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Minister’s Message

As Minister of Public Safety, I am proud to submit to Parliament this report on the Department’s accomplishments for 2009-10.

Public Safety Canada’s mandate is both diverse and complex. The Department delivers programs and develops policy on a wide range of public safety issues while exercising a broad leadership role that brings coherence to the activities of the agencies responsible for public safety and security. This mandate is reflected in Public Safety Canada’s strategic outcome: a safe and resilient Canada.

The Department plays a key role in helping keep Canadians safe and secure by working to protect Canada’s national security; making sure that we are prepared to respond to and recover from any major incident; and developing effective approaches to federal law enforcement, corrections, crime prevention and management of our nation’s borders. As these efforts span across a wide range of public safety issues, the Department works closely with Public Safety Portfolio partners, other government departments, Provinces and Territories, international allies, first responders, and the private sector to achieve results for Canadians.

Canadians can take pride in Public Safety Canada’s many achievements over the past year. The Department released a critical infrastructure strategy; responded to the H1N1 epidemic and the earthquake in Haiti; supported the Royal Canadian Mounted Police as well as provincial and municipal partners during the 2010 Olympic and Paralympic Winter Games; and developed a bilateral framework agreement to govern integrated cross-border maritime law enforcement operations, more commonly known as ‘Shiprider’. During
2009-10, Public Safety Canada also helped develop policy positions in support of the Government of Canada’s mission in Afghanistan.

Detailed information on these achievements and additional departmental accomplishments are provided in this Performance Report. I am confident that Public Safety Canada will build on its successes and the lessons learned in this past year to continue working towards a safer and more resilient Canada in the year to come.

 

SECTION I: Departmental Overview

1.1 Roles and Responsibilities

Public Safety Canada plays a key role in discharging the Government’s fundamental responsibility for the safety and security of its citizens. The Department of Public Safety and Emergency Preparedness Act 2005 and the Emergency Management Act 2007 set out two essential roles for the Department: support the Minister in his or her responsibility for all matters, except those assigned to another federal minister, related to public safety and emergency management, including national leadership; coordinating the efforts of Public Safety’s Portfolio agencies (outlined below); and providing guidance on their strategic priorities.

The Department provides strategic policy advice and support to the Minister of Public Safety on a range of issues, including: national security; emergency management; law enforcement; border management; corrections; and crime prevention. The Department also delivers a number of grant and contribution programs related to emergency management and community safety. Over 60 per cent of the Department’s budget is spent on grants and contributions.

1.2 Operations across Canada and Internationally

The Public Safety Portfolio encompasses nine distinct organizations which directly contribute to the safety and security of Canadians. While Portfolio agencies deliver public security operations according to their distinct mandates, Public Safety Canada, in its Portfolio coordination role, brings strategic focus to the overall safety and security agenda.

Public Safety Portfolio

• Public Safety Canada (PS)
• Canada Border Services Agency (CBSA)
• Canadian Security Intelligence Service (CSIS)
• Correctional Service Canada (CSC)
• National Parole Board (NPB)
• Royal Canadian Mounted Police (RCMP)
• RCMP External Review Committee (ERC)
• Commission for Public Complaints Against the RCMP (CPC)
• Office of the Correctional Investigator (OCI)

Public Safety Canada is structurally organised into five branches: Emergency Management and National Security, Community Safety and Partnerships, Law Enforcement and Policing, Strategic Policy, and Corporate Management. The Branches are supported by the Communications Directorate and the Legal Services Unit. The Department has a Chief Audit Executive. Also situated within Public Safety Canada is the Office of the Inspector General of CSIS, which carries out independent reviews of CSIS’ compliance with the law, ministerial direction and operational policy.

The Department has regional offices in all Provinces, as well as in the Northwest Territories and Yukon. These offices have a particular focus on emergency management, Aboriginal policing and the delivery of crime prevention programs. The Department also has representation in Washington, D.C. and London, England.

1.3 Strategic Outcome and Program Activity Architecture

In 2009-10, the Department continued its efforts toward achieving a safe and resilient Canada. This strategic outcome reflects Public Safety Canada’s central leadership role as established in legislation. The Department’s program activities below reflect the breadth of its mandate.

The performance measures and indicators found in this document originated from the Department’s draft Performance Measurement Framework (PMF). As only the initial draft framework was completed at the time of publishing, a number of performance indicators listed lack specific targets due to the absence of baseline data. Further, some performance indicators have since been modified to better reflect the Department’s activities and to allow for enhanced performance measurement.

1.4 Contribution of Priorities to the Strategic Outcome

This section describes the Department’s progress in meeting its priorities for 2009-10. Public Safety Canada directed its efforts toward five key priorities, two management priorities, two shared priorities and three ongoing priorities:

Key Priorities

Key Priorities	Type	Status*
1. Develop a whole-of-government approach to Cyber Security	New	Mostly met
Corresponding Program Activities: National Security, Emergency Management
The Cyber Security Strategy was under development and near completion as of March 31, 2010. The strategy was developed in partnership with other government departments and agencies, and in consultation with domestic and international stakeholders. The strategy will address the enhancement of Canada’s capacity to detect, deter, predict and defend against cyber threats. It will establish a framework for strengthening the resiliency of Canada's cyber systems against attacks and disruptions. Its implementation will enable all levels of government and industry partners to better manage cyber security risks. Recognizing that cyber security is a horizontal initiative, the Department exercises leadership by working with all levels of government, other government agencies, private sector partners and international allies to implement the Cyber Security Strategy beginning in 2010-11.
2. Establish networks to share information and manage risks in each of the ten critical infrastructure sectors	New	Mostly met
Corresponding Program Activity: Emergency Management
Sector networks were established for eight of the ten critical infrastructure sectors; the health and water sector networks will be established in collaboration with Provincial and Territorial partners. These sector networks facilitate continuous dialogue among governments and industry partners on risks and threats to Canada's vital assets and systems. The sector networks are the building blocks for public-private sector collaboration to strengthen the resiliency of Canada's critical infrastructure, including pipelines, financial systems, electricity grids and bridges. In addition to promoting direct coordination among the critical infrastructure community, these sector networks provide a national framework that improves risk management and resiliency within and across the ten sectors.
3. In collaboration with the RCMP, Treasury Board Secretariat and others, develop proposals for government consideration to strengthen RCMP governance and accountability, including modernizing the RCMP review and complaints body	New	Mostly met
Corresponding Program Activity: Law Enforcement
In response to recommendations from the 2007 report of the Task Force on Governance and Cultural Change in the RCMP, the Department has led efforts with the RCMP, other federal partners as well as Provinces and Territories to modernize the management, governance and accountability of the RCMP. Announced as part of Budget 2010, this initiative received $8M over two years to establish a new review and complaints body for the RCMP. Once enabling legislation is passed, the new body will have enhanced legislative powers; increased harmonization and integration of police review and complaint processes (reflecting interests expressed by Provinces and Territories); as well as increased transparency and accountability of serious incident investigations involving RCMP members. As part of improving the governance process, the RCMP Reform Implementation Council was established in March 2008 to provide advice to the RCMP Commissioner and the Minister of Public Safety on the reforms being made and to report regularly to the Minister on progress. Its mandate and membership were renewed until December 2010.
4. By 2012, negotiate and renew police service agreements with eight provinces, three territories and 180 municipalities for provision of policing by the RCMP	New	Mostly met
Corresponding Program Activity: Law Enforcement
In 2007-08, Public Safety Canada received a mandate from the Government to negotiate and renew police service agreements with eight provinces, three territories and 180 municipalities for the provision of policing by the RCMP. Current agreements expire on March 31, 2012. Negotiations to renew the police service agreements continued in 2009-10. Specifically, in collaboration with the RCMP, the Department developed position papers on key negotiation issues (i.e. health care benefits, accommodation and cost sharing depot training) and continued to develop an Agreement in Principle to present to contract jurisdictions in 2010-11. During 2009-10, the Contract Advisory Committee, which consists of representatives from all the Provinces and Territories who contract with the RCMP, met six times to advance the negotiations.
5. Develop options to strengthen legislation related to community safety, such as the Sex Offender Information Registration Act and the Corrections and Conditional Release Act	New	Met all
Corresponding Program Activity: Corrections
In 2009-10, the Department led the development of policy options and key legislative amendments for consideration by Cabinet and in turn the Government tabled amendments to the Sex Offender Information Registration Act and the Corrections and Conditional Release Act. The introduction of these legislative amendments contributed to the Government's commitments to strengthening community safety. Prior to the drafting of legislation, the Department led consultations with a Federal-Provincial-Territorial (FPT) working group regarding proposals to strengthen the effectiveness of the National Sex Offender Registry. The results of these consultations were reflected in the amendments subsequently tabled in Parliament on March 17, 2010.

*Each priority has been assessed based on the following five ratings: Exceeded (more than 100 per cent of the expected level of performance for the priority was achieved); Met all (100 per cent of the expected level of performance for the priority was achieved); Mostly met (80 to 99 per cent of the expected level of performance for the priority was achieved); Somewhat met (60 to 79 per cent of the expected level of performance for the priority was achieved); and Not met (less than 60 per cent of the expected level of performance for the priority was achieved).

Management Priorities

Management Priorities	Type	Status*
1. Improve Management Accountability Framework assessment results related to Internal Audit, Evaluation, Management of Security and Business Continuity and Quality Reporting to Parliament	New	Somewhat met
Corresponding Program Activity: Internal Services
The Department made significant progress in the “Quality of Reporting to Parliament” Area of Management (AoM) by achieving an "acceptable" rating in its round VII Management Accountability Framework (MAF) assessment. The Department also made notable improvements in specific lines of evidence under the Internal Audit and Evaluation AoMs; nevertheless both retained "opportunity for improvement" ratings. On the “Management of Security and Business Continuity” AoM the Department maintained a rating of "opportunity for improvement”.
2. Address the Public Service Employee Survey results and develop an action plan	New	Mostly met
Corresponding Program Activity: Internal Services
In 2009-10, the Department worked to address the people management issues raised in the 2008 Public Service Employee Survey (PSES) that mattered most to employees. The Department nominated a PSES Champion to lead the response efforts on specific challenges and to build on the positive areas identified in the survey. Other specific initiatives included holding the first policy retreat for Public Safety Canada, holding the first town hall meeting and creating a number of networks to increase employee participation in departmental business. Ultimately, these initiatives aimed to strengthen employee engagement, innovation, knowledge and skills.

Public Safety Canada also supported whole-of-government efforts with the following priorities:

Shared Priorities

Shared Priorities	Type	Status
Support Canada’s development and reconstruction efforts in Afghanistan	New	Mostly met
Corresponding Program Activity: National Security
The Department contributed to Canada’s development and reconstruction efforts in Afghanistan through the development of policy positions and operational plans concerning an array of issues, including the achievement of Canada's priorities relating to the training and mentoring of Afghan National Police in and around Kandahar City, corrections personnel at Sarposa Prison in Kandahar City, as well as customs officers at the National Customs Academy based in Kabul. Moreover, the Department has also played an active role in policy and operational discussions surrounding the planned Canadian Forces withdrawal from Kandahar Province in 2011. Furthermore, efforts are ongoing to provide relevant and timely policy advice to senior management on emerging security issues in Afghanistan given the ever-changing threat environment. As Canada's engagement in Afghanistan transitions to a primarily civilian effort in 2011, intelligence support will adapt accordingly.
Support partners in safety and security matters related to the 2010 Olympic Winter Games	New	Met all
Corresponding Program Activities: National Security, Emergency Management, Law Enforcement
Public Safety Canada’s role in international events is a major activity that promotes the security of Canadians. To support partners in safety and security matters related to the 2010 Olympic Winter Games, the Department exercised its leadership by ensuring that the Government was prepared to manage emergencies and could provide assistance to provincial authorities, if required. Public Safety Canada provided the RCMP with policy support and advice on security related issues resulting from the implementation of the security operational plan. The Department also played a significant role in leading and coordinating public affairs related to public safety and security issues with all levels of government and private sector partners. Also, the Department coordinated a series of exercises to confirm that federal, provincial, regional, and municipal organizations were prepared for emergencies. During the Olympics, timely reports and information were provided to senior officials, to keep them informed of evolving events related to the safety and security of the Games. The Department worked with other government departments and agencies to facilitate the deployment of a Shiprider pilot project to secure the maritime waters between Vancouver and Washington State (straights of Juan de Fuca) throughout the Olympic and Paralympic Games.

In addition to the above-mentioned priorities, the Department also delivered on the following key priorities previously identified in 2008-09.

Ongoing Priorities

Ongoing Priorities	Type	Status
Strengthen Canada’s national security framework	Ongoing	Mostly met
Corresponding Program Activity: National Security
Public Safety Canada has achieved significant progress towards strengthening Canada’s national security framework. The Department explored the development of a mechanism to review national security activities involving more than one security agency, or inter-agency review. This mechanism is designed to help ensure that Canada’s national security activities are conducted in a manner consistent with democratic values and the rule of law. However, due to its complexity, efforts to establish this mechanism remain unfinished. Also, a number of policy and legislative files were advanced, including lawful access and the provision of a civil right of action for victims of terrorism. In addition, the Department worked proactively to prepare the Government’s response to the Air India Inquiry and the Public Safety Portfolio’s approach was coordinated to manage security certificate cases. A mechanism was developed to review foreign investments that could be injurious to national security. In addition, Public Safety Canada has cooperated with the international community on a variety of issues such as countering violent extremism, combating terrorist financing and counter-proliferation to advance Canada’s national security interests. In partnership with the Privy Council Office, an Assistant Deputy Minister Committee was created to improve the coordination of the security and intelligence community in responding to operational issues involving national security.
Implement evidence-based interventions in communities to prevent youth from joining gangs and support their exiting from gangs	Ongoing	Met all
Corresponding Program Activity: Crime Prevention
All funding available under the Youth Gang Prevention Fund (YGPF) was fully committed; all 19 projects were based on a model or promising program, or contained elements promoted in recent and relevant research. The youth violent crime rate in Canada has increased over the last 10 years, but through the YGPF, approximately 1,400 youth at risk were reached. The Department continues to support communities through crime prevention projects dedicated to preventing at risk youth and youth from joining gangs and assisting youth already involved in gangs.
Develop a Canadian Strategy for enhanced border management, including the development of new and effective border and cross-border law enforcement initiatives	Ongoing	Mostly met
Corresponding Program Activity: Border Management
In 2009-10, the Department developed a framework agreement to govern integrated cross-border maritime law enforcement (known as Shiprider), with legislation introduced in Parliament in the fall 2009 – Keeping Canadians Safe (Protecting Borders) Act. This legislation died on the order paper with prorogation. It is expected that similar legislation will be reintroduced and if passed by Parliament, its coming into force will permit specially designated Canadian and American law enforcement personnel to jointly work on marine law enforcement vessels in boundary waters. Collaboratively, these officers will be authorized to enforce the law on both sides of the border to help ensure that criminal organizations no longer exploit shared waterways. Additionally, Public Safety Canada worked with the RCMP and CBSA to advance options for a joint border patrol pilot project in the Province of Quebec to patrol unguarded roads and marine crossings between Canada and the U.S. Over the reporting period, the Department worked with portfolio agencies and other government departments on a Canadian strategy and coordinated closely with the U.S. government to develop a joint Canada-U.S. strategy for enhanced security and border management. By March 31, 2010 the Department was working towards the final stages of its completion. A shared vision for security and border management, one that aims to mitigate threats at the earliest point possible, will help to prevent threats from materializing in Canada.

1.5 Summary of Performance

The table below provides a summary of the Department’s overall performance, linking each program activity’s performance to a key departmental priority set out for 2009-10. The following tables depict Public Safety Canada’s total financial resources, total authorities and actual spending for the 2009-10 fiscal year, in addition to information on human resources.

Strategic outcome: A safe and resilient Canada

Program Activity	Expected Result	Link to Priority
National Security	Canada has a strong national security policy and legislative capacity	1
Emergency Management	Canadians are protected from all hazards (natural, technological and human induced) and Canada’s critical infrastructure is resilient	1, 2
Law Enforcement	Canada has safe communities and effective policing	3, 4
Corrections	There is safe and effective reintegration of eligible offenders into Canadian communities Aboriginal communities have the knowledge and skills necessary to assume responsibility for corrections and healing	5
Crime Prevention	There is reduced offending among targeted populations (youth at risk and high-risk repeat offenders)	Ongoing
Border Management	Borders are efficient and secure, facilitating legitimate trade and travel	Ongoing
Interoperability	Information regarding public safety and security objectives is shared in an integrated and timely manner	Ongoing

Detailed performance information on each Program Activity is available in Section II of this report. The Department’s eighth program activity, Internal Services, is based on a standard established by the Treasury Board Secretariat (TBS). As performance measures for Internal Services are under development, the 2009-10 Report on Plans and Priorities did not include any performance expectations.

2009-10 Financial Resources ($ 000’s)

Planned Spending	Total Authorities	Actual Spending
425,974.0	443,235.7	395,773.1

2009-10 Human Resources (FTEs) ^[1]

Planned	Actual	Difference
1,092	1,075	17

 

($000’s)

Program Activity	2008-09 Actual Spending	2009-10				Alignment to Government of Canada Outcomes[2]
		Main Estimates	Planned Spending	Total Authorities	Actual Spending
National Security	9,025.8	4,995.5	7,025.5	7,665.9	6,722.2	A safe and secure Canada Safe and secure world through international cooperation
Emergency Management	208,909.8	169,823.9	169,603.4	157,129.4	154,963.9	A safe and secure Canada Safe and secure world through international cooperation
Law Enforcement	114,600.2	124,897.9	126,412.0	135,725.6	118,454.6	A safe and secure Canada
Corrections	9,844.5	7,632.3	7,411.4	7,568.7	7,572.7	A safe and secure Canada
Crime Prevention	33,429.1	64,434.6	64,434.7	63,034.7	40,944.9	A safe and secure Canada
Border Management	3,544.8	2,093.3	2,093.4	2,206.7	1,971.2	A safe and secure Canada Safe and secure world through international cooperation A strong and mutually beneficial North American Partnership
Interoperability	12,476.9	3,456.8	3,456.9	3,831.0	3,749.6	A safe and secure Canada
Internal Services*	N/A	44,752.1	45,536.7	66,073.7	61,394.1
Total	391,831.1	422,086.4	425,974.0	443,235.7	395,773.1
Less: Non-respendable revenue**	(15,612.0)	N/A	(2,400.0)	N/A	(9,140.8)
Plus: Cost of services received without charge***	16,097.2	N/A	17,205.4	N/A	17,714.0
Total Departmental Spending	392,316.3	422,086.4	440,779.4	443,235.7	404,346.3

Details may not add to totals due to rounding.

* Commencing in the 2009-10 Estimates cycle, the resources for the Internal Services program activity are displayed separately from other program activities; they are no longer distributed among the remaining program activities, as was the case in previous Main Estimates. This has affected the comparability of spending and FTE information by program activity between fiscal years.

** Non-respendable Revenue includes proceeds from gains on exchange, access to information requests, parking fee reimbursements and other miscellaneous revenues.

*** Cost of services received without charge includes accommodation provided by Public Works and Government Services Canada (PWGSC), the employer's share of employees' insurance premiums and expenditures paid by TBS, Workers' Compensation coverage provided by Human Resources and Skills Development Canada, and services provided by the Department of Justice.

1.6 Expenditure Profile

Actual spending for 2009-10 was $395.8M. Over the past three years, the spending trend for the Department has been increasing with noted 13% and 15% increases in each of 2007-08 and 2008-09 respectively. This increased trend in spending is mostly attributed to year-over-year fluctuations in payments under the Disaster Financial Assistance Arrangements (DFAA) as well as to the approval of funding for new initiatives, such as the Communities At Risk, Child Sexual Exploitation and Human Trafficking, and the International Association of Fire Fighters Canada. Similarly, the funding requirements in support of the security costs associated with Canada’s hosting of international events, such as the North American Leaders’ Summit held in Montebello, the Francophone Summit and President Obama’s visit, all contributed to the Department’s increase in spending.

The growth experienced in previous years (2006-07 to 2008-09) was reduced down to one per cent in 2009-10 with spending maintained at $395.8M. Please refer to the “Voted and Statutory Items” section for further details and explanations of the variances.

The planned growth in spending of $175.8M being forecasted for the 2010-11 fiscal year is mainly attributed to the following:          

• additional funding for the 2010 G8 & G20 included in the Planned Spending ($113.1M);
• anticipated funding in support of Lawful Access ($2.0M)
• budget transfers to the RCMP for the First Nations Policing Policy (FNPP) made through Supplementary Estimates in 2009-10 ($40.4M); and
• lapse under the National Crime Prevention Strategy (NCPS) in 2009-10 ($19.7M).

The decrease in planned spending for 2011-12 of $156.8M is mostly attributed to comparative adjustments in funding approvals for various initiatives:

• reduction for security costs related to the 2010 G8 & G20 Summits ($128.7M);
• reduction for funding provided for short-term sustainability of First Nation Policing Agreements and the comprehensive review of the FNPP ($17.1M);  
• reduction for funding provided for the prevention of youth gangs under the NCPS ($7.4M); and
• net reduction of funding for emergency management capacity ($4.3M).

These charts illustrate the Department's spending trend over a six-year period based on four years of actual spending and two years of planned spending.^[3]

The 2009-10 departmental lapse of $47.5M includes $18.4M of funding that has been reprofiled to 2010-11 for key government initiatives: Critical Policing Infrastructure for First Nation Policing services; Repatriation of Canadian Evacuees from Haiti; and the 2010 G8 & G20 Summits. The $29.1M adjusted lapse for 2009-10 is comparable to the $31M lapse in 2008-09.

1.7 Voted and Statutory Items

($000’s)

Vote # or Statutory Item (S)	Truncated Vote or Statutory Wording	($000’s)
		2007-08	2008-09	2009-10
		Actual Spending	Actual Spending	Main Estimates	Actual Spending
1	Operating expenditures	150,977	141,729	137,410	135,054
5	Grants and contributions	177,333	237,454	271,363	245,505
(S)	Contributions to employee benefit plans	11,522	12,572	13,235	15,137
(S)	Minister of Public Safety—Salary and motor car allowance	74	77	78	78
Total		339,906	391,831	422,086	395,773

 Details may not add to totals due to rounding.

Vote 1 actual spending decreased by $6.7M (4.7%) between 2008-09 and 2009-10 primarily due to reductions in funding levels for Secret Communications Interoperability Project ($7.3M), and Advertising Initiative ($2.5M) which resulted in comparable reductions in spending.

Vote 5 actual spending increased by $8.1M (3.4%) between 2008-09 and 2009-10 primarily due to:

• contribution payments ($11.5M) made under the FNPP due to additional funding received for Critical Policing Infrastructure (Budget 2009);
• contribution payments ($7.6M) under the Security Cost Framework Policy for planning and operations of the 2010 Muskoka G8 and G20 Summits. Additional funding was provided to offset this requirement; and
• contribution payments ($1.4M) for the Child Sexual Exploitation and Human Trafficking. (Previously reported under the Policy Development Contribution Program in 2008-09).

Decreases in payments made under the DFAA ($20.6M) were primarily due to a lower anticipated requirement for transfer of funding to Provinces and Territories for assistance resulting from natural disasters.

1.8 Risk Analysis

Public Safety Canada has a broad mandate that includes leadership at the national level over matters pertaining to public safety and emergency preparedness. This requires the Department to work with virtually all federal departments and agencies, Provinces and Territories, international partners, the private sector and first responders. As such, the effectiveness of these relationships impacts the work of the entire Department and is key not only to the successful advancement of the Department’s policy and program agenda, but also to the achievement of its strategic outcome, a safe and resilient Canada.

In order to gauge the effectiveness of its leadership role, the Department is adopting an integrated approach that identifies shared outcomes within the Public Safety Portfolio, which would ultimately result in horizontal performance measures that can assess the collective performance of the Public Safety portfolio. Through the use of horizontal performance measures, the Department can illustrate the effectiveness of its leadership and coordination efforts. Using such indicators will also support the Department in its priority setting function as it can assess its broad performance towards a safe and resilient Canada.   

Public Safety Canada also monitors and responds to a range of risks that can threaten the security of Canadians, such as national security threats and natural disasters. The Department addresses these risks primarily through its National Security and Emergency Management program activities. Work has been done to ensure that Canada is able to respond according to identified risks. Safety and security risks are also addressed through the Law Enforcement, Crime Prevention, Border Management and Interoperability program activities.

Internally, the Department improved its management tools to ensure that its internal management functions (i.e. Internal Services) adequately support the development of departmental policies and programs. In particular, the Department sought to improve decision-making based on the Management Accountability Framework, focusing on its risk management and corporate evaluation functions. Further information on these efforts is included in the Internal Services section of this report.

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