2.2 Social Development

Transcription

1 PERFORMANCE MEASUREMENT STRATEGY 2.2 Social Development Income Assistance National Child Benefit Assisted Living First Nations Child and Family Services Family Violence Prevention Strategic Outcome: The People Approval Date: April 25, 2014 Sector: Education and Social Development Programs and Partnerships Performance Measurement (PM) Strategies are required by Treasury Board Secretariat s (TBS) Policy on Transfer Payments (updated 2012) and Policy on Evaluation (updated 2012). PM Strategies support program planning, monitoring and reporting through the identification and collection of key performance indicators that provide information for ongoing program management and decision making and that can inform evaluation activities over time. f

2 1.0 INTRODUCTION This Performance Measurement (PM) Strategy has been developed for the Social Development Program (2.2) at Aboriginal Affairs and Northern Development Canada (AANDC). Social Development includes five sub-programs and their expected results are: Income Assistance (2.2.1): Improved participation in, and attachment to, the workforce National Child Benefit (2.2.2): Reduction in the incidence, depth, and effects of child poverty Assisted Living (2.2.3): In-home, group-home and institutional care supports are accessible to low-income individuals, to help maintain their independence for as long as possible First Nations Child and Family Services (2.2.4): First Nation children ordinarily resident on reserve are more secure and benefit from more stable environments Family Violence Prevention (2.2.5): Women, children and families living on reserve are more safe and secure These five sub-programs collectively support the Social Development Program (2.2) with the expected result of: First Nations men, women and children are active participants in social development within their communities. This Program supports the People Strategic Outcome articulated in the Program Alignment Architecture (PAA)/Performance Measurement Framework (PMF): Individual, family and community well-being for First Nations and Inuit. 2.0 PROFILE 2.1 Program Description The Social Development Program contributes to The People Strategic Outcome by funding five social sub-programs that assist First Nation individuals and communities to become more selfsufficient; protect individuals and families at risk of violence; provide prevention supports which allow individuals and families to better care for their children; and support greater participation in the labour market. The Program assists First Nation men, women, and children to achieve greater independence and self-sufficiency in First Nation communities across Canada by providing funds to First Nations, First Nation organizations, provinces, and others that provide individual and family services to on reserve residents (and Yukon First Nation residents). These services help First Nation communities to meet basic and special needs; support employability and an attachment to the workforce; and support the safety of individuals and families. Through these five social sub-programs, First Nations are better able to advance their own development; leverage opportunities; and actively contribute to the broader Canadian economy and society. 2

3 The five sub-programs are: 1. INCOME ASSISTANCE (2.2.1) Description: The Income Assistance (IA) sub-program provides funding to First Nations, First Nation organizations, and the province of Ontario (under the 1965 agreement) to assist eligible individuals and families living on reserve who are in financial need. This sub-program funds basic and special needs in alignment with the rates and eligibility criteria of reference provinces or territories. The sub-program also funds the delivery of pre-employment services designed to help clients and dependants transition to and remain in the workforce. The IA sub-program has four main components: basic needs, special needs, pre-employment supports, and service delivery. The expected result of the IA sub-program is an improved quality of life through the reduction of poverty and hardship on reserve, as well as improved participation in, and attachment to the workforce. Target Populations: Men and women who are ordinarily resident on reserve in the ten (10) provinces and Yukon Territory, who are between 18 (or 19) and 64 and who can demonstrate that they have exhausted all sources of income; and year old men and women, who require less than one (1) year of training to be job ready, for mandatory participation in active (pre-employment) measures 1 Context: The federal government's policy of aligning IA delivery for First Nations with that of provinces was originally approved in In , the government invested more than $860 million in IA support payments and affiliated services to assist more than 161,000 clients and dependants on reserve. This represents an increase in expenditures of approximately $200 million over the past decade. The IA dependency rate 2 has been relatively stable over the past few decades at 35% of the on reserve population; however, in some communities, this rate is more than 80%. 3 Design and Delivery: At present, IA is available in 551 First Nation Communities. 4 There is no single delivery model for IA. Generally, AANDC provides funding to single First Nation Communities to deliver IA programming and services to community members, which design their own programming and delivery based on AANDC oversight. A number of Tribal Councils and First Nation 1 Active Measures is defined as the supports designed to help individuals increase their employability so they can join and stay attached to the labour market. 2 The number of people on IA compared to the on reserve population. 3 Source: AANDC program data. 4 This figure does not include First Nations functioning under self-government arrangements, which administer their own social assistance program. Numbers may change if a First Nation organization does not have any clients. 3

4 organizations are also involved in the delivery of some or all parts of the IA sub-program to their First Nation community members. The following examples, highlights some of the different delivery models currently in place. For example, Sto:lo Nation, a tribal council in BC, delivers the whole of programming to its First Nation community members, and in Alberta, Maskwacis Employment Centre provides only pre-employment services to First Nation community members; in the Yukon Territory, IA sub-program is delivered directly to individuals by the AANDC Yukon regional office; and in Ontario, the funding and oversight of IA is delegated to the Province of Ontario, 5 and is mainly delivered by single First Nations (this structure of delivery mirrors the municipal-type of delivery in Ontario). Individuals who apply for IA are first assessed to determine basic eligibility (e.g., age, number of dependants, assets, and income) and benefits they are entitled to, according to the criteria of their province or territory. With respect to access to the pre-employment component of the subprogram, in most communities individuals are currently not case managed beyond the intake process. In most communities, individuals who are eligible to receive IA benefits and preemployment services do not receive the personalized supports to identify and address the individuals barriers to employment. Over the years, several pilot projects were funded to improve the IA sub-program, with a focus to increase access to active (pre-employment) measures and the providers capacity to deliver pre-employment measures. However, in 2013, a more comprehensive approach to reform the sub-program was approved. In the Economic Action Plan 2013, the Government of Canada announced a new investment of $241 million over four years to help support IA clients and dependants, aged 18-24, access a range of supports and services to help them enter and remain in the job market. This initiative is led by two departments: AANDC and Employment and Social Development Canada (ESDC). 6 Each department manages one of the two new components of the sub-program. AANDC manages the Enhanced Service Delivery (ESD) component, which provides $132 million to support IA providers in identifying obstacles to employment, determining training and service needs, developing individual case plans to assist individuals to enter the job market, and referring participants to appropriate organizations to complete their case plan. ESDC manages the First Nations Job Fund, which provides $109 million to support a range of personalized interventions, including skills assessments, training, job coaching, and a number of other training supports. This funding is delivered by the Aboriginal Skills and Employment Training Strategy s network of service providers. Please refer to Annex A for current IA sub-program focus and expected results (IA Annex to be updated annually). 2. NATIONAL CHILD BENEFIT (2.2.2) Description: 5 Pursuant to the 1965 Memorandum of Agreement Respecting Welfare Programs for Indians Canada, through AANDC, reimburses the province of Ontario for a formula-based share of the costs of four major social programs, including IA. 6 Human Resources and Skills Development Canada (HRSDC), changed its name in July 2013 to Employment and Social Development Canada (ESDC). 4

5 The National Child Benefit (NCB) is a federal/provincial/territorial partnership child poverty reduction initiative led by ESDC. The NCB has two components: a financial benefits component (the federal Canada Child Tax Benefit (CCTB) and National Child Benefit Supplement (NCBS), and provincial/territorial integrated child benefits) and a reinvestment component (the National Child Benefit Reinvestment [NCBR]). Under the financial benefits component, the Department provides funding to the Yukon Territorial Government for the cost of the Yukon Child Benefit (YCB) paid to First Nation families. Under the reinvestment component, AANDC provides funding for community-based supports and services for children in low-income families. The five activity areas for the NCBR on reserve are child care, child nutrition, support for parents, home-to-work transition, and cultural enrichment. The expected results of the NCB components are a reduction in the incidence, depth, and effects of child poverty. Target Populations: Boys and girls (aged 0-17 inclusive) living in low-income families. Beneficiaries of AANDC s NCBR supports and services must be ordinarily resident on reserve, and must be children from low-income families or the parents/guardians of these children. Context: In March 1996, a report entitled "Ministerial Council Report on Social Reform and Renewal", was prepared by all provinces/territories (with the exception of Quebec) and sent to the Prime Minister of Canada. The report recognized the need for a NCB system for all Canadian children. This need was subsequently embraced as a priority during the August 1996 Annual Premiers' Conference. The NCB initiative was introduced in the 1997 federal budget in response to the Government of Canada's commitment to improving support for children in low-income families. It was set into motion in 1998 as a joint initiative of federal, provincial 7 and territorial governments. Design and Delivery: The financial benefits component of the NCB is administered and delivered by the Canada Revenue Agency (CRA). Provinces and territories that have chosen to implement an NCB integrated child benefit (a provincial/territorial benefit issued to families together with their CCTB and NCBS payments) provide funds to the CRA 8 to pay out to eligible families on their behalf. AANDC supports the financial benefits component of the NCB by providing funds to the Yukon Government to reimburse the cost of the integrated child benefit (i.e. YCB) paid to First Nation families in the territory. The reinvestment component of the NCB is administered off reserve by provinces and territories, while AANDC is responsible for reinvestment on reserve through an agreement with ESDC. 7 While the Government of Quebec agrees with the basic principles of the NCB, it did not take part in the development of this initiative. Quebec's family policy is consistent with that of the NCB, and operates both on and off reserve in Quebec. 8 Monthly NCBS rates table (by number of children) available online at: eng.html 5

6 AANDC mirrors the reinvestment model (i.e. approach to offsetting the NCBS, which is the mechanism that creates the social program savings for reinvestment) of the reference province/territory. The NCBR is not delivered in Manitoba, New Brunswick, or Newfoundland and Labrador because those provinces have elected to allow the full NCBS to go directly to families without a corresponding reduction in IA (social assistance) benefits. In those provinces (on and off reserve), the NCB supports to families are fully financial. The other provinces/territories recover the NCBS through one of four reinvestment models (as per the federal/provincial/territorial NCB Governance and Accountability Framework) 9 and administer NCBR programming in collaboration with municipalities and communities. On reserve, AANDC administers reinvestment funding to First Nation communities and organizations that in turn deliver the NCBR supports and services. Please refer to Annex B for current NCB program focus and expected results (NCB Annex to be updated annually). 3. ASSISTED LIVING (2.2.3) Description: The Assisted Living (AL) sub-program is a residency-based program that provides funding to assist in providing non-medical, social support services to seniors, adults with chronic illness, and children and adults with disabilities (mental and physical) so that they can maintain functional independence and achieve greater self-reliance. There are three major components to the sub-program: in-home care, adult foster care, and institutional care. The latter is for eligible individuals in need of personal, non-medical care on a 24-hour basis. The AL sub-program is available to all individuals residing on reserve or ordinarily resident on reserve, who have been formally assessed by a health care professional (in a manner aligned with the relevant provincial or territorial legislation and standards) as requiring services and who do not have the means to obtain such services themselves. The expected result for the AL sub-program is that individuals maintain their independence for as long as possible while maximizing the quality of their daily experience at home and in the community. Target Populations: Men, women, boys, and girls residing on reserve, or ordinarily resident on reserve, who have been formally assessed by a health care professional (in a manner aligned with the relevant province or territory) as requiring social support services. Individuals must not have the means to obtain such services themselves, or access to other federal or provincial/territorial sources of support, as confirmed by an assessment covering employability, family composition and age, and financial resources available to the household. 9 NCB Governance and Accountability Framework available online at: 6

7 Context: Generally, provincial governments have jurisdiction over health and social programs. To address provincial unwillingness to deliver social programming on reserve (except Ontario), as a matter of policy, the Government of Canada assumed the funding role for similar social programs on reserve to ensure that basic social supports are available to all Canadians. In 1964, the Minister was given authority to fund IA (i.e. welfare) on reserve according to provincial standards and procedures. Since that time, the Department s suite of income supports has expanded to include the AL sub-program (previously Adult Care Program ), introduced in The AL sub-program is intended to be complementary to many of the programs and services funded by Health Canada's First Nations and Inuit Health Branch, including the Home & Community Care Program and the Non-insured Health Benefits (NIHB). AANDC is currently working with Health Canada (HC) to explore opportunities for improved coordination of health and social services on reserve. AL Realignment The AL sub-program continues to use its original 1982 definition of benefits and services (except Ontario), while the basket of income-tested benefits and services offered by provinces and territories off reserve has evolved. This has created a misalignment between services on and off reserve, particularly under the institutional care component, and has led to scope creep where the Department has taken on the reimbursement of health-related care costs. Work has begun on a detailed implementation plan to realign the program with current provincial/territorial practices, beginning with the institutional care component. Design and Delivery: The AL sub-program was designed to be an application-based program. To obtain the service, the applicant must request service through a funding recipient. The delivery of the AL subprogram has evolved to have distinct regional implementation approaches which are loosely bound by a flexible national program framework. The differences can be in part attributed to the types of programs currently in place in the provinces/territories, historical factors, and regional decisions over service delivery based on available funding. As part of implementing AL realignment, various regional models will be assessed with a view to standardizing practices nationally while maintaining key linkages with provincial or territorial systems. Please refer to Annex C for current AL sub-program focus and expected results (AL Annex to be updated annually). 4. FIRST NATIONS CHILD AND FAMILY SERVICES (2.2.4) Description: The First Nations Child and Family Services (FNCFS) sub-program provides funding to assist in ensuring the safety and well-being of First Nation children ordinarily resident on reserve by supporting culturally appropriate prevention and protection services for First Nation children and families in accordance with provincial or territorial legislation and standards. The sub-program 7

8 supports four activity areas/streams: developmental funding for new organizations; maintenance funding for costs associated with maintaining a child in care; operations funding for staffing and administrative costs of an agency; and prevention funding. In 2007, the FNCFS sub-program began shifting to an Enhanced Prevention Focused Approach (EPFA). This is consistent with provinces that have largely refocused their child and family services programs from protection to prevention services. The expected result for the FNCFS sub-program is to have a more secure and stable family environment for children ordinarily resident on reserve. The implementation of the EPFA is expected to improve services, cohesion of the family, and life outcomes for First Nation children and families on reserve. AANDC also contributes to the funding of day care services for First Nation families in Ontario and Alberta. Target Populations: Delegated FNCFS agencies, tribal councils, bands, some provinces, and Yukon (recipients) are to support the delivery of culturally appropriate child welfare services to First Nations boys and girls aged between 0 and 18 years of age who are ordinarily resident on reserve. Context: AANDC's FNCFS sub-program funds culturally appropriate child welfare services so that those services may be delivered to First Nations children and their families ordinarily resident on reserve. From the 1960s through the early 1990s, in situations where provinces or territories were not extending the full range of child welfare services on reserve, the Government of Canada began to provide funding for Child and Family Services. With child and family services being an area of provincial/territorial jurisdiction, the Government of Canada, through AANDC, entered into agreements with provincial governments to reimburse them for the delivery of child welfare services on reserve. Gradually, FNCFS agencies were created and became provincially delegated to deliver services on reserve instead of by the province. Design and Delivery: AANDC provides funding to support culturally appropriate services to First Nations children and their families through over 100 FNCFS agencies, and directly through provincial governments where there are no FNCFS agencies and through the Government of Yukon. Funding under the FNCFS sub-program is provided according to several funding models across the country. Each model provides for the delivery of protection and prevention services to improve the safety and well-being of First Nations children on reserve. As provinces have shifted to a greater emphasis on enhanced prevention, AANDC has moved forward with willing partners in taking concrete actions to implement an enhanced prevention approach to funding child and family services on reserve. AANDC continues to share lessons learned and remains willing to work with other jurisdictions as they shift their own approaches to enhanced prevention. 8

9 To date, six tripartite frameworks under the EPFA have been agreed upon and have been implemented in Alberta, Saskatchewan, Nova Scotia, Quebec, Prince Edward Island, and Manitoba. Collectively, this means that 68% of First Nations children on reserves across Canada now benefit from the enhanced prevention approach, with more than $100 million per year in additional investments being provided to these jurisdictions. Funding has more than tripled over the past 16 years, from $193 million in to approximately $627 million in Please refer to Annex D for current FNCFS sub-program focus and expected results (FNCFS Annex to be updated annually). 5. FAMILY VIOLENCE PREVENTION (2.2.5) Description: The Family Violence Prevention sub-program (FVPP) provides funding to assist First Nations in providing access to family violence emergency shelter services and prevention activities to women, children, and families ordinarily resident on reserve. There are two components to the sub-program: operational funding for emergency shelters; and proposal-based prevention projects such as education campaigns, training, workshops, and counselling to raise awareness on the issue of family violence in First Nation communities. The FVPP also works to address issues related to Aboriginal women and girls. The expected result of the FVPP is the enhanced safety and security of First Nation women, children, and families. Target Populations: Women, children, and families ordinarily resident on reserve, as well as Aboriginal communities and organizations. Context: The Government of Canada takes the issue of violence against Aboriginal women very seriously and works in partnership with provincial and territorial governments, Aboriginal people, and other stakeholders to develop effective and appropriate solutions. Economic Action Plan 2013 further committed $24 million over two years ($11.9 million annually) for this sub-program, allowing the total annual funding to remain at $30.4 million in and AANDC is working to renew the FVPP s policy authorities for April 1, 2015, and considers minimizing the disruption to emergency shelter services a key priority. The renewal will be informed by the results of the 2012 evaluation and ongoing efforts to strengthen the design, management, and delivery of the sub-program. Design and Delivery: The Department provides core operating funding to an existing network of 41 family violence emergency shelters serving First Nations communities. It also supports proposal-based prevention services, reimburses Alberta and Yukon for services provided to women and children 9

10 considered ordinarily resident on reserve but accessing emergency shelters off reserve, and provides funding to the National Aboriginal Circle Against Family Violence (NACAFV) to build emergency shelter capacity. Family violence emergency shelter funding is based on a national formula which establishes regional allocations and emergency shelter operating budgets that are fair and consistent across Canada. Allocations are based on the size of the emergency shelter, its province of operation and geographic location, and, where applicable, funds to cover the costs associated with remoteness and emergency needs. New regional prevention project funding methodologies were developed and became effective April 1 st, Funds from regional offices to recipients are distributed strategically based on regionally-established proposal processes rather than only using a population-based formula. This new methodology allows regions to provide aggregate funding to such entities as First Nation boards interested in developing their capacity to address family violence in a strategic way. FVPP prevention funds will be pooled in AANDC s Regional Offices, which may then transfer these funds to another entity (board, committee, etc.) to administer. As proposals are approved by Regional Offices or another entity (e.g. First Nation board), available funds will be transferred to the First Nations funding agreement. If the funding recipient does not submit its annual report, the funding shall be withheld. Please refer to Annex E for current FVP subprogram focus and expected results (FVP Annex to be updated annually). 2.2 Financial Resources Income Assistance Forecast Spending, (Main Estimates) Vote 1: Salary and Operations and Maintenance Vote 10: Grants and Contributions Vote 5: Capital Statutory Employee Benefits Plan Total Forecast Spending $4,099,365 $849,120,556 $0 $0 $582,945 $853,802, National Child Benefit Forecast Spending, (Main Estimates) Vote 1: Salary and Operations and Maintenance Vote 10: Grants and Contributions Vote 5: Capital Statutory Employee Benefits Plan Total Forecast Spending $647,153 $53,280,000 $0 $0 $79,916 $54,007,069 10

11 2.2.3 Assisted Living Forecast Spending, (Main Estimates) Vote 1: Salary and Operations and Maintenance Vote 10: Grants and Contributions Vote 5: Capital Statutory Employee Benefits Plan Total Forecast Spending $1,041,637 $85,661,340 $0 $0 $157,913 $86,860, First Nations Child and Family Services Forecast Spending, (Main Estimates) Vote 1: Salary and Operations and Maintenance Vote 10: Grants and Contributions Vote 5: Capital Statutory Employee Benefits Plan Total Forecast Spending $4,636,595 $634,574,975 $480,769 $0 $574,043 $640,266, Family Violence Prevention Forecast Spending, (Main Estimates) Vote 1: Salary and Operations and Maintenance Vote 10: Grants and Contributions Vote 5: Capital Statutory Employee Benefits Plan Total Forecast Spending $1,620,701 $29,865,393 $0 $0 $245,912 $31,732,007 Sources: Breakdown of main estimates: Chief Financial Officer Sector The Program has two recently consolidated authorities for IA and AL: Grants to Provide Income Support to Indigent On Reserve Residents: Contributions to Provide Income Support to Indigent On Reserve Residents: FVPP and FNCFS: Contributions to Provide Women, Children and Families Ordinarily Resident on-reserve with Protection and Prevention Services: NCBR: Contributions to Provide Programming for Low Income Reserve Residents With Children Under 11

12 the National Child Benefit Reinvestment (NCBR) : GOVERNANCE, STAKEHOLDERS, AND PARTNERS The Assistant Deputy Minister (ADM) of the Education and Social Development Programs and Partnerships Sector (ESDPP) is accountable for the management and administration of social development programs by achieving the expected results within the available resources. The ADM of ESDPP is accountable to the Deputy Minister for ensuring that departmental employees within the Sector comply with AANDC s Data Collection Policy and related guidelines. The Program Area Directors General are accountable to the ESDPP ADM for ensuring compliance with the Data Collection Policy and related guidelines, including the approvals of recipient reporting and ad hoc reporting requirements specific to their individual programs. In conjunction with the Program Area Directors General, the Regional Directors General (RDG) are accountable to the ESDPP ADM for ensuring compliance with the Data Collection Policy and related guidelines, including the recommendations for any recipient reporting and ad hoc reporting requirements specific to their individual regions or programs. The responsibility for managing and administering First Nation social development programs is shared between AANDC headquarters, AANDC regional offices, and Funding Recipients. These responsibilities include, but are not limited to the following: AANDC is required to: Provide funding to Funding Recipients only as authorized by approved policy and program authorities; Lead the development of program policy and provide policy clarification to Funding Recipients; Further articulate processes and procedures necessary to implement the Social Programs in accordance with the Social Programs National Manual; Review applications for funding and provide a decision in writing; Communicate to Funding Recipients in writing program management requirements and policies and the consequences for non-compliance; Provide Funding Recipients advanced notice, in writing, and a reasonable time to understand and implement enhanced or amended program requirements; Communicate to Funding Recipients in writing enhanced or amended program requirements and the implementation date; Provide clarifications of program requirements when requested by the Funding Recipient or Administrator; Conduct a program orientation for new administrators, when requested, by a Funding Recipient; and 12

13 Monitor program delivery to verify the understanding of Program Recipients of the program delivery requirements. AANDC Funding Recipients are required to: Deliver programs in accordance with the provisions of their funding agreement and to meet the objectives of the applicable program as outlined in the delivery requirements; Know and act according to the requirements outlined in the Social Programs National Manual; ; Ensure that due diligence is exercised when expenditures are approved and take all reasonable steps to ensure that expenditures are eligible, reasonable, and appropriate; Ensure that internal controls and financial policies are in place to manage funding; Monitor activities and program expenditures approved by Administrators; Ensure that reporting requirements are met and reports are submitted in an accurate and timely manner as per the instructions in the Reporting Guide 10 and the due dates outlined in their funding agreement; Maintain effective lines of communication with the AANDC Regional Office; Cooperate with AANDC staff in the course of verifying the eligibility of expenditures and completing day to day activities, including but not limited to the following activities: audits, compliance reviews, program management evaluations, and responding to queries from AANDC staff; Ensure operational policies and procedures (such as Human Resources policies and procedures and protection of personal information collected) are developed and communicated to Administrators, and implemented; Develop and implement processes and procedures whereby individuals who have been denied a service can appeal the decision; Note: The appeal process is separate from the redress mechanism contained within the funding agreement which governs how AANDC and the Funding Recipient will resolve disputes related to the funding agreement. Ensure that Administrators possess the skills and knowledge (and have access to training and mentorship) necessary to deliver the programs in accordance with the program delivery requirements; and Ensure that Administrators are kept informed of what is happening in the program of which he or she is an Administrator. Assembly of First Nations (AFN): AFN is a stakeholder working on Social Development priorities for IA, AL, and FVPP and is an advisory member for the Social Development PM Strategy. The AFN also co-ordinates and chairs the First Nation Income Assistance Working 10 In the fiscal year, the Year-End Reporting Handbook (YERH) and the Recipient Reporting Guide are consolidated into one guide named the Reporting Guide. The Reporting Guide is available on the AANDC website at 13

14 Group (FNIAWG) to facilitate meetings with AANDC and other government departments in the area of IA. The AFN is the national organization representing First Nation peoples in Canada. The AFN represents all First Nations peoples regardless of age, sex, or place of residence. The Social Policy and Programs Branch (SPPB) and the AFN are building a positive working relationship in order to collectively contribute to the well-being of First Nations peoples on reserve. Canadian Mortgage and Housing Corporation (CMHC): CMHC s Shelter Enhancement Program (SEP) is a stakeholder regarding the FVPP through its provision of capital funds for the construction and renovation of emergency shelters. Employment and Social Development Canada (ESDC): ESDC is the lead department in the NCB initiative and a delivery partner under the IA reform initiative. Health Canada (HC): Its Home and Community Care (HCC) program is complementary to the AL sub-program as both programs form part of a continuum of continuing services. It is a stakeholder through Health Canada s Mental Health and Addictions Division and its suite of programs. National Aboriginal Circle Against Family Violence (NACAFV): The FVPP provides funding to the NACAFV, which allows this organization to provide a national coordinating role for shelter service providers by helping to build emergency shelter capacity and improving networking amongst services providers through gatherings and training forums. For example, NACAFV hosts an annual Emergency Shelter Director Conference which varies themes according to the needs of the emergency shelters directors. NACAFV also hosts an annual national training forum tailored for front-line workers. In addition, NACAFV conducts research as well as shares best practices and resources in relation to family violence in order to promote good program management. Provinces and Territories: Provincial and territorial governments are stakeholders particularly regarding the objective identified by the department of reasonable provincial similarity of rates and services and the requirement to deliver some programs (e.g. FNCFS) in accordance with provincial legislation and standards. Public Health Agency of Canada (PHAC): PHAC is a stakeholder as the lead department for the Government of Canada s Family Violence Initiative (FVI). Second Level Service Delivery Organizations: In some provinces/regions, there are second level service delivery organizations that provide administrative supports to program delivery. For example: First Nations Social Development Society (FNSDS) in British Columbia: The FNSDS is a non-profit society that provides support services to the Band Social Development Workers of BC. The Band Social Development Workers (BSDW) administers IA on reserve for BC First Nation Communities. The FNSDS provides BSDW training, policy 14

15 clarification and essential services as they relate to social development and IA. Ontario Native Welfare Administrator s Association (ONWAA) in Ontario: The ONWAA is a professional association that provides services to First Nation Social Service Administrators in Ontario. The ONWAA is primarily focused on policy training, personal support, and ensuring professional development to its membership. ONWAA s interest lies in the successful delivery of social programs and it is committed to providing quality, professional services to First Nation communities while respecting local delivery needs and realities. First Nation of Québec Social Development Office (FNQSDO) in Québec: This is an office within the First Nation of Quebec and Labrador Health and Social Services Commission (FNQLHSSC) that is part of a working group to identify solutions to challenges with the administration and delivery of IA in First Nation communities in Québec. Other Stakeholders: Social development programming includes the following organizations and agencies that contribute to the social development programs through various means and in accordance with their respective mandates: Centre of Excellence for Child Welfare (CECW) Provincial children s aid societies Public and private organizations or institutions (i.e., Child Welfare League of Canada (CWLC), First Nation Child and Family Caring Society (FNCFCS) of Canada). Emergency Shelter Directors Other social development agencies (e.g. Child & Family Services (Aboriginal women s associations etc.)) 15

16 4.0 LOGIC MODEL Program Activities AANDC Headquarters and Regions Build Partnerships AANDC Headquarters and Regions Gather and Share Information AANDC Headquarters and Regions - Develop Programs and Manage Funding Agreements First Nation Recipients / Provinces / Territories Deliver Social Services in Partnership Program Outputs Social Supports & Services (All Social Programs) Immediate Outcomes Eligible men, women, and children in need or at-risk have access and use supports and services to meet basic and special needs (IA, AL, NCB) Men, women, and children in need or at-risk have access and use prevention and protection supports and services (FNCFS, FVPP) Eligible men and women in need have access and use supports and services that help them to transition to and remain in the workforce (IA)(NCB) Intermediate Outcomes Men, women, and children s basic and special needs are met (IA, AL, NCB) Men, women, and children are safe (FNCFS, FVPP) Men and women are employable and able to become and/or remain attached to the workforce (IA)(NCB) Ultimate Outcome First Nations men, women, and children are active participants in social development within their communities. (All Social Programs) Departmental Strategic Outcome (The People) Individual, family and community well-being for First Nations and Inuit 16

17 4.1 Logic Model Narrative The logic model for the social development programs depicts the key activities undertaken by the Department that contribute to the provision of basic social programming on reserve. It should be noted that, due to the variety of First Nation communities in terms of population, location, and level of economic development, it is not practical that each reserve has all program elements (e.g. each First Nation has an emergency shelter on reserve) but each First Nation individual should have access to the supports and services that the programs fund, even if it requires leaving the reserve. Program Activities Activity #1 Build Partnerships: There are a large number of stakeholders and partners involved in developing, managing, and delivering the social development programs. This interconnectedness requires building and maintaining formal and informal partnerships, formalizing agreements where appropriate, and ensuring on-going, effective communications, particularly with respect to horizontal issues (e.g. education, housing). Partnership activities include ongoing work with the various interdepartmental working groups (e.g., FVI). Partnership building with provincial governments and with First Nation organizations is also essential. An example of building partnerships and establishing a formalized agreement is the tripartite agreement (Canada, BC, and BC First Nations Health Authority) through which the parties explore new approaches to data governance by First Nations. Partnerships are necessary to inform continuous improvement, reduce duplication, help deliver integrated services, improve administration, and better serve the needs of First Nations (BC First Nations Data Governance Initiative). Activity #2 Gather and Share Information: Program managers gather and share the information required to ensure that headquarters, regions, recipients, and other partners have the most current information in their respective program areas. The intent is to ensure that individuals and organizations involved in program management are able to take an evidence-informed approach to decision-making, are aware of trends (provincial and international), and are able to stay current in their areas of expertise. Program managers work with First Nation recipients to clarify issues so as to ensure effective program delivery. This includes, for example, working with FNCFS agency directors and staff to interpret eligible expenditures, understanding current provincial practices, and working with Band Social Development Workers (BSDW) to address specific issues. Another example is the joint support by AANDC and Ontario for the ONWAA, which aims to increase the capacity of IA administrators in the province, including their ability to incorporate active measures programming on reserve. 17

18 Activity #3 Develop Programs and Manage Funding Agreements: As with all transfer payment programs, AANDC program managers design and develop the requirements to establish the program authorities, which is followed by ongoing management, monitoring, measurement, and reporting. Design and development occur primarily at the Headquarters (HQ) level, while the Regions are primarily responsible for managing funding agreements. HQ and Regional AANDC managers work jointly to address measurement and reporting requirements. Recipients under this program include First Nations (Tribal Council, Chiefs and Council, FNCFS Agencies), Northern communities and other governments as well as other organizations through agreements. Examples of other organizations in this case would include funding a school to enable it to provide hot meals or funding a third party to provide inhome AL services. In addition, the program managers develop tools and provide guidance as required (e.g. reporting templates, national and regional program manuals, recipient report guides, data collection instruments, etc.). Activity #4 Deliver Social Supports and Services in Partnership: Recipients deliver the social development programs in partnership with various organizations relevant to the individual programs being delivered. Most of these partnerships occur at the community level and focus on sharing knowledge and expertise in the different subject areas. For example, the First Nation Social Development Society (FNSDS) provides support services to Band Social Development Workers in the delivery of active measures and IA. With the FVPP, emergency shelters have built key partnerships at the community level, including with the Royal Canadian Mounted Police (RCMP), health centers, Band social services, addiction services, mental health support, and in one case, the United Church of Canada (UCC). In addition to delivery partners, funding partnerships have been established with Health Canada s Head Start and Brighter Futures, as well as the ESDC Pathways for Success. 11 In some cases, social development programs are used by First Nation to supplement HC and ESDC programs that are designed to reduce poverty and promote integration of women and men into the labour force. Program Outputs The program activities are expected to result in the delivery of social supports and services. The Department provides the funds and tools (national manuals that explain the program s terms and conditions, training tools, compliance/evaluation methodologies, leadership, and capacity building opportunities) to eligible recipients so the recipient may effectively deliver the suite of social development programs to the eligible final recipients (clients) ordinarily resident on reserve. Depending on the needs of the community, recipients are also able to adjust some program elements to avoid a one size fits all approach and to address those identified needs in a way that best suits that particular community. 11 The agencies mentioned are illustrative and not meant to be an exhaustive list. 18

19 Immediate Outcomes Eligible men, women, and children in need or at-risk have access and use supports and services to meet basic 12 and special 13 needs: Through social supports and services, eligible men, women, and children on reserve will have access to financial support to meet their basic needs and have access to financial and other supports to address their special needs. For example, First Nation administrators will have the knowledge, tools, and funds to provide income support to eligible individuals, to provide financial assistance for non-medical personal care services to a chronically ill person so they may remain independent in their home (e.g. light housekeeping, attendant care), and/or to fund an on reserve project that provides a school-based meal program for children in low income families. Contribution to the attribution of this outcome will be from the IA and AL sub-programs, and both components of the NCB initiative. Men, women, and children in need or at-risk have access and use prevention and protection supports and services: Prevention and protection supports and services will be made available to men, women, and children on reserve and these supports and services are expected to address a variety of situations. The focus on providing prevention supports and services to those at-risk is in line with the approach taken by most provinces when addressing children at risk and family violence. Prevention supports and services include, for example, respite care, counselling, in-home supports, and family education. Protection supports and services include, for example, emergency shelters for women and families, and foster care, institutional care, and group home services for boys and girls. Contribution to the attribution of this outcome will be from the CFS and FVP sub-programs. Eligible men and women in need have access and use supports and services that help them to transition to and remain in the workforce: Social supports and services will also include providing primarily pre-employment supports and services that are meant to address the barriers to employment that keep people out of the paid workforce. Pre-employment supports and services can typically start with an assessment to identify the needs of an individual and then provide the necessary services to that individual. Depending on the assessment, the individual may be directed to an appropriate service provider or program either on or off reserve. Examples of such services include counseling and life skills, literacy, and job seeking skills. These supports and services may include community-based projects that focus on families with children and address the specific needs identified (e.g. home-to-work transition and support to parents). It may also include more direct pre-employment support such as financial support for employment and training-related child care, transportation and equipment costs, as well as 12 Basic needs are defined as food, clothing and shelter. 13 Special needs includes, but is not limited to, special diets, essential household items, guide dogs, child care and accommodation, transportation and equipment costs related to employment and training, short term respite, meal programs and preparations, light housekeeping, attendant care and other items as per the applicable national initiative in the relevant provincial or territorial legislation. 19

20 transfers of IA entitlements to training and work experience projects. Contribution to the attribution of this outcome will be from the IA sub-program and the NCBR component of the NCB initiative. Intermediate Outcomes Due to the interconnected nature of the social development programs, the immediate outcomes can be expected to contribute, in varying degrees, to all of the following intermediate outcomes: Men, women, and children s basic and special needs are met: The financial assistance provided by recipients (e.g. First Nation administrators and provincial governments) to eligible final recipients will be at rates set by the provinces/territories which are calculated at levels meant to provide adequate amounts of assistance payments for basic needs including shelter, food, and clothing. Therefore, it is expected that the basic needs will be met as the rates have been set specifically to meet those basic needs. The special needs of final recipients are expected to be met through various means. These include projects that provide food for boys and girls at school for low income families or non-medical, social support services for eligible individuals who have had such special needs assessed. Contribution to the attribution of this outcome will be from the IA and AL sub-programs, and both components of the NCB initiative. Men, women, and children are safe: With access to prevention-focused supports and services that are designed, for example, to enable children to remain safely in the family home, to prevent the kinds of situations that give rise to family violence or to prevent elderly people from having to leave their homes, better outcomes are expected for those affected. Providing supports that enable children to stay in the family home safely is expected to result in children that are not only safe but also benefit from a more stable environment. It is also expected that the prevention projects undertaken by First Nation service providers (e.g. training, awareness, and conferences) will increase the capacity of First Nation to meet the various needs of their communities and avoid escalation of situations to the point where people need to access protection services. Early intervention or enhanced prevention approaches, as contemplated by prevention services, are expected to reduce the number of families and individuals who reach a crisis state in their personal or family situations. If the issues leading to situations of family violence can be addressed early, such crises may be avoided entirely. Such services are also critical in addressing the issues that led to the crisis in the first place in order to avoid recurring incidents. Having access to protection supports and services for men, women, and children on reserve, such as an emergency shelter, ensures the immediate safety of those who must leave a violent domestic situation. In addition, having access to various options for a child that must leave the family home (e.g. out-of-home placements, kinship care) also provides immediate safety as the child is removed from an unsafe situation. The availability of emergency shelters or similar safe locations for men, women, and children that provide a haven to escape violent situations or unsafe environments is expected to result in men, women, and children that are safer. Once 20