This section would provide a rationale for the development of a federal policy
statement and guidelines on engaging Canadians. This initiative would accord with Canada=s evolving democratic practices; changing
public expectations; heightened interest among research and civil society organizations;
and recent actions by the Government to support and promote effective engagement in the
development of policy and the design and implementation of programs and services.]
Evolving Democratic Practices
- Canada=s system of
parliamentary and representative government has the capacity for both continuity and
change.
- Canadians continue to view their elected representatives as a primary means to convey
their views to governments.
- Canadian democracy includes a strong tradition of civic participation which takes
many forms, from expressing preferences through voting to participating in voluntary
associations.
- Canadians are seeking ways to participate more directly in the development of public
policies, programs and services.
- Consultation and citizen engagement processes, which permit a direct sounding of the
views of citizens and groups, are intended to complement our current democratic
institutions and enrich civic participation.
Changing Public Expectations (based on EKOs "Rethinking Citizen
Engagement", 1998-99)
- Recent public opinion research indicates that in Canada - as in most western
democracies confidence in democratic institutions has declined.
- Specifically, political representatives and institutions are seen to be
insufficiently responsive to the priorities and values of most Canadians.
- Canadians want to be involved in government decision-making:
- 86% say that the government should consult/engage citizens more
- 88% report that they would feel better about government decisions if they knew that
governments regularly sought informed input from average citizens.
- However, there is evidence of disillusionment with the government=s current consultation efforts:
- only 24% agree that the federal government is doing a good job of consulting
Canadians
- 43% say that even when they are consulted, citizens= views have no real impact on government decisions.
- Canadians have clear expectations of government consultation processes and are
willing to take the time to participate when conditions include:
- relevant issues
- representative processes; and
- assured listening.
Recent and Current Federal Actions and Commitments re: Consultation
- existing federal Consultation Guidelines, 1992
- existing departmental consultation policies and guidelines; legislative requirements
- Speech from the Throne commitment to citizen engagement, 1997
- new Memoranda to Cabinet directive (AConsultations
and Perspectives@), 1997
- revised ACabinet Directive on
Law-Making@ (consultation reference),
1999
- ASocial Union Framework Agreement@ (SUFA) and commitment to engage Canadians,
1999
- 1999 annual report of the Commissioner of the Environment and Sustainable Development
(chapter 2, ASustainable Development
Strategy Consultations@ and the
Government=s response)
- development of an evaluation framework for consultation (in progress by TBS, 1999 -
2000)
- renewed commitment and support to the voluntary sector through the establishment of a
AVoluntary Sector Task Force@.
- renewed emphasis on consultation training and development (PSC/CCMD)
- global context: e.g. Canada=s
participation in an OECD study on AStrengthening
Government-Citizen Connections@, 1999 -
2000
2.0 Scope and Parameters
[This section would define the key terminology and general range of activities and
circumstances encompassed by the new policy statement and guidelines. It would provide a
definition of consultation/citizen engagement as well as parameters (e.g. from structured
consultation to public dialogue to shared decision-making to citizen-led initiatives).
Definition
[To be developed.]
Parameters
[To be developed.]
3.0 Federal Commitment
[This section would express the Government of Canada
s commitment
to effective and meaningful consultation/engagement in the following terms: a visionary
declaration of commitment; objectives and guiding principles; application; and a statement
of roles and responsibilities regarding its implementation.]
Proposed Federal Commitment
The Government of Canada is committed to promoting and supporting the engagement of
Canadians in the development of public policy and the design and implementation of
programs and services, and to encouraging the ongoing improvement of decision-making
through public involvement .
Objectives
This commitment is intended to result in:
- policies and programs that are responsive to public priorities, needs and concerns;
- well-informed, sound and broadly accepted decisions;
- accountability to decision-makers and the public;
- ongoing improvement of federal consultation processes;
- enhanced understanding of the government=s
decision-making and policy-formulation processes; and
- increased confidence in federal institutions.
Principles
The following principles will guide the planning, implementation and evaluation of
federal consultation/engagement processes:
- integral to public policy development and decision-making;
- shared understanding of purpose;
- consultation approaches appropriate to circumstances;
- openness, mutual respect and transparency;
- inclusiveness;
- equitable access to participation;
- reasonable time frames;
- factual, timely, accessible and relevant information;
- flexibility;
- coordination (of federal horizontal issues and between orders of government);
- assured listening; and
- demonstrated effectiveness.
Application
These guidelines would be intended to provide overall direction for
consultation/citizen engagement exercises conducted by all federal departments and
agencies. They complement, but not replace, existing legislation or sector-specific
requirements (e.g.
, (1999).]
Roles and Responsibilities
The responsibility for promoting, supporting and implementing the guidelines would
be shared by:
- Ministers
- deputy heads
- central agencies
- federal departments and agencies; and
- federal regional councils and offices.
4.0 Social Union Framework Agreement (SUFA)
[Addresses the implications of the Social Union Framework for the participation of
Canadians.]
Commitment
The February 1999 Social Union Framework Agreement includes a commitment to ensure
effective mechanisms for Canadians to participate in developing social priorities and
reviewing outcomes.
Appropriate Processes for Joint Initiatives
For joint initiatives involving the federal, provincial and territorial
governments, meeting this commitment requires that appropriate processes are in place in
the policy sectors covered by the Agreement. In developing or adjusting such processes,
attention should be paid to the need for:
collaboration:
- setting objectives for consultation/engagement exercises;
- developing modalities of citizen involvement
- preparation of documents; and
- assessment of results/preparation of reports.
sufficient time:
- to develop the objectives and modalities of exercise;
- for the preparation of documents; and
- to seek political direction at various stages of exercise.
flexibility:
- to adjust to changes in circumstances and timing; and
- in accommodating existing processes in each jurisdiction.
Appropriate Processes for Federally-Sponsored Initiatives
For initiatives sponsored by the federal government alone, meeting the SUFA
commitment requires that appropriate processes are in place to allow Canadians to
participate in the development of social priorities and review outcomes. In so doing,
federal departments and agencies should respect the guidelines presented in this document
and also take account of relevant processes for related policies and programs that are
sponsored jointly or by provincial governments on their own. Depending on circumstances,
this would include:
- informing provincial and territorial counterparts of federal intentions;
- consulting on consultation plans - e.g. timing and nature of process, participants;
- coordinating respective consultation exercises; and
- sharing information and conclusions from respective
5.0 Annexes
Development Process
Development Process [Development Process Development Process
Description of the process for the development of these guidelines (e.g. participants,
time frame, etc.)]
Intervener/Participant Funding
[A proposed baseline approach to participant funding based on current TBS expense
guidelines for public servants and existing departmental policies and guidelines. The
proposed approach allows for adaptation by departments to accommodate their unique
circumstances and requirements.]
Evaluation Framework
[Reference to the current work of the TBS to develop, in collaboration with
departmental representatives, an evaluation framework for federal consultation processes.]
Consultation Mechanisms/Case Studies
[Description of a range of consultation/citizen engagement mechanisms.]
References/Bibliography
[List of key documents researched and/or reflected in the policy and guidelines.]
