The Voluntary Sector Initiative Process Evaluation
Final Evaluation Report
MANAGEMENT RESPONSE TO THE EVALUATION FINDINGS
Overview
Over 180,000 voluntary organizations across Canada engage in
a wide range of activities that contribute to the well being of
Canadians. Launched in 2000, there was a five-year $94.6 million
commitment to support the Voluntary Sector Initiative (VSI). The
VSI objectives were "to better serve Canadians by strengthening
the capacity of the voluntary sector and enhancing the relationship
between the voluntary sector and the Government of Canada." The
VSI process, an exercise in both collaboration and horizontal
management, was unprecedented in the breadth of its objectives
and the scope and scale of its activities.
The VSI Process Evaluation examined the initial "Joint
Table" phase of the VSI process, which ended in October 2002.
It covered all components of the VSI except the Sectoral Involvement
in Departmental Policy Development (SIDPD) program, which was
evaluated separately. An evaluation to assess the impacts of the
VSI is scheduled for completion in 2005.
The process evaluation found that the objectives of the joint
tables were met, albeit not always according to plan; the relationship
between the government and the sector had improved and all participants
regarded the process as a worthwhile endeavour. The evaluation
identified several lessons for the future, including observations
on: the value and limits of collaborating; the challenges of policy,
structure and operations; engaging broader communities and, financial
management and transparency.
Although the department of Canadian Heritage oversaw the VSI
process evaluation, Social Development Canada (SDC) assumed responsibility
for responding to the evaluation and publishing the evaluation
report when it assumed the responsibility for coordinating VSI
activities within the federal government in December 2003. The
management of the Non-Profit and Voluntary Sector Affairs Division (VSAD) of
the Social Development Directorate (SDD) in SDC would like to
thank all those who participated in the evaluation of the first
phase of the VSI process and would like to take this opportunity
to respond to key observations and issues raised in the report.
Value and Limits of Collaborating
The VSI Process Evaluation Report found that "an overwhelming
lesson from the VSI is that collaboration is worthwhile." However,
it also observed that not all issues are conducive to resolution
in a collaborative process and there is a need to establish parameters
around collaboration so it can be used more effectively.
In coordinating the implementation of the VSI, we will continue
to encourage collaboration and partnerships with non-profit organizations
and raise awareness of the value of sustained cooperation between
the government and the voluntary sector for the benefit of Canadians.
Going forward, the government intends to utilize principles articulated
in An Accord Between the Government of Canada and the Voluntary
Sector and its Codes of Good Practice on Funding and
on Policy Dialogue to guide collaborative work that is focused
on key priority/strategic issues. This strategic approach is reflected
in the provision of funding for the Voluntary Sector Forum (VSF),
based on common objectives and a work plan that is clearly focussed
on achieving results.
We recognize that establishing clear parameters at the outset
of any collaborative effort is essential -- both for maintaining
trust between the parties and for achieving results. As part of
government–wide implementation of the VSI, we will be promoting
the Code of Good Practice on Policy Dialogue, which calls
on partners to establish the terms of the policy dialogue in advance
and to communicate the scope and limitations to all participants.
The routine application of such principles of good practice will
help ensure more effective collaboration in future.
Challenge of Policy, Structure and Operations
The evaluation report observed that among the key lessons learned
in the VSI process were the importance of being both strategic
and realistic when setting goals and time frames and being transparent
in communicating the mandate for collaboration to all the participants.
With respect to mandate and time frames, as indicated above,
officials in VSAD have negotiated a funding agreement with the
VSF to cover the activities required to complete the formal VSI
process. The associated work plan identifies expected results
and milestones for addressing key priorities. We are confident
that, working together with the resources that have been allocated,
we can produce the desired results within the projected time frame.
The evaluation also noted that "structure is important" and that
a decentralized process, like the VSI, needs a coordinating centre
and a strong governance model. Moreover, the overall structure
should be kept as simple as possible.
Structures to manage the work of the VSI have been simplified
and streamlined and roles, responsibilities and mandates have
been clarified. The Minister of Social Development (SDC) now has
the lead responsibility for relations with the voluntary sector.
Within SDC, the Non-Profit and Voluntary Sector Affairs Division (VSAD) of the
Social Development Directorate (SDD) in the Income Security Programs
(ISP) is the federal focal point for promoting the effective implementation
of the VSI. A Steering Committee of senior officials currently
oversees the federal government's VSI-related activities. The
VSF, supported by a secretariat, coordinates work within the voluntary
sector. The Joint Steering Committee (JSC), made up of senior
government officials and sector representatives, meets quarterly
to coordinate joint activities.
The evaluation observed that process is also important and sufficient
time for building relationships is essential. At the same time,
the parties need to plan for results "by balancing process and
outcomes" and make arrangements for facilitating a smooth transition
to subsequent phases in the process.
Having established the foundation for a strong relationship based
on mutual trust, the partners are placing greater emphasis on
outcomes. As the formal VSI process winds down, we are now focussing
on producing concrete results -- in promoting the effective implementation
of the Accord and its Codes of Good Practice;
disseminating the tools developed in the VSI, developing innovative
and flexible federal funding instruments; supporting research
and policy work related to the sector; implementing a national
public awareness campaign; and strengthening networks and building
capacity within the sector.
Engaging Broader Communities
In the context of supporting the process and maintaining momentum,
the evaluation notes that an important lesson for the future is
that "engaging broader communities helps the process stay grounded
and facilitates learning." Since the government will need to engage
the voluntary sector around many different issues at various times
in the future, the government needs to consider a more sustainable
approach to community engagement. The report suggests, "...the
kinds of investments that could pay off in the longer run are
helping the sector to build its network capital, its knowledge
about policy processes and its ability to use technology for purposes
of communication."
All the parties agree on the need for a more inclusive approach
to involving diverse communities in the implementation of the
VSI. As the focal point for federal implementation of the VSI,
VSAD will continue to work with other departments to encourage
partnerships with a broad cross section of organizations in the
non profit sector, including Aboriginal and ethno-cultural communities.
It should be noted that many federal departments have well-established
relationships with the many different communities that they serve.
During the VSI process, existing relationships were strengthened
and reinforced and new collaborative relationships were established.
These partnerships were supported by the provision of funding
through the SIDPD program (which was a major component of the
VSI and is the subject of a separate evaluation). Many SIDPD projects
provided excellent lessons on how to build bridges between diverse
communities and organizations in the broader voluntary sector.
As we proceed with coordinating the implementation of VSI, we
will continue to facilitate the engagement of broader communities
through the provision of funding to develop networks and resources
to build horizontal policy capacity within the voluntary sector.
Financial Management and Transparency
The evaluation of the VSI process identified several lessons
with respect to financial management and transparency. To address
these issues, the report suggests that the government endeavour
to: build in as much flexibility as possible without compromising
overall accountability; clearly communicate governmental requirements
for financial management; develop a more flexible financial instrument;
and create common reporting templates and centralized tracking
of expenditures to ensure transparency and accountability.
One of the major achievements of the VSI process was the joint
development of the Code of Good Practice on Funding. The
consistent application of the Code across federal
departments and agencies is a key priority in VSAD's work plan
for VSI implementation. To advance policy work on the outstanding
funding practice issues, SDC is committed to exploring models
and options for federal funding and program instruments that would
address the problems associated with short-term funding and inconsistent
accountability requirements, and provide the flexibility and responsiveness
necessary to support horizontal work at the national and local
levels. We expect the summative evaluation of VSI, including SIDPD,
planned for 2005 will yield valuable lessons on how to design
effective and efficient funding and accountability approaches
to support horizontal initiatives.
Funding for VSI activities is currently being delivered through
the Social Development Partnerships Program (SDPP) in SDC. The
Treasury Board approved renewed terms and conditions, including
an RBAF and RMAF for SDPP, in January 2003. SDPP uses a system
for tracking expenditures and reporting on progress, which will
ensure greater transparency and accountability in future.
Conclusion
As stated in the evaluation, one of the most significant lessons
of the VSI is "recognition of the need to transform individual
learning into institutionalized practice." We are committed to
building on VSI's successes, promoting the benefits of improving
our relationships with the voluntary sector on funding practices
and policy dialogue and ensuring that the principles and values
espoused in the Accord are practiced throughout the Government
of Canada.
