access to clean water and a healthy environment.
Performance Analysis: In 2009–2010, Environment Canada provided support to Foreign Affairs and International Trade Canada in drafting legislation23 to strengthen prohibitions on the bulk removal of Canada’s water outside the country. The Department delivered on commitments to domestic water boards such as the Prairie Provinces Water Board, Mackenzie River Basin Board, and St. Croix River Board, as well as the International Joint Commission (IJC) through its ongoing participation and provision of water quality science and resource management information and expertise. Environment Canada also worked with provinces and territories through the Canadian Council of Ministers of the Environment (CCME) to develop a strategic, forward-looking framework that will guide CCME in its future actions and activities related to water.
In 2009–2010, Environment Canada delivered on the second year commitments of the Action Plan for Clean Water by carrying out its work to restore Lake Simcoe, Lake Winnipeg, and areas of concern in the Great Lakes. In particular, the Department developed and implemented contaminated sediment management strategies for Great Lakes sediment remediation, administered the Lake Simcoe Clean-up Fund, and provided leadership, science and expertise to the Lake Winnipeg Basin Initiative by working on the development of a Canada-Manitoba Agreement with the province of Manitoba. Environment Canada also administered rounds two and three and initiated a call for round four of the Lake Winnipeg Basin Stewardship Fund, and developed, as part of the Lake Winnipeg Basin Initiative, a decision support system that allows the integration of watershed and lake models.
Environment Canada continued to support Fisheries and Oceans Canada and the Canadian Food Inspection Agency (which is the lead) in delivering the Canadian Shellfish Sanitation Program under a memorandum of understanding. The Department conducted water quality sampling and analysis to protect the health and safety of Canadians by surveying 15,000 km2 of marine waters along Canada’s Pacific and Atlantic coastlines (including the St. Lawrence estuary) and close to 1,000 shellfish harvesting areas. In 2009–2010, 40,000 water samples were collected and analyzed, 38 studies of wastewater treatment plants discharging into shellfish harvested areas were undertaken, an inventory of pollution sources impacting coastal environments was updated, and six of our microbiology laboratories were accredited to ISO 17025.
Environment Canada provided leadership on aquatic ecosystem science and conducted research, monitoring and analytical services on priority areas that are essential to support responsible decision making. The Department continued to implement the Canadian Aquatic Biomonitoring Network in collaboration with partners for assessing the health of freshwater ecosystems in Canada and is on target with expanded national reference conditions being established on key watersheds.
Activities associated with aquatic biomonitoring were undertaken as part of key priority domestic and international water-related initiatives associated with the Fraser Basin, Yukon River Basin, the Boreal Upland Ecoregion (including Prince Albert and Riding Mountain National Parks), Lake of the Woods and Lake Saint-Pierre (St. Lawrence River). Activities were recently initiated in the Atlantic Provinces. Tailings ponds, water quality and water quantity monitoring and research were also carried out to support departmental work related to the oil sands and the sustainability of water resources in the Athabasca River. Work related to fingerprinting compound(s) analysis also advanced which may help Environment Canada determine more specifically the nature and source of contaminants found in the Athabasca River.
A broad review of the federal-provincial water quality monitoring networks was undertaken and recommendations have been prepared for future departmental action. A coordinated science and monitoring initiative was developed to improve collaboration between Canadian and U.S. agencies involved in water quality science and monitoring on the Great Lakes. Finally, a review of the Canada-British Columbia Water Quality Monitoring Agreement was conducted and some adjustments to improve monitoring efficiency and effectiveness were implemented. Network gaps in coverage and associated risks were identified for future action.
Lessons Learned: Integrated and collaborative research and monitoring projects are underway under the Lake Winnipeg Basin Initiative to achieve a better understanding of the gaps related to ecology and nutrient cycling. The Department has learned that by understanding the sources and transport mechanisms for nutrients, more robust nutrient objectives can be developed for the lake along with performance indicators that will guide abatement investments and better enable assessment of the health of the lake and watershed. This effort is an important component of Canada's Action Plan on Clean Water.
Environment Canada participated in two U.S. Food and Drug Agency audits and one European Union audit of the Canadian Sanitation Shellfish Program, and will review and address feedback once received by respective auditors.
| Expected Results |
2009–2010 Performance Status Rating |
Performance Indicators |
Targets | 2009–2010 Performance Summary |
|---|---|---|---|---|
| Beneficial uses and environmental quality in priority ecosystems are maintained or restored | Mostly Met |
Index assessing the overall progress made against near-term objectives24 of Environment Canada's six25 priority ecosystem initiatives (PEIs) | 100 by March 201026 | The Ecosystem Initiative Index at the end of 2009–2010 is estimated to be 93. This value represents a combined score of qualitative management assessments for each of the near-term goals of the Ecosystem Initiatives, expressed on a scale of 1 to 100. This score is based on assessments for three Ecosystem Initiatives: Great Lakes, St.
Lawrence and Atlantic. The performance status rating is based on the indicator as well as on progress achieved in negotiations with other jurisdictions on renewal of the Great Lakes Water Quality Agreement, the Canada-Ontario Agreement respecting the Great Lakes Basin Ecosystem, and the Canada-Quebec Agreement on the St. Lawrence. |
| Potential significant adverse environmental effects of projects/plans/ programs/ policies subject to federal environmental assessment legislation and Cabinet directives are avoided or mitigated. |  Exceeded |
Proportion of projects referred to an environmental assessment panel for which Environment Canada provided expert environmental assessment advice on potential significant adverse environmental effects where that advice was incorporated and reflected into the decision | 75% by 2009–2010 90% by 2010–2011 |
All of Environment Canada’s substantive issues, as presented to environmental assessment panels in the 2009–2010 operating year, were reflected in the government decision. The Department thereby exceeded the target of 75%. |
The Program Activity description can be found in the Main Estimates online.
Benefits for Canadians: Environment Canada’s work on this program encourages and supports individuals and organizations to enhance or maintain the sustainability of ecosystems in Canada. For example, ecosystem initiatives such as the Great Lakes Basin Ecosystem Initiative, the St. Lawrence Plan and the Atlantic Ecosystem Initiative contribute to action on and preservation of ecosystem health and the beneficial uses that follow. An important part of this success can be attributed to the work of local stakeholders in devising and implementing just under 50 local environmental or remedial action plans. These plans receive financial and technical support from the Department and benefit the communities in which they take place.
Through the provision of scientific advice and expertise, Environment Canada facilitated more informed decision making by identifying and mitigating the potential environmental impacts of two large development projects subject to a federal decision in the reporting period.
Findings from the Evaluation of the EcoAction Community Funding Program indicate that the program provides an important source of support for community-based environmental projects. The Environmental Damages Fund (generated from fines levied for contravention of federal environmental laws) provided direct benefits to Canadians in communities across the country in the form of improvements, restoration, and protection of local environments as well as improved accountability for these investments.
Performance Analysis: Progress has been made in advancing the understanding of an ecosystem approach27. This has been achieved by completing an analysis of current and potential departmental actions in 12 out of 17 vulnerable ecosystems and “hotspots” across the country (the remaining five will be considered in 2010–2011) and by continued efforts to integrate an ecosystem-based approach into the decision making processes of the Department. As well, a new Coastal and Oceans Engagement Framework is being used by the Department for priority setting and program guidance.
Environment Canada is actively participating in negotiations to amend the Great Lakes Water Quality Agreement (GLWQA) led by Foreign Affairs and International Trade Canada. This is an important and substantive event for both Canada and the United States. For Canada, it represents an opportunity to influence decision-making in both countries to benefit a natural resource that has significant environmental, economic and human health implications for many Canadians. A Great Lakes Strategic Framework was developed and an agreement was reached with the Government of Ontario on March 4, 2010, on how the framework will be used to support the domestic Great Lakes agenda.
Two other keystone agreements are noteworthy: a one-year extension of the Canada-Ontario Agreement respecting the Great Lakes Basin Ecosystem (2007–2010) was approved by the Minister to allow time for negotiations with the U.S. on a revised GLWQA; and the 2005–2010 Canada-Quebec Agreement on the St. Lawrence terminated in March 2010. Negotiations with the Government of Quebec have begun on a new agreement. Environment Canada is leading the negotiations on behalf of the federal government and working with eight departments and agencies.
The EcoAction Community Funding Program delivered 206 projects through contribution agreements in 2009–2010. Of these, 125 were new projects representing a departmental investment of $4.2 million. These projects leveraged $10.3 million in cash and in-kind support, which translates to $2.45 leveraged for every dollar of federal funding with an average of 5.6 partner sectors28 involved in each project. The program funded 54 percent of project applications received. In support of the International Year of Biodiversity 2010, 54 biodiversity-related projects were funded for a total of $1.65 million in federal funding. These projects will reduce biodiversity loss, protect wildlife and improve species habitat, and increase urban re-naturalization. Climate change-related projects to reduce greenhouse gas emissions represented 35 percent of new projects funded for a total of $1.7 million in federal funding. The remaining projects focused on clean water (23 percent) and clean air (4 percent) initiatives. Over 420,000 individuals were engaged in EcoAction projects across Canada, including 108 jobs created and 2,574 volunteers.
Environment Canada met all of its obligations under Canadian Environmental Assessment Act (CEAA) as both a responsible authority and a federal authority. In general, Environment Canada conducts and/or contributes to approximately 2,500 environmental assessments each fiscal year. In 2009–2010, two panel environmental assessments were concluded; the Dunvegan hydroelectric power project in Alberta, and the La Romaine hydroelectric project in Quebec. In both cases, Environment Canada participated as a federal authority, and the Department's advice and recommendations were accepted by either the panel (for La Romaine) or the proponent prior to the panel hearing (for the Dunvegan project). Environment Canada's main areas of interest for these two projects included migratory birds and bird habitat, water and air quality, and greenhouse gas emissions.
The Environmental Damages Fund (EDF) secured new administrative resources to improve the management and increase the promotion of the EDF. These efforts are the result of amendments to the Environmental Enforcement Act that will allow fines from environmental convictions to be directed to the EDF, when the Act comes into force in 2011. In 2009–2010, twelve court awards were directed to the EDF for a total of $287,000 and twenty-seven projects were funded across the country. Promotional activities were undertaken among Environment Canada enforcement officers and federal prosecutors of the Public Prosecution Service of Canada to increase their awareness and understanding of the Environmental Damages Fund.
Lessons Learned: The announcement in June 2009 of the beginning of negotiations to amend the GLWQA and the development of the future directions for both the Great Lakes and St. Lawrence Ecosystem Initiative programs emphasize the importance of building on best practices related to the development and implementation of ecosystem initiatives, such as the early identification of new and emerging challenges, and of recognizing the added value of public engagement and input.
Regarding Environment Canada’s involvement in the environmental assessments of large-scale development projects, the Department has reinforced the message that early engagement with proponents can influence and improve project plans to minimize environmental impacts while expediting the panel hearing process.
To increase the legal community’s confidence in and awareness of the Environmental Damages Fund, the consensus from enforcement staff and prosecutors was that a feedback mechanism must be established to provide information on the types of projects being funded and results achieved through funds directed to the EDF. The program has developed factsheets geared to prosecutors and enforcement, and will be launching a new website to provide details on projects funded.
Strategic Outcome 2: Weather and environmental predictions and services reduce risks and contribute to the well-being of Canadians
Description: Changing weather, water and climate conditions, such as severe weather, floods, poor air quality and heat waves, can seriously affect Canadians' safety, health and economic well-being. Environment Canada works to provide quality meteorological, climatological, hydrological and related environmental information, prediction and services that help Canadians make decisions to reduce the risks posed by the environment and/or to enhance economic activities.
| Performance Indicators |
Targets | 2009–2010 Performance Summary |
|---|---|---|
| Percentage of respondents who indicate that weather forecasts "always" or "usually" provided enough information to be useful | 85% by March 2012 | The percentage of respondents indicating that weather forecasts "always" or "usually" provide enough information to be useful went from 76% in 2002 to 80% in 2007. The next survey is planned for 2012. This progress resulted from continuous improvements to forecast accuracy including the enhancement of the atmospheric models, as well as the standardization of content, and improved dissemination services to better meet user needs. Based on feedback from Canadians received by the Environment Canada’s National Inquiry Response System in 2009–2010, information related to precipitation and wind are areas for improvement. |
| Number of visits / sessions to Environment Canada's Weatheroffice website | 275 million by March 2010 | The number of visits between March 2009 and March 2010: 539,789,323 Focus group consultation yields information on user needs and feedback on proposed changes, which have been used to improve the Weatheroffice website content and accessibility. |
| Percentage of respondents who indicate that they "always" or "most of the time" receive enough notice of a winter storm to take preparatory action | 85% by March 2012 | The percentage of respondents indicating they "always" or "most of the time" receive enough notice of a winter storm to take preparatory action went from 81% in 2002 to 84% in 2007. The next survey is planned for 2012. These results have been fairly stable between 2002 and 2007; however, public forecast coverage increased from 5 to 7 days in 2009 and an associated improvement in performance is expected. |
There are two Program Activities under this Strategic Outcome:
- Improved knowledge and information on weather and environmental conditions influences decision making
- Canadians are informed of, and respond appropriately to, current and predicted environmental conditions
| Expected Results |
2009–2010 Performance Status Rating |
Performance Indicators |
Targets | 2009–2010 Performance Summary |
|---|---|---|---|---|
| Environment Canada and partners receive high-quality observations that allow them to identify, analyze and predict weather, air water and/or climate conditions | Mostly Met |
Percentage of monthly reports from the 87 stations in the climate observing network that meet World Meteorological Organization (WMO) standards | 85% by March 2010 | Environment Canada’s monitoring networks continued to provide observations of air quality, water level and derived flow, weather and climate information, 24 hours a day, 7 days a week from all network sites in Canada. Ninety percent of the climate stations met WMO
standards while weather radar was available to Canadians, 94% of the time. Canadians and others downloaded 7,700 gigabytes of data in 2009 from the Department's online climate archive and also had access to real-time and archived water information online |
| Percentage of time that weather radar is available to forecasters and the public | 95% by March 2010 | |||
| Environment Canada and partners receive high-quality weather and environmental prediction information (or models) that allow them to identify, analyze and predict weather, air, water and/or climate conditions | Mostly Met |
Rank of Canada's global weather model among other global weather models | Canada's weather model is ranked in the top five by April 2009 | Canada's global weather model ranked 6th out of the ten main global models that verify the 24 hour forecast over the entire Northern Hemisphere. |
The Program Activity description can be found in the Main Estimates online.
Benefits for Canadians: Better observational data and a stronger scientific foundation yield improved accuracy and lead times for warnings of severe weather, thus improving the safety margin for Canadians. Furthermore, they provide a stronger scientific basis for policy development and decision making pertaining to key environmental issues and their implications. As a result, Canadians and their institutions can better adapt to manage the risks they face from changes in the environment as well as benefit from the opportunities in fields such as agriculture, forestry or renewable energy. This program, by helping Canadians anticipate how the environment can affect them or their activities, contributes to reducing the negative impacts – including loss of life, detrimental effects on health and damage to property – that changing weather, water or climate conditions can have on Canadians. Furthermore, it provides government and policy-makers with short and long-term information on changes to the environment to support the development of regulations and policies, for example on air quality, water levels and climate change.
Performance Analysis: The Department has made progress in implementing an integrated investment planning approach but continued to face challenges with respect to its weather observing networks and in assessing its knowledge of the effectiveness of its programs. A forward-looking strategy is being developed, identifying key risks, ways forward and areas requiring investment to enable Environment Canada to position itself for the future. This strategy includes a plan and vision for advancing the efforts to address critical gaps in the monitoring infrastructure, including a pilot project for the asset life-cycle management system. This has involved testing the application for the Aviation, Marine, Surface and Upper Air Monitoring Networks by engaging the key program people who are responsible for entering and maintaining asset data for these networks. Further testing of the application and solution design will be conducted prior to the launch of the pilot project currently scheduled for this fall.
In response to the December 2008 report of the Commissioner of the Environment and Sustainable Development29 (CESD) audit recommendations, the Department is developing a long-term strategic plan for monitoring which defines the strategic direction, strategies, and milestones necessary to restore and sustain the integrity of its severe weather and climate monitoring program. Key areas of progress to date include: systematic assessment of user requirements (with initial focus on severe weather); establishment of a framework for participation in a “Network of Networks” (including technical and policy guidelines on data quality and data sharing); and the establishment of memoranda of understanding (MOUs) with provinces for voluntary data exchange.
The Department also made advances in scientific knowledge, capacity and transfer of research to operations. New versions of the regional and global numerical models (Global Environmental Model) were put into operation in June 2009, resulting in significant quality improvements in the medium-range forecasts. Environment Canada received international and national recognition of its meteorological research project at the Vancouver 2010 Olympic and Paralympic Games, which used an array of measuring instruments, high-resolution forecast models and nowcasting (very short-term forecasts) techniques to provide forecasts of weather conditions, down to the scale of a single Olympic event.
Lessons Learned: The Department learned that it needs to develop an up-to-date strategy to address challenges in managing its monitoring networks, as highlighted in the December 2008 CESD report. A more strategic and holistic approach is needed to establish better tracking mechanisms to ensure the viability of the system. In response, a fully costed forward-looking strategy that incorporates a monitoring strategy and a long-term capital plan is being developed to begin moving forward on this lesson.
The Vancouver 2010 Olympic and Paralympic Games also provided a learning opportunity through the “Science and Nowcasting Olympic Weather for Vancouver 2010” (SNOW V10) program under the World Weather Research Program (WWRP). Launched by the World Meteorological Organization (WMO), experts from around the world including a team of Environment Canada employees collaborated to lead the way in nowcasting winter weather research. The knowledge gained will be useful in improving winter forecasting techniques in Canada and in developing partnerships around the world.
The Program Activity description can be found in the Main Estimates online.
Benefits for Canadians: Weather and environmental information and predictions enable Canadians and their institutions to prepare for and take appropriate actions to safeguard life and property, adopt strategies to mitigate vulnerabilities to air pollution and the changing climate, and prosper through decisions that advance economic competitiveness and individual well-being. In 2009–2010, for example, this was demonstrated through strong coordination with emergency measures organizations and environmental emergency agencies during major meteorological events, the expansion of the Air Quality Health Index Program to 14 new sites across Canada, and various enhancements to the Automated Telephone Answering Devices (ATAD), the Weatheroffice website and Weatheradio systems to increase reach and ensure effective delivery of weather information to Canadians in both official languages. All of these efforts help Canadians better manage their activities in light of changing weather, water and climate conditions. Finally, meteorologists across the country worked hard to provide forecasts and weather warnings that were essential for the safety and security of athletes, officials, spectators and visitors, and for proper planning and preparation of the 2010 Olympic and Paralympic Games.
Performance Analysis: The Department continued to provide its weather and related services 24 hours a day, 7 days a week. It demonstrated particular success in forecasting major events such as 41 tornadoes during the summer of 2009 and Hurricane Bill. However, more work is needed to understand where our forecasting systems can improve their performance and in preparing Canadians to respond to the warning information they receive. Environment Canada was a major contributor to Public Safety Canada’s federal response to the Red River and St. John River floods of spring 2009. As well, the weather services provided during the Vancouver 2010 Olympic and Paralympic Games resulted in international and national recognition, and the Canadian approach is being considered by other countries such as Russia who will host the next Winter Olympic Games.
Problems were revealed with the tools used by Environment Canada meteorologists to prepare and disseminate a high volume of weather warning bulletins during very unusual conditions of multiple extreme weather events happening in a short period of time. In 2008, the Commissioner of the Environment and Sustainable Development (CESD) conducted an audit on the way Environment Canada manages its severe weather-warning program, identifying a number of issues with the Department’s ability to deliver severe weather warnings to Canadians in a sustainable manner. The Department agrees with these findings and is developing a comprehensive strategy to improve the effectiveness of the existing warning systems and to explore new technologies.
Improvements were also made to Environment Canada’s forecasting tools through the implementation of the Ninjo forecaster workstation and pilot hydrometric workstations, despite some delays due to software and capacity issues and operational testing of the Canadian Airport Nowcasting (CAN-Now), very short-term forecasting, is underway at two major airport hubs: Toronto and Vancouver.
Significant scientific advances were made in computer modeling, with the operationalization of new versions of regional and global numerical models (Global Environmental Model) in June 2009, and improved data assimilation for medium-range forecast models. The Air Quality Health Index (AQHI) Program has been accepted by nearly all provincial partners, local partners and the media. It has become one of the most successful programs under the Adaptation Theme in the Government of Canada Clean Air Agenda and it has been identified as a model in terms of government consultation. An evaluation of the program, completed in February 2010, found that the program was generally on track in meeting its stated goals and appears to be a cost-effective and well-managed program. The Canadian global climate model has been developed into an internationally competitive Earth System Model and is being used to produce new climate change projections for the Intergovernmental Panel on Climate Change (IPCC) Fifth Assessment Report. The Department was also involved in furthering understanding of climate change, particularly in the North, through leadership of the Canadian collaborative project Variability and Change in the Canadian Cryosphere30 conducted under the auspices of the International Polar Year.
Following the November 2008 audit of the bilingual capacity of Environment Canada’s automated telephone network for weather forecasts, the Department has upgraded its equipment to ensure it is fully compliant with the Official Languages Act.31 This service receives approximately 50 millions calls every year and is available to 28 millions Canadians. Environment Canada’s Weatheradio network, which broadcasts weather and environmental information 24-hours a day direct from Environment Canada’s Storm Prediction Centres, operated 97 percent of the time in 2009–2010. Furthermore, a three-year project is underway for distributing Weatheradio receivers to every school in Canada. Service commitments were also met and user satisfaction was high for targeted users, such as the marine community, Canadian Coast Guard and Department of National Defence; however, demands are increasing, particularly in the North, due to an extended shipping season as a result of climate change. As recommended in the CESD audit, there was a need to verify the quality of severe weather warnings throughout the year. A comprehensive set of performance indicators for all departmental programs, including those under this Program Activity, was implemented on April 1, 2010.
Steps were taken to build a quality management system (QMS) culture and to ensure re-registration of activities under the ISO 9001:2000 standard. A business continuity plan was completed and significant work was undertaken to simulate various scenarios in the face of a potential influenza pandemic. Furthermore, a business case was developed to help guide Environment Canada in the optimization of its resources over the next ten years.
Lessons Learned: Environment Canada’s approach in the development and implementation of the weather services at the Vancouver 2010 Olympic and Paralympic Games has been a model for other programs within Environment Canada’s meteorological services. The new technologies that were put in place helped Environment Canada understand more about forecasting weather in the mountains and along British Columbia’s coast than ever before. These findings will be used to improve local and national weather forecasts for Canadians and will also be shared with meteorological organizations around the world, improving global understanding of weather.
Working collaboratively with a wide variety of provincial governments and other stakeholders, such as NAV CANADA, which in July signed a new long-term agreement with Environment Canada for the provision of aviation weather services, yields strong, constructive relationships–a key factor in the successful communication of weather hazards. For example, during the Vancouver 2010 Olympic and Paralympic Games other authorities sought advice from Environment Canada’s weather and environmental services for their decision making. The knowledge and experience gained about effective engagement with clients and stakeholders will be used to further the services provided to Canadians through improved collaboration with other governments and emergency measures organizations (EMOs), for instance, during local severe weather events across Canada.
Strategic Outcome 3: Canadians and their environment are protected from the effects of pollution and waste
Description: Environment Canada delivers regulatory and non-regulatory action, incentive programs, and scientific research and monitoring to protect Canadians and their environment from the effects of pollution and waste. The Canadian Environmental Protection Act, 1999 and section 36 of the Fisheries Act provide the statutory basis for most of Environment Canada’s activities that make progress towards this Strategic Outcome.
| Performance Indicators |
Targets | 2009–2010 Performance Summary |
|---|---|---|
| Canadian emissions of greenhouse gases (carbon dioxide equivalents) in megatonnes (MT) | Total national emissions of 607 MT by 2020 based on current estimates and as part of a national effort by all governments in Canada.32 | Total GHG emissions in 2008 were 734 MT of carbon dioxide equivalent (CO2eq).33 Key regulatory steps have been taken in the transportation sector to reduce GHG emissions from new cars and light trucks and to increase the use of renewable fuels. Progress was made in completing analytical work required to harmonize with emerging U.S. climate change policy, specifically either for a North American cap-and-trade system or a sector-by-sector regulatory approach. The Department has worked closely with the provinces and territories as the approach to reduce emissions is being developed and has launched two working groups to ensure federal-provincial-territorial coordination on domestic and international climate change approaches. |
| Canadian ambient ground-level ozone levels measured in parts per billion (ppb) | Targets will be determined with the finalization of the air pollutant regulatory framework. | For 2008, the Canadian ambient ground-level ozone levels were 37.5 ppb. The Canadian ambient fine particulate matter (PM2.5) level was 8.1 µg/m3.34 A Comprehensive Air Management System (CAMS) – A Proposed Framework to Improve Air Quality Management was developed through joint work with provinces, industry and non-governmental organizations. The framework proposes a target range for ground-level ozone and particulate matter to be finalized in 2010. |
| Canadian ambient fine particulate matter (PM2.5) levels measured in micrograms per cubic metre (µg/m3) |
In 2008,35 Canada’s greenhouse gas emissions decreased 2.1 percent from 2007 levels, attributed partly to a slowdown in economic growth that began in 2008, and the utilization of greater amounts of hydropower for electricity generation. Although emissions in 2008 were 24 percent above the 1990 total of 592 MT, the growth trend has slowed in recent years, and emissions since 2003 have decreased by 0.8 percent.36 The Government is committed to a national target of reducing Canada’s total greenhouse gas emissions by 17 percent from 2005 levels by 2020.
Air quality indicators include measures of two key elements of smog—ground-level ozone and fine particulates (PM2.5)—which can cause harm and health problems when they come into contact with living things.37 According to the Canadian Environmental Sustainability Indicators 2008,38 national average levels of ground-level ozone increased in Canada by 13 percent between 1990 and 2007 and there were no significant changes in the average level of fine particulates over the 2000 to 2007 period.39
Environment Canada’s work contributing to this Strategic Outcome was organized into three Program Activities:
The Program Activity description can be found in the Main Estimates online.
Benefits for Canadians: Chemical substances may have a direct, harmful effect on animals, plants or humans, or may, depending on their volume, nature and manner of release, pose a long-term risk to the environment and human health. The Chemicals Management Plan is a national program focused on protecting the health of Canadians and the environment from the potential risks posed by chemicals.
The Plan makes Canada a world leader in assessing and managing the risks associated with substances that are used in thousands of industrial and consumer products. The benefits of this are an improved information base, regulatory clarity and predictability for industry, and protection of Canadians and the environment from the potential risks posed by commercial chemicals.
In addition to the Chemicals Management Plan, the Department’s work aligned to this Program Activity encompasses regulatory and non-regulatory initiatives that reduce the risks to Canadians and impacts on the environment associated with harmful substances from consumer products, industrial and commercial activities. These initiatives include, for example, a number of regulatory programs to manage and monitor risks to water quality, fish and fish habitat for the mining, pulp and paper and wastewater sectors.
Performance Analysis: The Government of Canada continued to implement the Chemicals Management Plan and met all of the deliverables within the established timelines. In 2009-2010, 259 existing substances were under risk assessment that led to the issuance of 44 substance profiles, 63 draft screening assessments and 152 final screening assessments.
Environment Canada and Health Canada communicate progress on the assessment of the 195 highest priority substances under the “Challenge” initiative through the Government of Canada’s Chemical Substances Portal and they are working with industry to develop satisfactory management plans for each of the substances that have been found toxic after scientific examination or for those that are strongly suspected of being dangerous. Environment Canada and Health Canada have initiated the development of risk management actions on Challenge substances such as bisphenol A, BNST, isoprene and toluene diisocyanates.
Environment Canada and Health Canada also conducted research, monitoring and surveillance to better understand the exposure and effects of a variety of chemicals that were identified as priorities under the Chemicals Management Plan. Strategies to address medium-priority substances using a sectoral approach were being developed where possible.
In addition to the Chemicals Management Plan, Environment Canada continued to implement its regulatory framework pertaining to the export and import of hazardous materials and hazardous recyclable materials in accordance with its international obligations under the Basel Convention. Further, it worked to evaluate and improve existing national instruments, such as an amendment to PCB regulations, a pollution prevention plan respecting releases of mercury from dental amalgam wastes and switches from automobiles, batch waste incinerator guidelines, and a landfill leachate evaluation program, all aimed at improving the management of hazardous and non-hazardous waste in Canada. Environment Canada, alongside provincial and territorial governments, committed to working on the Canada-wide Action Plan for Extended Producer Responsibility and a Canada-wide Strategy for Sustainable Packaging approved by the Canadian Council of Ministers of the Environment (CCME).
The Department also made progress in implementing the CCME Canada-wide Strategy for the Management of Municipal Wastewater Effluent by publishing draft regulations under the Fisheries Act for wastewater facilities. Proposed Wastewater Systems Effluent Regulations were published in the Canada Gazette, Part 1, in March 2010. The regulations, when in force, will address the largest source of pollution to surface water in Canada through minimum national effluent quality standards for the more than 3700 wastewater systems under municipal, provincial, or federal government operation, and those on federal land and Aboriginal land.
The 2007 report on compliance with the Metal Mining Effluent Regulations was published in March 2010. The report demonstrates a greater than 95 percent rate of compliance with the effluent quality standards set out in the Regulations. Environmental effects monitoring studies were also undertaken by mines subject to the Regulations, and initial results indicate that mine effluents are not having significant impacts on the receiving aquatic environments. Significant progress has been made in streamlining the regulatory process for amendments to the Metal Mining Effluent Regulations by incorporating information and consultation requirements of the regulatory process into the environmental assessment process.
In addition, the Department continued to advance Canada’s objectives regionally and globally through its efforts under the Commission for Environmental Cooperation, the United Nations Environment Programme and numerous United Nations conventions, and the Organisation for Economic Co-operation and Development. Through these efforts, the Department actively participated in, and advanced, Canadian interests in discussions on green growth, international environmental governance, the addition of nine new substances to the Persistent Organic Pollutants Protocol (Stockholm Convention), and negotiations of a global and legally binding agreement on mercury.
The Environmental Emergencies Program managed over 3,900 facilities handling hazardous substances registered under the CEPA 1999 Environmental Emergencies Regulations. Approximately 80 percent of these facilities were required to prepare and maintain environmental emergency plans that addressed prevention, preparedness, response and recovery elements of emergency management.
In managing the Federal Contaminated Sites Action Plan (FCSAP), Environment Canada continued to provide program oversight and administration, training, guidance and project review to help federal custodians address contaminated sites for which they are responsible. The Department coordinated and participated in the implementation of the first year of accelerated FCSAP activities under Canada’s Economic Action Plan.
Environment Canada continued to track and support the reduction of land-based sources of marine pollution, with a focus on integration with existing departmental policies and programs, in particular those related to freshwater and coastal management. With respect to preventing marine pollution and assessing waste and other matter for disposal at sea, Environment Canada assessed the 81 permit applications received, and issued permits in compliance with the CEPA 1999 requirements. Monitoring of disposal sites was conducted in order to assess the sustainability and compliance of the activities as per CEPA 1999 requirements.
As noted previously in this DPR, the Department successfully completed plans to expand the enforcement program by 50 percent through the hiring, training, and deployment of additional enforcement officers, and through enhancements to laboratory capacity and technical support. Along with the establishment of the strategic enforcement framework (see the Performance Analysis in the Biodiversity and Wildlife Program), this increased capacity will aid the Department in planning and implementing enforcement activities to prevent, detect and deter regulatory non-compliance.
Lessons Learned: In 2009–2010, Environment Canada, jointly with Health Canada, began the evaluation of the Chemicals Management Plan, which will assess issues related to the initiative’s relevance and performance from its inception in December 2006 up to October 2010. The preliminary findings will be taken into consideration in the design of the framework for identifying future priorities, and in the design of the risk assessment and management phase that will follow the “Challenge” initiative.
Also in 2009–2010, the audit conducted by the Commissioner of the Environment and Sustainable Development (CESD) concluded that Environment Canada does not have comprehensive risk management strategies for specific substances, namely lead and mercury, and that the Department does not have a formal process for updating assessments and determining the overall effectiveness of risk management strategies. As a result of the audit, work has been undertaken to consolidate risk management strategies for lead and mercury into a comprehensive document. Environment Canada and Health Canada are developing criteria to determine when and how to evaluate risk management strategies in a more systematic manner.
In response to the May 2009 audit conducted by the CESD, which reviewed the Department’s administrative provisions of the Fisheries Act pollution prevention, Environment Canada will work to develop a risk-based management and accountability framework, conduct reviews of outdated regulations and guidelines, and review risks in unregulated sectors. Environment Canada and Fisheries and Oceans Canada will work together to review the Memorandum of Understanding in order to strengthen clarity in administration and enforcement of the pollution prevention provisions.
In response to the first recommendation of the 2008 report on the Environmental Emergencies Program Evaluation, which was carried out by the Audits and Evaluation Branch, a governance document was completed and approved. This document distinguishes the roles and responsibilities of environmental emergency officers, enforcement officers and compliance promotion officers. The other three recommendations from this evaluation will be addressed through the Environmental Emergencies Program Mandate and Capacity Review. Planning for this Review took place in 2009–2010 and the review itself, including consultation with key stakeholders, will be carried out in 2010–2011.
Environment Canada took steps to address recommendations from the 2008 FCSAP Formative Evaluation in 2009–2010. As a result of the lessons learned from the evaluation, a review and update of program performance measurement indicators and targets were undertaken, a decision-making framework to assist custodians in making decisions to best meet program objectives was implemented, and an operational-level Director General steering committee was established.
The Program Activity description can be found in the Main Estimates online.
Benefits for Canadians: As a result of Environment Canada’s work to ensure that facilities releasing pollutants to the environment comply with public reporting requirements, Canadians are provided with easily accessible information to make better-informed decisions on potential risks from pollutants that are released into the environment. National Pollutant Release Inventory (NPRI) information is used by governments to support the development and monitoring of regulations, policies and programs, enabling Canadians to benefit from reduced exposure to pollutants.
The Department’s CEPA 1999 quality management system (QMS) contributes to the prevention and management of risks posed to Canadians by harmful substances, by clarifying internal regulatory processes and decision-making activities within Environment Canada's mandate. Regulatory initiatives that comply with the QMS, which help ensure that the use of the Government’s regulatory power results in the greatest net benefit to Canadian society.
Finally, through the provision of departmental expertise and oversight, Environment Canada’s environmental technology assessments and expertise help federal technology investments to offer Canadians value for money, optimize environmental benefits, and do not impact negatively on the environment.
Performance Analysis: Approximately 8,840 facilities reported to the 2008 NPRI between April and the June 1, 2009, reporting deadline. An improved online data collection system and centralized help desk assisted facilities in resolving reporting issues in an effective manner. As such, the NPRI Program was successful in meeting Canada’s domestic and international obligations for pollution data reporting and publication. In addition, improvements are underway to address the quality of the emissions data reported to the NPRI. For example, the development and publication of improved guidance and emissions estimation tools helped reporters better understand the NPRI reporting requirements and how to estimate pollutant emissions.
In support of the Chemicals Management Plan and other legislative priorities, the QMS continues to offer tools and mechanisms ensuring that decision-making for regulations and other regulatory tools such as codes of practice, pollution prevention plans and performance agreements are more consistent, transparent and predictable, and are compliant with the Cabinet Directive on Streamlining Regulation and with statutory and other policy requirements.
The program’s technology assessment function contributed to the synthesis, evaluation and integration of the scientific understanding of the environmental impacts and performance of innovative technologies. The program played a role in overseeing several key programs that advance innovative environmental technologies including Sustainable Development Technology Canada (SDTC), Canada’s Environmental Technology Verification (ETV) program, and the Canadian Environmental Technology Advancement Centres (CETACs). Our scientists and engineers provided expert advice, helped establish criteria to guide funding decisions, and evaluated the environmental outcomes of funded projects.
Lessons Learned: Greater integration and cooperation among the various Environment Canada data collection programs would better enable information that is more simplified, streamlined and aligned with departmental priorities. Lessons learned from the design and implementation of electronic submission tools to support data gathering under the Chemicals Management Plan, the National Pollutant Release Inventory and the Greenhouse Gas Emissions Reporting Program were integrated in the Single Window Reporting Initiative. More specifically, the lessons learned included the importance of the coordination and communication of clear and valid business rules, tools to manage data, and the involvement of information management specialists and key program staff to promote alignment of data requirements across programs while ensuring that reporting obligations can be met in response to provisions under CEPA 1999.
| Expected Results |
2009–2010 Performance Status Rating |
Performance Indicators |
Targets | 2009–2010 Performance Summary |
|---|---|---|---|---|
| Risks to Canadians, their health and their environment from air pollutants and greenhouse gas emissions are reduced | Mostly Met |
Canadian industrial emissions of greenhouse gases (carbon dioxide equivalents) in megatonnes (MT) | Total national industrial emissions of 240 MT by 2020 based on current estimates.40 | Canadian industrial emissions of greenhouse gases (carbon dioxide equivalents) in 2008 were 327 MT. Progress was made to advance the development of approaches to reduce greenhouse gas (GHG) emissions from industrial sectors to meet the national reduction target in the context of a potential North American cap-and-trade system, including a draft set of rules and guidance for Canada’s Offset System published in June 2009. |
| Canadian industrial emissions of course particulate matter (PM10), sulphur dioxide (SO2), nitrogen oxides (NOx), volatile organic compounds (VOCs) and mercury (Hg). | Targets will be determined with the finalization of the air pollutant regulatory framework | Canadian industrial emissions of PM10: 206,741 tonnes; SOx: 1,751,593 tonnes; NOx: 973,938 tonnes; VOC: 821,933 tonnes; and Hg: 5093.8 kg.41 A Comprehensive Air Management System (CAMS) – A Proposed Framework to Improve Air Quality Management was developed through joint work with provinces, industry and non-governmental organizations. It includes a foundation of industrial emission requirements for sources of SO2; NOx, VOC and particulate matter. |
||
| Canadian transportation emissions of: particulate matter 10 (PM10), nitrogen oxides (NOx), volatile organic compounds (VOCs), and carbon monoxide (CO). | Targets will be determined with the finalization of the air pollutant regulatory framework | Canadian Transportation emissions of PM10: 72,001 tonnes; SOx: 101,529 tonnes; NOx: 1,209,463 tonnes; VOC: 553,828 tonnes and CO: 6,852,157 tonnes.42 Canada has developed and will continue to develop regulations to reduce air pollutant emission from vehicles and engines in alignment with the world leading national standards of the U.S. Environmental Protection Agency. There are currently regulations to control air pollutant emissions from new cars and trucks, motorcycles and buses and for off-road diesel engines. A draft of Renewable Fuels regulations was released for consultation to industry. |
The Program Activity description can be found in the Main Estimates online.
Benefits for Canadians: Environment Canada continued to develop an approach to reduce air pollutant and greenhouse gas emissions, raise awareness, and promote activities and develop instruments to reduce emissions and pollutants from industrial and transportation sectors. The overall objective and benefit of these activities is to improve air quality and reduce greenhouse gas emissions to minimize the harmful effects of air pollution and climate change on Canadians and the environment.
Environment Canada's science and research supported the development of regulations, guidelines and policies to protect the health of Canadians and their environment, as well as contributing to our international obligations. Tracking the amount of emissions is important to understand both how air, water and land are changing, and the potential impacts on health and the environment. Environment Canada, working with its partners in government and industry, collects measurements of air quality across Canada. This information helps to determine the sources of air pollution in Canada, and how this pollution affects air quality.
Performance Analysis: Progress was made in advancing approaches to reduce greenhouse gas emissions from industrial sectors in the context of a potential North American cap-and-trade system, including a draft set of rules and guidance for Canada’s Offset System published in June 2009. As part of this effort, a single window reporting system was developed and launched to gather data for reporting GHG emissions. Furthermore, Canada’s Kyoto Protocol National Registry, which connects directly to the International Transaction Log (ITL) operated by the United Nations Framework Convention on Climate Change (UNFCCC) Secretariat, was launched in March 2010.
Environment Canada worked intensively with other federal departments, provinces, industry, and NGOs to develop a proposed framework for a comprehensive air management system that includes industrial air pollution emissions requirements, ambient air quality standards, and a focus on regional air quality management of all sources of air pollution.
Environment Canada, with Natural Resources Canada, completed studies to assess and characterize emissions from diesel engines using various diesel fuels and engine modes. In addition, the Department has developed and will continue to develop regulations to reduce air pollutant emission from vehicles and engines in alignment with the world-leading national standards of the U.S. Environmental Protection Agency. The Department was developing greenhouse gas emissions regulations for new cars and light trucks for the 2011 and later model years. Draft Renewable Fuel Regulations that require minimum renewable fuel content in gasoline and diesel were released for consultation. The National Vehicle Scrappage Program retired more than 64,000 older, higher-polluting vehicles, reducing smog-forming emissions by 2,600 tonnes.
The Department continued to undertake research and monitoring on air quality to support emission reduction strategies, to enhance consistency and comparability of particulate matter (PM2.5) data, and to upgrade air quality models to improve the prediction of air pollution. This research included the development of a new air quality forecast model GEM-MACH (Global Environmental Multiscale model - Modelling Air quality and Chemistry). Work continued on determining national pollutant levels for smog, acid deposition and their precursors as well as for mercury. Environment Canada's observatory in Alert, Nunavut continued to provide new information on Canada’s rapidly changing climate, atmospheric long-range transport of pollutants and ecosystem impacts to Canadians and international partners.
Through the Canada-United States Clean Energy Dialogue, the Department worked closely with the United States to coordinate action on air pollutants, climate change and clean energy technology research, development and deployment. Further discussions on a Particulate Matter (PM) Annex to the Canada-U.S. Air Quality Agreement will be held once both countries have refined their domestic regulatory approaches to managing PM emissions.
In March 2010, the International Maritime Organization decided to adopt the North American Emission Control Area proposed by Canada, the U.S. and France. The Emission Control Area will reduce air pollution from shipping in designated waters off North American coasts.
Environment Canada also continued to support enhanced global cooperative action to address emissions of hydrofluorocarbons (HFCs) through targeted actions under the Montreal Protocol, and committed to work with the U.S. and Mexico to promote the phase down of HFCs, under the Protocol. New regulations for Volatile Organic Compounds (VOC’s) were published in the Canada Gazette, Part II, and another regulation is expected in late 2010.
Intensive negotiations at the 2009 United Nations Climate Conference culminated in the Copenhagen Accord. Canada formally associated itself with the Accord and submitted in January 2010 an economy-wide emissions target for 2020 of 17 percent below 2005 levels, which is aligned with the U.S. target. Canada is continuing to pursue a harmonized approach with the U.S., and to engage in the UN process to negotiate a comprehensive post-2012 agreement based on the Copenhagen Accord. Canada’s engagement in the UN process was complemented by participation in the G-8/G-20, the Major Economies Forum and international clean technology partnerships such as the Asia Pacific Partnership on Clean Development and Climate (APP). Twenty-eight Canadian APP projects received a total commitments totalling over $11 million in 2009, leveraging $77 million in private sector investment. These projects, including the design of green buildings, research in solar and wind power, and the recovery of landfill gas, demonstrated Canada’s commitment to help accelerate the development and deployment of clean technologies as part of the global effort to address climate change.
Lessons Learned: A key lesson learned is the importance of maintaining both ongoing horizontal coordination, within and across departments and other jurisdictions, and the necessary flexibility to direct resources and develop regulations for air pollutants and GHG emissions to respond to changing priorities and circumstances. The collaborative process for developing the proposed air pollutant framework was valuable and will facilitate the eventual implementation of the regulatory approach for air pollutant emissions.
Strategic Outcome 4: Canadians benefit from the responsible development of the Mackenzie gas resources
Description: The Mackenzie Gas Project (MGP) is a proposed $16.2 billion investment in the Northwest Territories (NWT) to develop three “anchor” gas fields, a gas gathering and processing system and a 1,200-kilometre pipeline from Inuvik to the Alberta-NWT border. The pipeline would connect otherwise stranded gas resources in the Mackenzie Delta and Beaufort Sea to markets in the rest of North America. The Government of Canada’s involvement in the project arises from its ownership of petroleum resources in the NWT, responsibility for the regulatory framework in the territory and fiduciary relationship to the Aboriginal groups that will be impacted, if the project proceeds.
Environment Canada has contributed to the Government of Canada’s process to support the MGP within the scope of the Department’s mandate as described in the statutes and regulations that it administers and the policies, agreements and programs for which it is responsible. The Department focuses on its responsibilities under legislation, key national policies (climate change, pollution prevention, biodiversity conservation, emergency preparedness, sustainable development) and other national and international environmental considerations (precautionary principle, conservation of Arctic fauna and flora, Arctic contaminants, regional approaches to cumulative effects management, adaptive management). As a major science department in the federal government, Environment Canada carried out research and monitoring on atmospheric, biological and hydrographic sciences in areas that may potentially be impacted by the proposed project.
Environment Canada’s work under the Strategic Outcome is organized into a single Program Activity:
The following pages contain further performance information about the work that is undertaken to deliver this Program Activity.
Program Activity Summary: This program supports the activities of the Mackenzie Gas Project Office (MGPO) which is responsible for facilitating the legal, operational and regulatory coordination of federal government input to the Mackenzie Gas Project (MGP). The purpose of the Project is to construct a 1,200 kilometre pipeline through the Northwest Territories and Alberta to connect gas resources in Canada’s North to markets in North America.
Key activities under this program include coordinating federal government input to the Joint Review Panel (JRP), a seven-member, independent body responsible for evaluating potential impacts on the environment and the lives of people in the project area; leading federal government interaction and supporting consultations with the project proponents, Aboriginal groups and the governments of the Northwest Territories and Alberta; preparing a Government of Canada response to the December 2009 report from the JRP; facilitating the National Energy Board regulatory process for a timely and accountable regulatory regime for the MGP; developing a fiscal framework to assess areas where the federal government may participate in the MGP; and implementing the Mackenzie Gas Project Impacts Act, specifically administering up to $500 million to support mitigation strategies related to the socio-economic impacts of the Mackenzie Gas Project.
Other federal legislation relevant to this program includes the Canadian Environmental Assessment Act (CEAA); the Mackenzie Valley Resource Management Act (MVRMA); and the Western Arctic (Inuvialuit) Claims Settlement Act and other similar acts and agreements with Aboriginal governments.
Benefits for Canadians: In 2009–2010, Environment Canada played a central role in Government activities to complete the environmental assessment of the MGP in a timely, efficient and effective manner. The Department participated in the completion of the project management plan for its response to the Joint Review Panel report, as well as in the completion of a draft of the Government’s response, including development of preliminary response statements and proposed Aboriginal consultation considerations. As a Responsible Authority under the CEAA and the MVRMA, the Department responded to regulatory and legislative obligations related to the MGP and began preparations for the regulatory phase of project. As well, in conjunction with other Responsible Authorities, the Department initiated development of monitoring and follow-up plans, pursuant to section 38 of the CEAA.
The MGPO implemented the Regional Executive Committee, composed of federal, territorial and northern regulators, responsible for regional decision making to ensure timely resolution of regulatory issues surrounding the MGP. The MGPO also developed a process, in consultation with the Senior Review Sub-Committee (SRSC), to enable the Government to respond to the Joint Review Panel report in a timely fashion. As well, the MGPO led the development of a consultation plan with the Consultation Working Group to enable the Government to undertake consultations with Aboriginal groups, if required, pursuant to the release of the JRP report.
Performance Analysis: Key activities undertaken on the MGP in 2009–2010 included: significant preparatory work in advance of the Joint Review Panel (JRP) report which was received in December 2009; ongoing consultation with affected Aboriginal groups along the proposed pipeline corridor; the continued development and implementation of a regulatory plan to coordinate federal efforts to efficiently respond to approximately 7,000 MGP project activities; projects to gather data to inform decision making; ongoing liaison with MGP stakeholders; and, efforts related to the negotiation of a fiscal support package for the project. Environment Canada, both through its program responsibilities and its responsibility for the MGPO, played a central role in all of these activities.
Owing to delays in the assessment process undertaken by the Joint Review Panel, the MGP has proceeded more slowly than expected. As such, the project did not enter the regulatory review phase.
Lessons Learned: Through its responsibility for the MGPO, the Department played a role in 2009-10 in ensuring the Government was prepared to respond effectively and efficiently to the JRP report. Funding was secured via Budget 2010 so that the Government’s response can be delivered as expected in 2010. The MGPO's role is one of facilitation, and responds to and supports the level of commitment expressed by the private sector proponents of the MGP.
Note: When performance measurement information for the MGP was sought, it was anticipated that by 2009–2010, the environmental phase of the project would be concluded and that it would be proceeding to the regulatory phase. Due to the delay in the release of the JRP report, the environmental phase is not yet complete. Once the environmental phase of the project is complete, the private-sector proponents of the project will make a decision regarding whether to proceed to the regulatory phase of the project. Should the proponents indicate in 2010–2011 that they are prepared to accelerate their project work and proceed to the regulatory phase, federal activity in support of the project could be re-evaluated. Performance measurement information for the MGP is not included in Environment Canada’s 2009–2010 Report on Plans and Priorities. Though project responsibility was transferred from Industry Canada to Environment Canada in late 2008, the integration of the project into Environment Canada was not fully realized until April 1, 2009, too late to be included in the 2009–2010 Report on Plans and Priorities.
Internal Services
The Program Activity description can be found in the Main Estimates online.43
This Program Activity is supported by an Internal Service (IS) Board consisting of representatives from across the Department, including: Management and Oversight Services (Strategic Policy, Science and Technology Policy, Corporate Services, Internal Audit Services, Evaluation Services, Values and Ethics); Communications; Legal Services, Human Resources Management Services; Financial Management Services; Information Management Services; Information Technology Services; Travel and Other Administrative Services; Real Property; Materiel; Acquisitions; as well as from the regions.
Performance Analysis:
The Internal Services policy priorities 2009–2010 supported the policy agenda of Environment Canada and the Government of Canada, while management priorities enabled programs to pursue Environment Canada’s mandate to meet the stewardship and performance requirements of the Management, Resources and Results Structure Policy, the Management Accountability Framework and specific program priorities.
Performance in support of Policy Priorities in 2009–2010:
Policy analysis and coordination capacity supported efforts to develop policy options pertaining to identified government priorities, including climate change and clean air, clean water, and conservation and biodiversity. In 2009–2010, specific contributions included support for activities associated with the Copenhagen Accord, the U.S.-Canada Clean Energy Dialogue, negotiations to amend the Great Lakes Water Quality Agreement and the Canadian Council of Ministers of the Environment Strategic Directions for Water.
The Department also developed the International Engagement Framework to guide its participation in key institutions such as the United Nations Environment Programme, the Organisation for Economic Co-operation and Development, the Global Environment Facility, and the North American Commission for Environmental Cooperation. Environment Canada continued extensive bilateral engagement with the U.S. Opportunities for cooperation were also initiated or continued with trade partners Chile, Peru, India, and the European Union. The Department also launched an International Affairs website to better inform Canadians on its international engagement activities.
Environment Canada is leading the implementation of the Federal Sustainable Development Act. Work is under way on a management framework for the implementation of the Act, and a logic model and performance measurement framework is expected shortly. With respect to the Federal Sustainable Development Strategy, on March 15, a consultation draft was released for the legally mandated 120-day comment and review period. The multi-stakeholder Sustainable Development Advisory Council required by law has been established. The final strategy will be tabled in autumn 2010.
Across Canada, Environment Canada engaged with other jurisdictions, Aboriginal peoples and external stakeholders to advance the Government of Canada's environmental agenda. In 2009–2010, a consultation policy was developed to facilitate effective consultation processes with all stakeholders and meet responsibilities to consult with Aboriginal peoples. As well, a new public website was launched in March 2010 informing Canadians of opportunities to participate in consultation activities. Engagement also included working with provincial and territorial partners through the Canadian Council of Ministers of the Environment and the Canadian Council of Resource Ministers to advance cross-jurisdictional environmental issues, such as municipal wastewater, air emissions and biodiversity.
The Department enhanced its capacity to communicate environmental information through the development of a Corporate Communication Strategy and Communication Management Framework. These strategic tools clarified messaging, particularly with respect to economy and environment linkages, as was evidenced through a revamped Internet presence, social media strategy, as well as speeches, news releases and hundreds of publications and a coordinated exhibit presence across Canada.
Performance in support of Management Priorities in 2009–2010:
The development of revised Strategic Outcomes and a new Program Activity Architecture (PAA) was completed by the Department and approved in May 2009. Coming into effect at the beginning of fiscal year 2010–2011, the revised PAA, along with a full Performance Measurement Framework (PMF), will allow the Department to better explain its programs, expected results and performance to Canadians and Parliamentarians.
Environment Canada focused on improving the way managers plan their staffing activities and introduced innovations in the way in which staffing and recruitment are conducted in order to stabilize the organization and meet the Department’s business needs. The newly developed Term Employment Policy, Staffing Service Standards and Staffing Planning Tool will assist managers in taking a more strategic approach to staffing.
From June 2009 to March 2010, the representation of each of the four designated groups within Environment Canada's workforce (women, Aboriginal peoples, persons with disabilities, and visible minorities) has improved significantly. While visible minorities remain under-represented, the gap has decreased at the departmental level from -127 to ‑67 during this period.
Recruitment and staffing plans were put in place to address succession issues at the EX level. A corporate knowledge transfer initiative was also launched, serving not only to capture key knowledge, but also to build and strengthen the Department's science and policy capacity. Environment Canada ensures, at a minimum, that the equivalent of 1.5 percent of the salary budget is spent on training-related activities. In 2009–2010 the Department spent an additional 12 percent (i.e., for a total of 1.68 percent of salary budget) over this minimum on training-related activities.
Environment Canada produced a comprehensive analysis of the 2008 Public Service Employee Survey (PSES) results at the departmental and branch levels. Consultations held with bargaining agents, employees and senior managers to validate findings resulted in the identification of three departmental priorities:
- Leadership and Direction
- Learning and Development
- Streamlining Business Practices
Actions are currently under way to address these priorities, including the development of learning events through the Environment Canada Managers Network, update of service standards for HR functions, including classification and compensation, launch of a new Performance Management regime for all employees, and development of branch Employee Engagement Strategies.
The Department made progress in 2009–2010 on Internal Control over Financial Reporting (ICFR), establishing the organizational infrastructure, program governance and initiation of several projects. Environment Canada’s system of internal controls was strengthened with the objective of achieving financial statement audit readiness by the set date of 2013–2014. Key accomplishments include the documentation of existing entity, transactional and information technology (IT) controls. Testing of design effectiveness for these controls and key business processes was also completed. Many control deficiencies were addressed and a number of financial business process improvements were implemented in 2009–2010.
With respect to the provision of management information regarding finances made during 2009–2010, the Department now provides, in electronic format, a standard, single source presentation of the departmental financial position at specific points in time. The Management Variance Report, implemented across the Department in 2009, provides all managers with a snapshot of their financial situation and is generally updated weekly. It is also the single source of financial data for internal departmental reporting and has resulted in greater accuracy, timeliness and consistency in financial reporting.
Implementation of Environment Canada’s three-year Information Management and Information Technology (IM & IT) Plan (i.e. the 2009-12 IM & IT Plan) continued, along with enhancement of client engagement to align funding, design process and delivery of IM and IT services and projects to the Department’s Strategic Outcomes.
The IM/IT Portfolio / Client Relationship Management program has matured since its initial implementation in 2008, and continues to enhance client engagement and alignment between departmental and program objectives and delivery of IM and IT products and services. Environment Canada has complementary mechanisms to ensure that both the funding and the design process align IM & IT projects with departmental and program objectives.
Environment Canada’s IM & IT Services advanced in the areas of process standardization and the use of best practices. In addition, processes and procedures are in place for Incident Management, Problem Management, Service Level Management and Financial Management.
The first multi-year departmental Capital Investment Plan was completed. This plan ensures that high priority items are funded and focuses on funding life-cycle management requirements.
Environment Canada has made significant progress promoting effective life-cycle management and Government of Canada “greening government” objectives, including the consideration of energy efficiency as a selection parameter in the end-of-life replacement process. The focus in 2009–2010 was on server virtualization and printer consolidation projects, as well as developing processes and testing the computer systems that will lead to a completely revised Materiel Management Framework and the implementation of a true life-cycle management process and procedures for asset management.
The focus on real property assets in 2009–2010 was the completion of 17 site-specific integrated investment plans, based on facility condition and associated life-cycle management requirements. These plans are used to inform life-cycle investment decisions and minimize risk within the real property asset portfolio.
Environment Canada’s Audit and Evaluation Branch improved the effectiveness and efficiency of departmental policies, programs and management through the completion of 8 internal audit reports, 17 evaluation projects (5 plans and 12 evaluations [presented in 9 reports]), and consultation and liaison services provided on 10 external audit reports conducted by the Office of the Auditor General and the Commissioner of the Environment and Sustainable Development.
The External Audit Advisory Committee and the Departmental Evaluation Committee provided oversight to the internal audit and evaluation functions and advice and support to the Deputy Minister.
Canada’s Economic Action Plan Initiatives44
Announced in Budget 2009, Canada’s Economic Action Plan (CEAP) provided funding to Environment Canada over two fiscal years. In 2009–2010, the Department spent $18.44 million, or 76 percent, of the total funding received ($24.32 million) for the following five distinct initiatives:
- Modernizing Federal Laboratories:
- 2009–2010 Total Authorities - $6.4 million
- 2009–2010 Total Actual Expenditure - $4.425 million
- The Modernizing Federal Laboratories initiative provided Environment Canada with $13.7 million over two years ($6.4 million in 2009–2010) to address deferred maintenance at four laboratories located at: the Canada Centre for Inland Waters (CCIW) in Burlington, Ontario; the National Wildlife Research Centre (NWRC) in Ottawa, Ontario; the Environmental Science and Technology Centre (ESTC) in Ottawa, Ontario; and, the Global Atmosphere Watch (GAW) Observatory in Alert, Nunavut. Environment Canada’s six projects in these four laboratories are in keeping with the objectives of the CEAP and are aimed at providing economic stimulus in the construction, architectural and engineering sectors, as well as helping maintain and further the excellence of Environment Canada’s world-class scientific activities.
- Environment Canada has met all of the objectives as the planned project activities for the current fiscal year were delivered on time and below the initial budget allocation. The work included the replacement of outdated infrastructure, upgrades to existing laboratories and facilities, and the fit-up of unproductive space to meet increased program demand for analytical and research capacity. All six multi-year projects are well underway and are expected to be completed by March 31, 2011.
- Accelerating Federal Contaminated Sites Action Plan:
- 2009–2010 Total Authorities - $2.2 million
- 2009–2010 Total Actual Expenditure - $2.052 million
- This CEAP initiative provides custodians of federal contaminated sites (including Environment Canada) with additional funding to accelerate assessment of whether human health and ecological risks exist and any remediation activities are needed to manage these risks. Environment Canada houses the Secretariat and provides expert support to other government departments and consolidated Crown corporations, and manages sites for which it has responsibility.
- In 2009–2010, funding received ($2.2 million in 2009–2010) was used to complete 40 assessment and 4 remediation projects across the country, including nine provinces and two territories. Environment Canada has met all of the expected results as these projects were delivered on time and within budget.
- Canada’s Environmental Sustainability Indicators (CESI) Initiative
- 2009–2010 Total Authorities - $5.680 million
- 2009–2010 Total Actual Expenditure - $5.203 million
- The CEAP funding allowed Environment Canada to sustain the Government’s reporting on environmental indicators, by supporting the production of indicators for clean air, clean water, greenhouse gases and nature, and by making improvements to the information available on its website. This work fulfills statutory obligations under several Acts and provides better information for policy and regulatory decision-making.
- The CESI website has the most recent indicator results for clean air, clean water, and greenhouse gas emissions. Improvements to the Web content and site include: improved national representation of the water quality indicator; a new indicator on Protected Areas to initiate coverage for the “protecting nature” theme proposed under the Federal Sustainability Development Strategy (FSDS); and improvements to the mapping application, which provides searchable local level information for each indicator. An engagement strategy was developed and implemented. It includes newsletters and stakeholder meetings aimed at promoting understanding and use of the indicators.
- Promoting Energy Development in Canada’s North:
- 2009–2010 Total Authorities - $9.7 million
- 2009–2010 Total Actual Expenditure - $6.5 million
- The CEAP funding allocated to Environment Canada supports the Mackenzie Gas Project Office (MGPO) within Environment Canada. The Department developed a project management plan that provided details regarding the steps that would be undertaken by the Government of Canada in order to respond to the Joint Review Panel (JRP) report (released in December 2009). Moreover, the Department had started coordinating the Government’s response to the report. The funding also enabled the Department to support its obligations related to the federal government’s responsibilities in this project and to complete science and environmental monitoring projects necessary to establish baseline data to support the Department’s regulatory position. The finalization of a regulatory implementation plan would be used by federal, territorial and northern regulators with responsibility for issuing nearly 7,000 permits and authorizations associated with the MGP. Lastly, the funding also helped the development of a consultation plan amongst federal departments that would enable the Government to undertake consultations with Aboriginal communities, as required, in order to complete the Government’s response to the JRP report.
- Arctic Research Infrastructure:
- 2009–2010 Total Authorities - $.34 million
- 2009–2010 Total Actual Expenditure - $.26 million
- Funding was provided mainly to support the development and expansion of Arctic research field camp facilities. More specifically, about 25 percent of the funding in 2009–2010 went to purchasing prefab buildings or supplies for construction of new field labs, with additional spending for installation of plumbing and electrical systems. Additional investments in green technologies were made, including composting toilets and solar power systems. About $30,000 was also spent on the transportation of goods from where they were purchased to the field sites. These investments helped provide a near-term economic stimulus while strengthening the foundation for Environment Canada's Arctic research capacity, thus providing a platform to help improve our understanding of the northern environment and allow monitoring of climate change.