Evaluation of Canada’s Action Plan Against Racism

1. Introduction

1.1. Introduction and purpose of evaluation

This report presents the results of the horizontal evaluation of Canada’s Action Plan Against Racism (CAPAR). The data collection was undertaken by Government Consulting Services (GCS) for Citizenship and Immigration Canada (CIC) between January and April, 2010. The objective of the evaluation was to examine relevance, design and delivery, and performance, with particular emphasis on evaluating the horizontal approach and design of CAPAR.

The report is organized into four main sections.

• Section 1 presents a profile of CAPAR and its funded initiatives;
• Section 2 presents the methodology for the evaluation and discusses methodological considerations;
• Section 3 presents the findings; and
• Section 4 presents the overall conclusions.

This report is accompanied by a supplemental document which contains the appendices cited throughout this report.

1.2. Profile of CAPAR

1.2.1. Context and objectives

CAPAR was launched by the Government of Canada (GoC) in 2005 and represented Canada’s first horizontal federal approach to combating racism. Its goal was to help ensure that all Canadians were included and had a role in society and the economy regardless of background, race or ethnicity; that all barriers to full and active participation and opportunity were eliminated; and that the justice system was equipped to respond to overt manifestations of racism in society ^{Footnote 2}. The three objectives of CAPAR were:

• a reduction in discriminatory behaviours and practices, especially in the areas of police services, the justice system and the workplace;
• a greater capacity on the part of federal partners and stakeholders (other government departments (OGDs), police, justice system, employers, unions, schools and community groups) to work on solutions to racism and diversity issues in their milieu; and
• increased opportunities for ethno-cultural, ethno-racial and Aboriginal communities to participate in Canada’s social and economic life.

Over the years, Canada has developed a strong legislative and policy framework to support and preserve shared core values, rights and responsibilities. CAPAR was founded on this framework, as well as on a series of domestic and international events that identified issues and priorities on anti-racism. Table 1-1 provides milestones in Canada’s legal/policy framework leading up to the creation of CAPAR.

1.2.2 Delivery approach

At the time of inception, CAPAR was led by the Multiculturalism Branch of the Department of Canadian Heritage (PCH). A Secretariat was established within the Action Plan Unit, which was responsible for the horizontal management of the Initiative, including: the development of corporate documents (e.g., Treasury Board (TB) submission, results-based management and accountability framework (RMAF)), annual reporting, annual consultations with stakeholders, and coordination between the nine funded departments. In October 2008, the Multiculturalism Branch of PCH was moved to CIC. At that time, responsibility for CAPAR became situated within CIC’s Citizenship and Multiculturalism Branch.

An interdepartmental working group (IWG) was established as a consultative body for the horizontal initiative and assisted in the development of the 2005 TB Submission and the RMAF. The working group included lead program officers, and, in some cases, evaluation representatives, from each funded department.

Funded departments were required to provide annual reports to the lead department (i.e., PCH or CIC) on key activities and results for their initiatives and were required to conduct their own program evaluations. Non-funded departments reported on initiative activities through the annual reporting mechanism in place for the Multiculturalism Program. PCH/CIC reported on CAPAR results and accomplishments through the Annual Report to Parliament on the Implementation of the Canadian Multiculturalism Act, and Canada’s periodic reporting to the United Nations (UN) on the implementation of the International Convention on the Elimination of all Forms of Racial Discrimination (ICERD).

1.2.3. CAPAR initiatives and budget

CAPAR included initiatives and strategies that were part of existing budgets and programs. There were more than 20 departments and agencies involved in CAPAR (see Appendix A: for a listing of all funded and non-funded programs).

In addition, five-year funding in the amount of $53.6 million (2005-06 to 2009-10), and $11.3 million ongoing, was allocated to support nine new and existing initiatives, as well as a Secretariat, for CAPAR. A brief description of each of the funded initiatives, including planned budget and operational status, is provided in Table 1-2 ^{Footnote 3}. The Secretariat was allocated $968.6K (over five years) and $227.8K ongoing.

The Multiculturalism Program at PCH had consulted with federal departments to identify where there were significant gaps in federal programming. A national forum on policing had similarly identified the need for policing authorities to incorporate diversity in their policies and programs and the need to establish rigorous data collection on hate crime. Finally, a gap analysis was completed which identified gaps in federal programming. On the basis of these consultations, forum, and gap analysis, new and existing initiatives were provided with CAPAR funding.

Funded initiatives were led by four departments: PCH, CIC, Human Resources and Skills Development Canada (HRSDC), and the Department of Justice (DoJ). The nine new or expanded initiatives related to racism as it affected: youth in school; employers; the workplace; the justice system; policing services; victims and perpetrators of hate crimes; and the development of government policies, programs and services for Canadians.

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