Language selection

Government of Canada / Gouvernement du Canada

Search

Canada Book Fund – 2023 Roundtables and Engagement Sessions – Summary of Feedback

On this page

Introduction

The Department of Canadian Heritage undertook engagement activities in 2023 to seek feedback from key stakeholders on how the Government of Canada can further support the growth of the Canadian publishing sector and the promotion of Canadian-authored books at home and abroad, through the Canada Book Fund (CBF). In particular, the Department wanted to better understand the current landscape for Canadian publishing and how it might inform the renewal of the Canada Book Fund while considering current Government priorities.

The Department conducted eight roundtable discussions with provincial, regional, official language minority and national publishers’ associations, as well as with literary event and author associations.Footnote 1 Additionally, smaller engagement discussions were held ad hoc throughout the year with other stakeholders. This report summarizes key findings from these virtual discussions.

In their initial invitations, participants were asked to review a discussion guide prepared by the program, along with a series of questions that could guide the conversation during the roundtables. Invitees were also given the opportunity to submit written feedback to the discussion paper, both in addition to their virtual participation, or in cases where they were unable to attend.

The sessions focused on identifying design elements for a renewed CBF and included directed discussions on the following key Government priorities:

A total of 35 stakeholders from the Canadian book industry provided feedback during the eight virtual engagement sessions which took place from June to September 2023. A total of five written submissions were received.

During the same period, the program enlisted the services of Archipel Research and Consulting to facilitate Sharing Circles and individual interviews with stakeholders from equity-deserving and Indigenous communities. The findings from these roundtables are available in a distinct report. Please contact the Canada Book Fund to obtain a copy of the report.Footnote 2

The following sections summarize and present the key findings from the Department-led engagement activities. These inputs do not necessarily reflect the opinions and strategic policies of the Government of Canada. The information gathered and expertise shared during this process will inform the Government in the renewal of the Canada Book Fund.

Renewal of the Canada Book Fund

There was a consensus throughout the roundtables on the need for an increase to the CBF’s core funding. Participants reiterated that an increase to the CBF’s core funding remains the industry’s greatest need. Costs associated with publishing (paper, fuel, logistics, promotion, human resources) continue to rise and the value of the CBF’s funding, due to new challenges in the industry since its inception as well as to the effects of inflation over the past twenty years, has decreased considerably. Many highlighted that the program’s current funding no longer has the same impact on the industry, nor does it yield the same results as in previous years.

Stakeholders further stated that the major limiting factor on the impact of the program has not been its design, but rather its base budget which has remained flat since 2001. Stakeholders stated that changes to the CBF should be made in the context of new investments and should focus on developing the market for Canadian-authored books by investing in Canadian-owned publishers. Expansions beyond the current scope of the program (i.e. to address newer priorities such as accessible publishing, greening practices, translation activities and increased export support) should only be made in the context of new money above and beyond the amounts stated in previous Government renewal commitments.

In addition, stakeholders indicated that while Canadian-owned independent publishers have made breakthroughs in achieving critical and market successes, the overall market share remains in need of continued growth. New investments in the CBF remains the single most effective way of easing pressure on the Canadian independent publishing sector. Stakeholders also expressed that new investments would be maximized in the context of copyright reform that addresses fair dealing exceptions, a foreign investment policy that is consistently applied and genuinely focuses on net benefit for the Canadian writing and publishing sector, and Canada Council for the Arts (CCA) programs that recognize the value of literary publishing while providing new and established publishers with meaningful and sustainable support.

Overall, program design was not as high a priority for stakeholders as the need for an increased core program budget. Nevertheless, there were certain program elements that participants targeted for possible adjustment. One such example is the complexities in reporting requirements, which was raised by numerous participants. The majority of participants expressed interest in a more streamlined and consistent application process across the program’s various components as well as more user-friendly forms and more web portal applications. Participants also highlighted the need for greater support to new entrants.

Although the CBF does not directly support authors, their associations called upon the Department to ensure that program renewal, through greater funding for publishers, also trickles down to authors.

Finally, a majority of stakeholders welcomed the opportunity to share their views on the CBF with the government and expressed that they wished to be consulted throughout the CBF renewal process.

Support for Publishers Component (SFP)

Stakeholders stated that the Support for Publishers component is the most effective national funding program for building capacity and ensuring stability in the Canadian-owned publishing sector. As currently designed, the majority of stakeholders believe that the component works well for large publishers who are able to meet eligibility thresholds and have staff to manage what can be a complex application process. Publishers in Atlantic Canada shared that while they face similar challenges as other regions in Canada, barriers such as smaller fragmented markets and significantly higher shipping costs from printers and fulfilling wholesale and retail orders, are particularly acute in the Atlantic region. As such, publishers in the Atlantic expressed that the current design of the program fails to reflect these factors.

New entrants

Stakeholders, including official-language minority (OLM) publishers’ associations, stated that the CBF should revise and consider lowering its eligibility threshold to ensure that a more diverse array of publishers have access to funding. Lower thresholds would ease program entry barriers faced by smaller publishers, who are required to take the same risks as larger publishers, while operating with less risk capital. CBF funding is considered an investment in the potential growth of a firm which increases the number of Canadian-authored books produced, supports diverse communities and regions, and increases access to Canadian-authored books across the country. Conversely, when smaller firms can’t meet eligibility requirements, this can have serious impacts on activities and on the growth of the Canadian-owned market overall. Stakeholders shared that this has a disproportionate impact on Canadian literary publishers and results in fewer outlets for new writers.

In addition, participants suggested creating a time-limited access category with lower-to-no-sales threshold, with the specific objective of helping small or emerging publishers gain access to program funding. Through this “incubator”, publishers could use a simplified application form and their sales could be factored in the funding formula using a single coefficient. Suggestions were provided for a model based on how the Société de développement des entreprises culturelles (SODEC) in Quebec treats new entrants with reduced criteria based on various factors (geographical isolation, specialization, etc.).

Overall, stakeholders expressed that a simpler application process for new applicants should be considered and that new entrants could be better supported while onboarding to the CBF. Certain stakeholders suggested that a compensation program to incentivize existing recipients to mentor new applicants could implemented.

Definition of Canadian-Authored Book

Stakeholders expressed that the definition of Canadian-authored books should be revisited regularly by the program.

On a technical level, some stakeholders stated that care should be taken to ensure that “Canadian-authored” is defined inclusively to include all Canadian translators and illustrators of all types of books. A book translated by a Canadian translator should be considered Canadian-authored, whether the translation is into French, English or an Indigenous language. Canadian illustrators of different genres, such as graphic novels should be considered Canadian authors, similarly to how the program defines Canadian authorship of children’s picture books.

Participants from publishers’ organizations expressed a need for continued support for “Canadian authored and published” titles, as opposed to only “Canadian-authored” titles, as the latter may result in less support for Canadian publishers. Some stakeholders also expressed that, overall, the program should focus on “Canadian-published” books as the most important program criterion and not “Canadian-authored”. Since the Canadian-owned publishing industry produces the vast majority of Canadian-authored books that are published each year, they stated that support for the domestic industry, therefore, also supports Canadian authors.

Moreover, some stakeholders suggested that the definition of Canadian authorship should be amended to respect the sovereignty of Indigenous nations. Stakeholders expressed that Indigenous authors, illustrators and translators should be consulted about the appropriate language for program definitions.

Publishing Support Sub-Component (PS)

Overall, stakeholders expressed that the Publishing Support sub-component is simple, relatively easy to apply to, rewards success in the marketplace and distributes public funding in a fair and equitable fashion. Any changes to the program that are intended to address industry priorities should align with these principles.

With regards to the eligibility criteria, publishers suggested that the required sales minimum be more flexible to alleviate uncontrollable small shortfalls in sales that render publishers below the sales threshold resulting in immediate ineligibility to SFP; the impact of the sudden loss of CBF funding is difficult to recuperate from and often plagues small publishers with limited avenues to fully recover. Participants also suggested averaging sales over multiple years instead of on a year-to-year basis or implementing a one-year probation period to allow the affected publishers time to recuperate the losses without being excluded from the program.

Stakeholders urged the program to be careful in implementing too many changes to sales coefficients to incentivize or bonus particular choices by publishers as it may have diminishing returns. Additionally, some stakeholders indicated that the program should eliminate the enhanced sales coefficient for new digital titles, digital editions, and digital rights as the market for digital books has matured and there is no longer a need to incentivize the creation of digital editions. Finally, some stakeholders shared that there needs to be more clarity and transparency for recipients on the application of sales coefficients and on the formula allocation process.

Publishers pointed out that the recent changes to the sub-component to increase the sales coefficient for titles authored by members of Indigenous, official-language minority and racialized communities have incentivized sales growth. However, reporting is difficult and labor intensive for many, especially those with limited staff. Moreover, publishers also admitted feeling unease with sharing identifying information on their authors and that the lack of anonymity through this process has the potential to yield inconsistent data as not all publishers have complete identity information of all their authors. It was mentioned that many public funding programs that collect this data have anonymized their format and made it optional for authors to choose to disclose this information. Some stakeholders encouraged the government to investigate other means of addressing this issue.

With respect to the definition of ownership, broadening the definition of under-represented publishers was recommended, to include and recognize management (such as senior executives) alongside owners from equity-deserving and Indigenous communities.

Business Development Sub-Component (BD)

Overall, stakeholders indicated that the Business Development sub-component can be impactful for new firms and remains important for established publishers. While they shared areas for improvements for this sub-component, stakeholders expressed that they hoped that increased funding to core elements of the CBF (Publishing Support and Support for Organizations) would be a greater priority for new investments to the program.

Regarding internships, stakeholders shared that they are considered a valuable asset for publishers; however, companies rely heavily on short-term and freelancing positions to fill-in the capacity gaps. Publishing associations members have relayed that allowing for more long-term internship positions would build greater opportunity for future succession as well as stable and self-sustained operations. Allowing for longer term internships as well as supporting professional development training at senior levels would create opportunities for employees from equity-deserving communities to attain high-level positions where there is currently unbalanced representation. In addition, the ability to permanently hire interns through the Business Development sub-component would be valuable.

Additionally, participants suggested SFP fund collaborative mentorship projects as a possible means by which newer applicants to the program could see growth and ultimately reach a level of self-sufficiency to be eligible on their own.

Further, stakeholders indicated that the ability to fund consultants and the acquisition of enterprise software should be considered under this sub-component.

Associations raised concerns with the use of Canada Council for the Arts core funding as an eligibility criterion for business planning and internship support because the Canada Council has not accepted new applicants for core funding in some years and has signaled to the industry that its budgetary constraints mean few new recipients would be approved in 2023.

Some publishers’ associations indicated that the current deadline (January 31st) is not an ideal time for publishers to prepare an application.

Participants expressed that succession and ownership issues persist (and have potentially increased) post-pandemic. Some stakeholders stated that successful mid-sized publishing firms are no longer affordable acquisitions. Suggested solutions included revisiting capital investment and loan loss guarantee programs at the provincial and federal level to help with succession planning. In addition, because of the challenges with the retention of full-time staff, due in part to an inability to provide competitive wages, there are less staffs able to buy into publishing companies. This could be alleviated through increased internship support through Business Development or by adjusting renumeration with the increased cost of living, should Publishing Support funding increase.

Support for Organizations Component (SFO)

The Support for Organizations component remains vital to the Canadian book industry for a significant number of stakeholders. The SFO component allows for the creation and growth of both targeted and large-scale initiatives. Stakeholders were nearly unanimous in stating that the SFO is underfunded. Participants shared how the component’s current funding level does not allow recipients to keep pace with increases in project and operating costs, including, the cost of labour.

Publishers’ associations stated that, as a complement to the SFP objective of supporting Canadian-owned publishers, which publish the great majority of Canadian-authored books, the objective of the SFO should also be to support the Canadian-owned publishing sector, through collective initiatives, to help Canadian culture compete at home and internationally.

Application Process and Reporting

Participants agreed that the SFO project application and evaluation process is fair and relatively straightforward for a project-based component. However, many suggested guidelines and reporting tools be reviewed to make them simpler and clearer. It was suggested that CBF align its application and reporting processes and requirements with other Department programs that may fund the same or similar projects (e.g., the Canada Arts Presentation Fund) and with other federal funders when possible. Additionally, the Ontario Trillium Foundation was cited as an example the CBF could follow to simplify the onboarding process.

Participants recommended the CBF organize meetings between program officers and new applicants prior to application and at various points throughout the funding period. A number of participants expressed concern with changes in program officer on their file from year to year. They felt this led to inconsistencies in application and reporting requirements and instructions.

In terms of reporting, some publishers’ associations stated that they considered interim and final reporting requirements unnecessarily onerous and taxing for their limited human resources. Participants recommended allowing recipients to use existing documents for reporting (e.g., the organization’s annual report) rather than ask specific reports for SFO funded projects. A publishers association recommended doing away with the project-based monthly cash flow statements that are requested in some contribution agreements. In their view, producing these statements is labour intensive and they do not provide useful information about the progress of projects; they could be replaced by lighter reporting. One literary event organizer expressed they had difficulty aligning their reporting with the government fiscal year when their reports and financial statements were based on calendar years.

Some recurring projects are funded through multi-year agreement. Participants agreed that the SFO should continue this practice for successful projects. A participant involved in technology projects stated that, to produce good technology, flexibility and predictability in funding are needed, therefore multi-year funding for long-term projects would be helpful. However, participants of many of the engagement sessions indicated that while multiyear funding eases the administrative burden and offers some stability, a lot can change in a year, including project costs; some were concerned of being locked into insufficient funding over multiple years.

Participants were asked if the program should create a business-plan-based application process for organizations, allowing for a less arduous funding approach for recipients that have a long-standing record with the program and apply for multiple projects. Opinions diverged among participants. Some mentioned that while multiple applications represent a lot of work, they would not want to combine projects if it could result in decreased funding or if it would prevent them from accessing other Department funding. Other organizations had a positive outlook on the suggested approach, saying that it could, if handled with appropriate care, benefit low-risk applicants and those with an established track record with the program, as well as ease the administrative burden for both the applicants and the program. A publishers association suggested multiyear core support through a business plan approach, with the option of additional project applications for innovative projects on an annual basis.

Priorities, New Entrants

With its existing envelope and a history of funding recurrent projects, the SFO’s priorities and the place it carves out for new entrants are important issues for stakeholders.

Some publishers’ associations identified that their key priorities align with projects designed to help grow the market share of Canadian publishers. Collective technology and export projects were generally viewed positively, with some described as essential to the success of the Canadian-owned publishing sector. Data aggregators stated the importance of technology projects to produce good data, which in turn is crucial to discoverability. Some participants expressed that collective projects focusing on international activity should continue to be prioritized because they help smaller publishers have a presence in international markets.

Literary events funded through SFO are seen favourably by stakeholders, including publishers and authors. Author associations said festivals, salons du livre and awards are vital to the visibility of their members. However, some participants suggested that not all events are aligned with the CBF’s mandate to drive sales of Canadian-authored and Canadian-published books, and that not all are equal. Participants expressed that SFO should give priority to projects that predominantly showcase Canadian books and that can show an impact on sales. Some suggested data on sales of Canadian books be used to establish priority and funding level, taking into consideration reach and location. Author associations recommended that SFO place priority on projects featuring more Canadian authors and their works, whereas publishers’ associations wanted SFO to put the emphasis on Canadian authored and published books.

Author associations mentioned the impact a literary award can have on the discoverability and marketing of a book; it was mentioned that, in some cases, an award will generate more visibility and sales than participation in an event or any other marketing effort. Awards also give authors more bargaining power for future book publication and for promotion.

Recurring projects occupy a major part of the SFO envelope. Participants stated that existing recurrent projects remain relevant and effective. A participant association expressed that “core” activities appeared less valued by the program than “innovative” ones. Many participants highlighted that a recurring project does not necessarily reproduce the same activities from year to year. In that regard, professional development and technology projects were cited as continually evolving and being updated to meet industry needs or governmental priorities; a participant encouraged the program to view them each year as new projects.

Overall, participants expressed that SFO should not discontinue or reduce funding for successful recurring projects in favour of new funding priorities. They agreed that the component’s budget should be increased and that its guidelines should remain flexible, in order to welcome new organizations and projects as well as advance priorities like Reconciliation, equity, diversity, inclusion, greening practices, export and accessibility. As a means of helping new organizations access SFO funding, a publishers association suggested that SFO prioritize collaborative projects between more established organizations and newer organizations as they can move the latter closer to being able to apply to SFO on their own.

Support for Indigenous, Equity-Deserving, and Official Language Minority Communities

Participants stated that it is relevant that equity, diversity and inclusion be core principles of the CBF, as the program is uniquely placed to support the publication and promotion of literary works by and for all Canadians.

Authors’ associations recognized the progress made in the industry in this area, notably the increase in the diversity of published authors, although they agree that there is still a lack of continued support for authors from underrepresented communities. They also expressed the view that authors sometimes feel that they are being confined to their identity and that the industry is trying to “check boxes”.

Reducing Barriers Within the Industry

When asked what significant barriers exist in the Canadian book publishing industry for Indigenous, equity-deserving and OLM groups, authors, and publishers and how the CBF could help reduce barriers to make the program more inclusive and accessible to these voices, participants pointed in many directions.

Publishers’ associations mentioned that access to startup capital, distribution services, skilled staff and professional networks are barriers to establishing and growing all publishing company and that these issues are likely to be more acute for Indigenous, equity-deserving and OLM-owned or managed publishers, as well as those located in non-urban areas. Access to audiences was also raised, as trying to reach non-traditional audiences may mean that publishers need to work outside traditional publishing sector structures; it was recommended that the CBF show flexibility towards differences in business models.

Challenges in bridging gaps between linguistics markets were raised. A participant raised high translation costs and the added difficulty in marketing translated works as an aera where added support could help. Independent English-language booksellers also highlighted current barriers they are facing when trying to sell French-language books to French-language minority communities and to francophiles in their areas. Issues stem primarily from gaps in knowledge and from differences in the ways the industry operates in each linguistic markets (i.e., bibliographic data, ordering and shipping practices, etc.). They constitute barriers to access to audiences for OLM publishers that the program should help the industry address.

Program Outreach Activities

Participants suggested the program undertake an application workshop as outreach for new and potential future applicants, prioritizing publishers and organizations from under-represented groups. Additionally, according to participants, program guidelines should be written in plainer language to be more accessible for all potential applicants. Such a guideline review and the development of an application workshop should be done in collaboration with publishers who are not yet recipients of the CBF, to better identify elements of the application process and documentation that may be challenging for them.

Participants encouraged the CBF to engage directly and publicly with Indigenous, OLM and equity-deserving communities through industry and community groups, to build awareness and trust. The creation of permanent advisory groups, in collaboration with national publishers’ associations, was also suggested.

Guidelines and Application Process

To decrease the barriers faced by publishers that are part of Indigenous, OLM and equity-deserving communities and to support publishing and sale of books authored by members of these communities, some stakeholders suggested that the CBF’s eligibility criteria and guidelines may need to be modified, with the objective of reflecting the current realities of the Canadian book industry. Comments from participants focused on the SFP component.

An association of publishers stated that they did not propose major changes to the SFP component’s eligibility criteria. Another association stated that, in the context of increased overall funding, they would support further lowering the sales threshold to increase access to funding for a diversity of publishers, but that the objective of facilitating entry to the program for publishers from equity-deserving communities could also be pursued through a “new entrant/incubator” access category.

A publisher association suggested that the Publishing Support requirement that a minimum percentage of net revenues of an applicant be related to the publication and sale of books (40 percent for OLM companies and companies owned and controlled by members of an Indigenous or racialized community, 65 percent for other applicants) be further reduced for Indigenous publishers. It was mentioned that many Indigenous publishing programs are embedded in larger institutions.

Stakeholder views on the CBF’s recent increase in coefficient in the Publishing Support formula for sales of books authored by members of Indigenous, OLM and equity-deserving communities are highlighted above in the Publishing Support sub-component section of this document, as is the recommendation to consider management alongside owners in identifying publishers “from” these communities.

Some suggested that precise eligibility criteria for emerging publishers through a “new entrant/incubator” access model with priority given to publishers from Indigenous, OLM and equity-deserving communities would contribute to bring down barriers.

Supporting Emerging and Established Organizations

Publishers suggested more flexibility to the SFO’s eligibility criteria to include unincorporated collectives composed of Canadian publishers, festivals and literary events as eligible funding recipients, as it is often in this form (and not as incorporated entities), that initiatives from equity-deserving communities and serving them are created. Adjusting program guidelines to allow SFO to directly fund these collectives, like some art councils do, or using flow-through grants in which unincorporated collectives partner with established organizations, could be ways for the CBF to support the work of these emerging groups and help them develop.

SFO supports a great number of salons du livre, literary festivals and other events, as they offer opportunities for authors and publishers to promote and sell their books and meet their audience. As such, they can also serve to support access to books authored by members of equity-seeking, OLM and Indigenous communities. When surveyed on the role of salons and literary events in this regard, publishers’ associations praised the work of dedicated organizations in organizing events that support publishing by and for equity-deserving communities and engage audiences that have traditionally been neglected by mainstream book publishing institutions.

Literary events stakeholders shared the challenges they face with both promoting authors from equity-deserving, Indigenous and OLM communities and reaching underserved audiences. Event organizers are conscious of the importance of inviting authors from equity-deserving communities in order to increase the diversity of their audience. Some mentioned that events, especially those in rural aeras, struggle to receive programming suggestions from publishers that include authors from equity-deserving communities. Many participants mentioned difficulties with reaching diverse, underserved and underrepresented communities and requested funds, programs, initiatives, or partnerships to support cultural outreach, including travel.

High transportation costs are an issue raised by a great number of stakeholders. Event organizers indicated that they saw increased demand from less central, underserved, areas in hosting literary events, but that travel and logistical costs often were an obstacle. The current SFO budget is insufficient to incentivize the industry to branch out into these areas. Additionally, according to participants, more support is needed for organizations to be able to invite authors from remote communities to events in order to create a more diverse audience.

One participant stated that while literary events are improving the visibility of authors from underrepresented communities, sometimes they fail to showcase authors living with disabilities and immigrant/migrant authors.

Representation in Leadership, Retention and Career Progression

Stakeholders from all sectors of the book industry expressed challenges in recruiting and keeping employees from equity-deserving, Indigenous and OLM communities. They made a number of suggestions on how the CBF could further help them increase diversity in the publishing workforce, at all levels, and help build skills and capacity among equity-deserving communities in the industry.

Stakeholders stated that increasing the SFO funding envelope would allow for more support for collective projects offering seminars, mentorship, and coaching programs, through traditional publishing organizations as well as through organizations focusing on the place of members of equity-deserving communities in the book industry. With regards to internship support, stakeholders suggested extending the funding for a period longer than one year. To complement entry-level internships, the creation of mid-career and senior level training opportunities (mentorship, coaching, professional development, placements, etc.) was also suggested to ensure growth and retention.

One of the publishers’ associations suggested to test a new approach to increasing ownership of existing publishing companies by members of equity-seeking, Indigenous and OLM communities: making funding available for members of these communities to purchase companies or to buy into ownership of companies. This would also be a way to address succession concerns in the sector.

Above all, publishers’ associations agreed that the main obstacles facing the book industry in recruiting and retaining employees are low wages and precariousness. Funding that is sufficient for publishers to be able to offer competitive salaries, reasonable benefits, permanent employment and development opportunities is seen by publishers as the most effective way to ensure recruitment, retention and career progression of staff from equity-deserving, Indigenous and OLM communities. Low-paying jobs, especially in high-cost cities, can only attract individuals with family wealth or other means of support, who tend not to be from under-represented communities. Consequently, stakeholders agreed that an increase in core funding of the CBF would help firms and organizations offer working conditions that reinforce equity, diversity and inclusion in the books industry.

Export

Barriers to Export, Solutions to Boost Export Sales

For many publishers, export is a growth strategy, however, it is expensive and is viewed as not self-sustainable. Increased support for export activities was repeatedly called for by publishers’ associations as a way to offset the staggeringly growing costs of being active in the export market (i.e., shipping costs for printed books, travel costs for rights sales, costs to participate in events, etc.) and to maintain and foster competition.

Costs associated with international travel were identified as an increasingly serious barrier to export sales. Participants indicated that rights’ sales are built on relationships between publishers, and that the pandemic demonstrated how essential in-person interactions at rights’ fairs are to developing and maintaining these relationships.

Additional financial investments in the Foreign Rights Marketing Assistance Program (FRMAP) and the export supplement of the SFP were seen by publisher associations as the most effective ways to address these barriers. The current export supplement cap has not been increased for some time and is deemed too low by many participants. It was suggested that it be adjusted to subsidize the increased challenges and incremental costs inherent to export.

Participants stated that export programs and projects should be flexible to respond to the needs of publishers. Funding should extend beyond travel costs and other costs associated with a physical presence. For example, support for the translation of promotional materials to languages beyond Canada’s official languages would be welcomed.

English-language publisher associations highlighted some specific barriers presented by the US market for Canadian-published books, particularly those from small and medium-sized firms. Because the country is vast, having a physical presence at regional and national events in the US can be cost prohibitive. There are also substantial costs involved to display titles on American sales platforms. Market-distorting practices of some big-box and online retailers also make it difficult for literary-press titles to gain shelf-space and visibility. Participants suggested collective mentorships funded through SFO to give small and mid-size publishers the opportunity to expand their export strategy, especially in the United States.

In order to increase the exportability of Canadian titles, participants suggested increasing funding for translated works. Support for the translation of non-fiction titles was especially identified as way to increase export sales; non-fiction is a popular category of books abroad, but with the current translation support structure, Canadian publishers are at a competitive disadvantage. The success of the special translation support offered in preparation for Canada’s Guest of Honour years at the Frankfurt Book Fair to translate books into German was highlighted. Publishers suggested that this initiative be replicated and expanded to other regions.

Participants from author associations were particularly concerned with being able to reach international markets independently of their publishers. It was suggested that international and translation rights are often held by domestic publishers without meaningful exploitation efforts. In light of their limited budget, Canadian publishers mostly promote recently published titles at rights fairs. Authors associations would welcome the opportunity to receive support, for example through a collective project, for authors to market the rights to their titles independently of publishers.

Prioritization of Projects with International Activities

Most participants agreed that the continued funding of the FRMAP, Livres Canada Books and Québec Édition projects remains important for Canada’s presence in the international market and that the expertise developed through these initiatives leads to greater success for publishers.

Collective export projects were viewed as crucial by some stakeholders, particularly for smaller publishers trying to access the market in the United States. Others suggested that due to differences between publishers, particularly in the types of books they publish, the marketing and discoverability approach they choose or the global relationships they have developed, collective export projects can be difficult to execute. According to these stakeholders, resources are best invested directly with publishers, either through the SFP’s export supplement or through further redistribution initiatives such as the FRMAP administered by Livres Canada Books.

Lessons Learned from Other Initiatives

Although the costs for accepting guest-of-honour invitations can be considerable, participants agreed on the importance and reverberating success of these appearances on export markets. Support for export projects is needed to capitalize on the momentum achieved by Canada as a recent guest-of-honour at the Frankfurt Book Fair. One participant remarked that Spain had a strong strategic approach to their Frankfurt guest-of-honour appearance, which included a multi-year plan extending past their initial presence at the event.

Translation Support

The Department currently funds the National Translation Program for Book Publishing (NTPBP), administered by the Canada Council for the Arts. Stakeholders have been calling for adjustments to translation support for several years while stressing the importance of the existing funding vehicle for literary publishers. These views were also reflected during the recent engagements.

Developing a Complimentary Translation Program

Generally, stakeholders were positive about the development of a translation program complementary to the NTPBP. Some publishing associations stated that they could support the development of a translation program complementary to the NTPBP only if the program’s budget is first increased to address lost capacity in the existing funding components at the levels stated in platform commitments. This complementary program should have flexible criterion and accept a wider range of Canadian titles and publishers. In particular, as mentioned above, stakeholders want to see the federal government support translation of non-fiction titles. Stakeholders also stated that a new complementary program should be implemented in the context that NTPBP remains properly resourced as it is essential to literary publishers.

Ideally, for participants, the new funding vehicle would continue to fund the translation of works by Canadian authors to and from official languages, prioritizing titles by Canadian-owned book publishers, and include the translation to and from Indigenous languages to better represent Canada’s linguistic history and diversity. One publishers’ association stated that foreign-authored books with a Canadian translator should be considered a Canadian-authored book for the purpose of new translation funding. It was also recommended that such a translation program ensure access for smaller presses and literary books, for both equity and cultural reasons.

A publishers association recommended that some production costs be included in eligible expenses for translation of children’s books. In the course of translating an illustrated book, the layout of pages may have to be redesigned to accommodate text that is longer or shorter than in the original language. This type of assistance is sometimes included in translation programs in other countries.

Authors also suggested a focused translation program that would allow Canadian authored manuscripts not written in French or English to be translated into an official language.

Barriers and Opportunities for Translated Works

Associations indicated that translation costs remain very high, and that the market is more difficult to penetrate for translated works, so it makes sense to provide more support for those works, which amplify cultural exchange and advance understanding across communities.

National associations stated that the rate of pay for translators has been significantly undervalued and that the current program has not been able to keep pace in this regard, particularly with current rates for translation of Indigenous languages. They recommended translation rates reimbursed by funding programs keep up with market levels and be indexed.

One publishers’ association indicated that long timelines for funding approval can act as barriers to market access for translated works. Marketing support for translated books is also a vital element since discoverability and sales are more difficult for these titles. A new translation program would need to take into consideration these barriers.

Additional concerns around their members’ translation rights were expressed by author associations. As mentioned previously, they stated that some authors would like to conserve their translation rights, to retain more control over the exportability of their works. However, this is currently not a commonly negotiated option since public translation support is awarded through publishers.

Accessible Publishing

During the roundtable discussions and through written submissions, stakeholders highlighted the progress made by the industry through the CBF’s Accessible Digital Books Initiative. Examples of improvements since the onset of the federal investment include the increase of workforce capacity through training, shared resources, and internships, as well as the availability of new and backlist titles to readers living with print disabilities through conversion and marketing support.

Stakeholders were unanimous in stating that ongoing funding for accessible publishing is required to maintain this momentum. Activities that require ongoing support include certain aspects of digital book creation and marketing, the production of audiobooks, and the availability of accessibility metadata through various platforms. Funding the production of accessible digital books was flagged as being an important first step, but more needs to be done to incentivize both the production and distribution of these products. Stakeholders also stated that any new federal funding to support accessible publishing would need to be above and beyond investments to increase the base budget of the CBF.

Challenges and Opportunities

Associations agreed that following the five-year Accessible Digital Books Initiative, the costs of accessible publishing continue to not be self-sustainable without further funding. The underdeveloped commercial market for accessible materials was flagged as a major barrier to the sustainable production and dissemination of accessible digital books. In addition, gaps remain with respect to the use of metadata related to accessibility features. One publishers’ association shared that commercial eBook and audiobook vendors do not use accessibility metadata and the products they offer their users often do not include key accessibility features.

Participants stated the need for additional investment for accessibility to remain a financially feasible priority for publishers (and the rest of the book value chain). The majority of stakeholders shared the same concern – that sales figures do not reflect the progress made on accessible eBooks and audiobooks. Individual publishers continue to grapple with the incremental costs of producing accessible books which cannot be offset by sales revenues. One publishers’ association suggested that anticipated regulations requiring accessibility features in some or all major markets may help grow the market for accessible digital books. In addition, promotional support to ensure that readers and institutional buyers (libraries, academic markets) are aware of the availability of accessible titles continues to be essential.

It was also suggested that the CBF consider how incentives or requirements related to accessible digital publishing could be included in direct funding for publishers as the Accessible Digital Books Initiative comes to an end, to ensure that accessible publishing continues. Support for audiobook production, which remains costly, was also highlighted as critical by one publishers’ association. While this is not unanimously supported by publishers, one stakeholder stated that new investments in accessible publishing must include a requirement that books produced meet accessible publishing standards.

Furthermore, stakeholders shared other areas where continued support would benefit accessible publishing by individual publishers. These include support for Benetech certification as well as staffing support through permanent positions, and not just through internships which are labour-intensive for the host firms. Others pointed to the model used by the CBF for the previous Supply Chain Initiative as a successful model to emulate for incentivizing certification.

Moreover, the implementation of the Marrakesh Treaty in Canada was stated as a barrier impeding the creation or commercial distribution of accessible books. The Treaty sets international standards on certain exceptions to copyright so that print materials can be adapted into formats that people living with disabilities can use. It also makes it possible to distribute accessible-format copies between countries. In Canada, the implementation of the Treaty also includes safeguards to ensure interests of authors and publishers are respected, where accessible-format copies are already commercially available. Stakeholders have stated that organizations serving Canadians with print disabilities are not always exercising due diligence in verifying the commercial availability of accessible-format works before proceeding with the creation and distribution of accessible-format version of works. In addition, publishers stated that they are receiving pushback from agents on the sale of eBook rights due to concerns that these works may be made freely available.

One stakeholder flagged the need for the creation of an accessibility lead (person or office) for Canadian publishing to support publishers by offering guidance on accessible publishing practices and technology, standards and international trends. Such a lead would also be a way to centralize best practices, coordinate consultations, webinars and workshops and would serve as a resource for publishing adjacent organizations like the National Network for Equitable Library Services (NNELS) or eBOUND. Further, an accessibility lead could help maintain the momentum of the Accessible Digital Books Initiative and ensure the continuity of accessible publishing activities in Canada.

High staff turnover in the publishing sector was identified as impeding progress in accessible publishing. Small publishing firms invest time and resources to train and develop junior employees on accessible publishing standards and practices. Often, these investments are lost when employees leave for more lucrative opportunities in accessibility where salaries can be doubled. Increasing core funding to publishers through the Publishing Support sub-component would support competitive wages, and in turn staff retention in the accessible publishing sector.

Infrastructure

Stakeholders expressed that the infrastructure for the commercial sale of accessible digital books is essentially nonexistent. While they agree that publishing accessible digital books is the right thing to do for the public good, investments are needed on infrastructure. Improvements to the content and dissemination of metadata were flagged as being important to addressing this gap. Stakeholders also identified the continued need for accessibility metadata to be made visible through various platforms. Updates to vendor systems and title management systems updated with the latest ONIXFootnote 3 code list releases would also help to address metadata issues in the supply chain. Finally, the need to provide training and incentives to publishers to produce and display good metadata are critical.

Moreover, publishers recognized the efforts of industry organizations such as eBOUND Canada and BookNet Canada, both heavily involved in creating infrastructural support. They stated that funding to these types of organizations must continue to allow publishers to access accessible publishing resources, increase workforce capacity, and enhance the discoverability of accessible digital books by librarians and readers. Further, one stakeholder recognized the importance of continued and stable funding for NNELS, an organization that does important work in accessible publishing.

Greening Practices

While the Canadian book sector has taken steps to reduce its environmental footprint and implement green practices, important challenges remain.

Existing Initiatives

The publishing sector has made progress on greening its practices by choosing forest certified papers and by using recycled papers. In addition, there are a number of projects aiming to calculate the carbon footprint of book production to help inform publishers’ choices. In recent years, there have also been many professional development offerings on green publishing practices. Publishers have commended the work of the emerging international initiative of the Green Book Alliance, aiming to inform, create and promote sustainable publishing mindset and practices. Stakeholders invited the CBF to follow its future projects and engagements.

Literary events organizations shared their first steps towards implementing greening efforts: discontinuing the use of paper programs and bottled water, encouraging reusable bags, offering digital programming, and using digital marketing tools. Participants also expressed that festivals and literary events had to adapt during the pandemic and have since leaned into digital practices which has reduced their environmental impact.

Challenges and Opportunities

One publishing association stated that the repatriation of printing to Canada would be the most effective way to reduce the carbon footprint of the publishing sector in addition to increasing the availability and the use of recycled or sustainable paper. As a result of the prohibitive cost of colour printing in Canada, combined with the under-funding of the publishing sector, stakeholders stated that the majority of full-colour print jobs are being handled by printers in East Asia. One publishing association recommended that an increase in funding to the Support for Publishers program would help publishers repatriate this work to Canada. While enhanced funding coefficients could be used to support this work, these coefficients should be based on the quantity of titles printed in Canada, not on sales of those titles. Tracking and reporting of books sales based on the country of printing would be impossible for the majority of independent publishers.

Book returns from distributors and booksellers was raised as a significant harmful practice for publishers and event organizers alike. An incentive to keep the books in stores, through discounts and special promotions as is the norm for other products sold by retailers, rather than doing returns, would be a much greener practice. Currently, there is little incentive for booksellers to keep unsold inventory, as they simply return the books to publishers as a matter of course. In the case of literary events, the lack of availability of large distribution/storage facilities for books in their vicinity and the distance from large publishing centers has an impact on the movement of books.

It was also noted that there is an increase in popularity for print-on-demand jobs, a more sustainable printing option. However, due to the pressures on printing capacity, publishers are forced to produce large batch jobs to minimize reprint time, which in turn causes overprinting. Finding better ways for publishers to work with booksellers would reduce waste that results from overprinting. Publishers’ associations indicated their support for incentives for publishers that adopt greening practices in production and distribution.

The industry is facing additional ecological challenges linked to printing, particularly with regard to children’s book publishing and sales catalogues. The environmental impact of printing children’s books, which use more ink, have shorter life spans than most other books and often use mixed material, such as plastic, remains a challenge. In addition, while publishers have reduced their production of printed catalogues over the last decade, some booksellers and sales representatives still require them. Stakeholders would welcome support or incentives to fully eliminate printed catalogues from the sales process.

With respect to literary events and festivals, stakeholders expressed that there is a lack of strategic planning and resources available to implement green practices. Organizations want to become more environmentally friendly, but a sector strategy and additional funding are required to facilitate this transition.

Finally, some stakeholders expressed that gaps remained in measuring the ecological impact of the industry and its practices. While there exists a number of segmented carbon calculators, no overarching standalone calculator has been developed. Stakeholders expressed that a better measurement approach is needed. Other stakeholders expressed that the CBF could support training projects by industry associations, through which green best practices could be shared across the industry.

Discoverability, Promotion and Marketing

Successes and Innovations, Remaining Obstacles

The views of stakeholders on a number of issues related to the discoverability, promotion and marketing of books were outlined in previous sections: literary festivals, salons du livre and awards, quality meta-data, on-line marketing, geographical challenges, etc.

Many participants emphasized that the market dominance of imported books by multinationals in the English-language market needed to be examined with critical attention as Canadian publishers are struggling to occupy retail space and reach readers. One publishers’ association stated that Canadian-published books have gone from accounting for 27 percent of the marketplace thirty years ago to less than five percent today. It was recommended that the Canadian government implement incentives and safeguarding measures with new funding investment. The Quebec accreditation system was mentioned as a model to consider.

Publishers’ associations stated that their members face new and longstanding barriers to successful marketing. It was remarked that the best-selling books in Canada are not often Canadian-authored, further emphasizing the need for more marketing and promotion support. Publishers and authors associations remarked that traditional Canadian media coverage of books has decreased over the years and focuses on books by international publishers. Author associations indicated that bookstores were not holding as many in-store events showcasing Canadian-authors as before, because of increased costs.

Enhancing Discoverability, Funding Mechanisms

Stakeholders indicated that they must now direct their discoverability efforts both online and in-person. While an online presence is essential, participants stated that bookstores remain a key element in the marketing and promotion of books. Post-pandemic, readers are returning to their community bookstores and in-person events, salons and festivals are resuming. On the other hand, stakeholders have noticed the market’s shift to include online sales as a permanent fixture, while shipping costs are very high. In that context, booksellers outlined the importance of online marketing to lead to online as well as in-store sales and visits. Some participants indicated that the CBF should fund more digital marketing efforts, but that both online and traditional promotion should be supported by the CBF as they enhance each other. Additional funding dedicated to marketing eBooks and audiobooks was also suggested. One participant suggested the creation of a dedicated platform for Canadian eBooks.

Literary festivals, salons du livre and other events can also play an important role in discoverability, marketing and promotion. Author associations remarked that festivals and other events have most impact on sales when they have adequate promotion resources, and recommended SFO award more funding to smaller festivals and events to ensure they properly promote their activities and support authors. Mentoring opportunities from established literary events, salons and book fairs were suggested as a way to reduce entry barriers for newer entrants into this space.

Author associations indicated that their members are often required to shoulder considerable efforts in the marketing and promotion of their books, beyond the responsibilities taken on by their publisher. These efforts, often carried out at literary events, do not usually include additional compensation. Participants shared that while these responsibilities were being shifted more and more to authors, their advances were also seeing a downward shift. Author associations advocated for support for authors to take on these promotional activities, for example through collective projects.

A participant from the bookselling sector stressed the importance of building stronger relationships between publishers and bookstores to enhance discovery of titles. Also, as mentioned previously, some participants from booksellers’ associations expressed the need to facilitate the discoverability and sales of French-language books by booksellers operating in the English-language market. There is a desire to develop French-language book offerings which is impeded by the differing ways the bookselling sector operates in each official language market. Addressing this issue requires an examination of the structural differences between the two markets as well as discussion between stakeholders of the two sides of the industry.

Some publishers’ associations stated that collective marketing projects are sometimes not fully aligned with publishers’ distinctive marketing strategies. Although some collective projects have innovated in the promotion of Canadian-authored titles, if there was potential for new investments, publishers suggested that funds be directed through PS in priority in order to directly stimulate publishers’ marketing strategies with increased resources.

Author and publisher associations stated the importance of creating an environment that would increase media coverage and visibility of Canadian authors. It was suggested that the Department in its media and journalism programs include a requirement for recipients to feature, both in print and online, a number or a proportion of reviews of Canadian books.

Technology projects with a focus on metadata were described by one participant as a means to increase discoverability. Stakeholders indicated that, in order for organizations to produce quality technology projects, the program needs to be flexible and offer multi-year funding for long term projects. Organizations engaged in technology projects said they needed to be agile during development periods. The three-year funding approach used by SODEC technology projects was identified as a potential model for the CBF.

Support for Booksellers and Support for Distribution

Canadian-owned publishers have historically been the principal vehicle through which the Canadian government has achieved its objectives in the book sector because of their demonstrated contribution to identifying, developing and promoting a diversity of Canadian authors. The unprecedented impact of the COVID-19 pandemic led the CBF to expand its support to other parts of the book chain to support the Canadian book industry at large. The one-year Support for Distribution (SFD) component was launched as part of emergency support (2020-2021), and the two-year Support for Booksellers (SFB) initiative was created as a recovery measure (2022-2023 and 2023-2024). Although these temporary initiatives were not among the topics covered in the discussion guide for the engagement sessions, participants shared their views on their relevance, impact and design.

Many participants expressed that supporting booksellers has been a way to reinforce the Canadian government’s long-standing investment in the production of Canadian-authored books, made through support for publishers, by supporting the sale of these books, and therefore the overall health of the book industry. Thriving independent bookstores have a direct impact on the health of the book ecosystem and on access to and discoverability of Canadian-authored books. Funding for collective projects was also identified as a strategy to contribute to a healthy book ecosystem.

For these reasons, and because booksellers still face post pandemic pressures to remain competitive on shipping rates, booksellers’ associations as well as organizations representing authors indicated that they wished to see the SFB initiative renewed beyond the two-year commitment. One publishers’ association indicated that increased support for shipping books, either through a specific subsidy or a favourable postal rate, such as the one that exists in the US for media items and the one librairies enjoy in Canada, would help make online sales more sustainable and promote book buying, since shipping rates for books are absorbed by all parts of the book chain.

A number of participants consider investment in independent bookstores as the most effective vehicle to see increased sales of Canadian-authored books. Bookstores are seen as vital to Canadian authors through the visibility they give them as well as through events they organize or support. SFB created opportunities for bookstore to raise their online profile and, in turn, increase the visibility of a diverse range of Canadian-authored books. Some participants representing publishers remarked on the other hand that other emerging sales channels, like direct sales by publishers, offered more opportunity for growth.

Many participants from publishers’ associations expressed their disappointment with the fact that the SFB had adopted a “Canadian-authored” focus rather than a “Canadian-published” one. The use of SFB funds by booksellers to promote or support the sale of Canadian-authored foreign-published books was seen as cause for concern. From the publishers’ standpoint, the SFD emergency component, while it also involved retailers, had much greater impact on sales than the SFB because financial considerations had to be provided in support of the sale of Canadian-authored books published by Canadian publishers.

The perceived focus of the SFB on shipping fees was questioned by stakeholders. With the end of the pandemic, booksellers are seeing readers and shoppers come back to their stores in person and online sales are declining. High shipping costs continue to make online sales a less profitable channel. According to booksellers’ associations, online marketing (social media, online presence, etc.) is a powerful way to interact with audiences, leading to online sales as well as to in-store visits and sales.

A participant expressed that the early emphasis on online sales in industry lobbying as well as SFB program design may have directed recipients' focus to improving transactional websites, and booksellers may not have been aware that funding could be used for other activities that build their overall online presence in a way that drives both online and in-store sales.

Data aggregators remarked that the SFB led to conversations in the book industry about the importance of quality metadata and sales data. The existence and design of the program generated an uptake in clients for aggregators, meaning better sales data on the sector as a whole is now available.

Next steps

Canadian Heritage would like to thank all individuals and organizations that took part in the engagement sessions. The feedback provided by stakeholders during these sessions and through written submissions will be used by the Department to help guide the renewal of the Canada Book Fund. Canadian Heritage is pleased with the ongoing collaboration with all interested stakeholders to help support the growth of the Canadian publishing sector and the promotion of Canadian-authored books at home and abroad.

Annex A – Engagement Session Schedule and Participant List

Roundtable with Livres Québec – June 22, 2023

Roundtable with Literary Events (French-Language/Bilingual) – June 27, 2023

Roundtable with Regional and Provincial Publishers’ Associations – June 28, 2023

Roundtable with National Publishers’ Associations – June 29, 2023

Roundtable with Literary Events (English-Language) – July 6, 2023

Session with Data Aggregators – July 14, 2023

Session with English-Language Booksellers – July 21, 2023

Roundtable with Organizations Representing Authors – September 29, 2023

©His Majesty the King in Right of Canada, as represented by the Minister of Canadian Heritage, 2024
Catalogue number: XX0-0/0000
ISBN: 0-000-00000-0

Page details

Date modified: