The Policy Planning Process in Canada Karl Salgo, Machinery of Government Privy Council Office June 1, 2010
Role of the Privy Council Office Dual Role Cabinet Secretariat Prime Minister s Department Cabinet Secretariat Protects integrity of decision-making Manages Cabinet and Cabinet Committee Meetings Advises Cabinet/Committee Chairpersons Records Cabinet Decisions and informs the system Ensures coherence with the Government s broad agenda Sets the policy direction/framework Challenges and enables departments to achieve policy and program goals within the government s broad policy framework 2
Outline Defining the Policy Agenda The Policy Development Process 3
Defining the Policy Agenda Ministerial Mandate letters (transition from campaigning to governing) Based on PM s objectives, campaign platforms, non-partisan transition advice of the Public Service Speech from the Throne (setting out the government s broad policy goals, directions and strategy) Led by PM, policy input from ministers/departments, stakeholders, coordinated by PCO Budget (how government intends to use fiscal/spending powers to achieve policy objectives) Led by PM and Minister of Finance, proposals from ministers/departments, coordinated by Dept. of Finance 4
Other Agenda Definers PM Speeches Major Policy Statements International Fora (UN, G-8, NATO) Economic Updates Unplanned Events, Crises and Developments Individual Ministers may also bring forward major policy initiatives for consideration 5
Outline Defining the Policy Agenda The Policy Development Process 6
Policy Development Development should be aimed at advancing the policy agenda of the current Government through the achievement of the best possible policy outcomes This is carried out through a well-established and structured process, based on the Cabinet Committee structure and system Process is designed to ensure: policy proposals are aligned with the overarching agenda policy documents are given appropriate and rigorous consideration by officials and Ministers ministers can focus on strategic and political questions, trade-offs policy is given the consideration of a range of views reflecting public interest, national interest & diversity of Canadian society fiscal and administrative issues are carefully considered consultation & transparency 7
Policy Development Alignment with government agenda: aligns with government priorities as outlined in the Speech From the Throne and Budget covers broad government themes and on-going management priorities (i.e. accountability, value for money, sustainability) Appropriate and rigourous consideration: central agency due diligence: review and analysis respect for firm timelines in process so officials and ministers have time to read, assess and express views can ensure coordination where necessary via joint signature require Senior Financial Officer sign-off 8
Policy Development Focus on political and policy trade-offs: time for signal checks to be carried out Ministers have time to review and discuss with staff, counterparts PCO works with departments to forge as much consensus as possible on facts, options, risks and benefits Cabinet committee discussions allow for the assessment of political consequences Consideration of diverse views, reflective of Canadian society: Cabinet committee member selection aims to be representative of Canadian diversity (i.e. regions, language, gender, etc.) interdepartmental meetings ensure all departmental views reflected Fiscal and administrative issues are carefully considered: Finance reviews for fiscal feasibility, efficiency and effectiveness Treasury Board looks at management and accountability issues to ensure results are achievable and measurable 9
Development of a policy proposal Department identifies policy objective, leads analysis: Definition of rationale and broad objectives Statistical/scientific/economic analysis Lessons from international experience Policy proposal development, before going to committee: Privy Council Office involvement Inter-departmental input, engagement of Deputy Ministers Discussion with stakeholders/interested parties Political viability and risks Jurisdiction Development of policy options 10
Intra Departmental Working Groups Interdepartmental Working Groups CCDM CABINET COMMITTEE Treasury Board, Legislation, Regulation, etc The MC Process MC Development Review Consideration Decision Implementation Draft MCs MC CR RD (+ Secretary s note) 11
The Cabinet Executive of the government chaired by the Prime Minister Central decision-making body in Westminster system: sets the broad policy for the government Forum for collective discussion of important issues facing the Ministry and the country Venue for: Fostering a shared understanding and cohesion around the government s overall direction & agenda Exchanging views on major national, regional and cross-cutting policy issues Building consensus around potentially divisive issues: full & frank discussion conjoined with solidarity around decisions taken Generally 3-part agenda: Parliamentary strategy Key communications messages Policy issue discussion Political viability and risks + appointments 12
The Cabinet Committee Structure and Process Finalized departmental policy proposal is brought forward Policy Committees Economic Growth and Long-term Prosperity (EGLP) Environment and Energy Security (EES) Social Affairs (SAC) Foreign Affairs and National Security (FANS) Operations Committee Legislation & House Planning Communications Issues management Receives approval-in-principle Priorities & Planning (P&P) Setting strategic direction Expenditure management Ratification of committee recommendations Ratification of Proposal Treasury Board Implementation by the department 13
Specific Activities of a PCO policy analyst Process Step Key Activities Key Documents 1. Review and Consideration of MC Review MC and provide feedback to department Determine if proposal should go to policy committee or operations committee Central Agencies meeting Formal interdepartmental meeting Circulate MC to PCO colleagues draft Memorandum to Cabinet (MC) 14
Specific Activities of a PCO policy analyst Process Step 2. Preparation for policy or operations Committee meeting Key Activities Schedule item for meeting Provide P&P committee with item information Request department minister s speaking notes Prepare PCO briefing note, Scenario Note and Closing Comments for the Committee Chair Attend shape up meeting to brief Assistant Secretary Review and Approve final MC Key Documents Memorandum to Cabinet PCO briefing note Scenario Note Closing Comments 15
Specific Activities of a PCO policy analyst Process Step 3. During and after policy or operations committee meeting Key Activities Attend the meeting and take minutes Prepare Summary of Discussion Prepare and review Committee Recommendation (CR), if applicable Communicate decision to department officials, central agencies and PCO colleagues Finalize and submit minutes Prepare Annex Note and Speaking Notes if item is going to P&P for ratification Key Documents Cabinet Recommendation Summary of Discussion Minutes Annex Note Speaking Notes 16
Funding Notes All proposals with funding implications must have a source of funds before their consideration by Cabinet A funding note is required for items that require offcycle funding decisions Must be approved by the PM before the item appears on Annex for ratification PCO s Liaison Secretariat for Macroeconomic Policy (LSMP) coordinates including with Dept of Finance 17
Conclusions Policy development and approval process meant to Provide analysis and consultation required to develop effective policy options that support the interests of Canadians, as reflected by their Government Ensure consistency with broader Government agenda Effectively support the collective decision-making of Ministers Post-approval, sound management is key 18
www.pco-bcp.gc.ca 19