Gender-Based Analysis Plus

Section 1: Institutional GBA Plus governance and capacity

Governance

The Privy Council Office (PCO) undertook a range of activities in 2022-23 to reinforce GBA Plus governance in line with the PCO Management Response Action Plan (MRAP) to the Office of the Auditor General’s (OAG) Performance Audit of GBA Plus. In the MRAP, which was published in 2022-23, PCO committed to a comprehensive set of actions intended to implement three OAG recommendations to enhance GBA Plus within PCO as an organization and as a central agency. Specifically related to governance, in 2022-23, PCO:

• Established a working-level GBA Plus Network that helped to mainstream GBA Plus best practices across PCO;
• Created a Deputy Secretary-level GBA Plus Champion role at PCO;
• Prepared the draft of a GBA Plus Departmental Framework, composed of the six essential elements identified by the OAG: (1) committing through a policy statement, or statement of intent; (2) identifying a responsibility centre; (3) undertaking an organizational needs assessment; (4) developing training and tools; (5) implementing lessons learned from a GBA Plus pilot initiative; and (6) continuing to monitor progress;
• Fully integrated as a member of the Women and Gender Equality (WAGE)-led GBA Plus governance structures at the Deputy Secretary, Assistant Secretary, Director of Operations, and working levels;
• Engaged Deputy Ministers across government to encourage progress across federal departments and agencies on the implementation of GBA Plus institutional capacity frameworks; and
• Undertook planning efforts to establish an Assistant Secretary-level Committee on GBA Plus at PCO that will support and strengthen the in-house integration of GBA Plus in policy development and challenge/review functions, enhance departmental capacity building, and encourage sustained and ever-advancing focus on GBA Plus considerations, including the collection and analysis of disaggregated data.

Capacity

PCO undertook a range of activities in 2022-23 to reinforce GBA Plus capacity in line with the PCO MRAP to the OAG Performance Audit of GBA Plus. As with the governance activities listed above, these activities were undertaken in alignment with the MRAP. Specifically related to capacity, in 2022-23, PCO:

• Expanded capacity by designating two FTEs GBA Plus Focal Point by March 2023;
• Developed GBA Plus tools and resources for analysts including delivering tailored training sessions;
• Developed two job aids: one on disaggregated data and one on the application of GBA Plus to Memoranda to Cabinet to be released in late 2023; and
• Undertook work to develop a systematic approach to the review of the GBA Plus elements of Memoranda to Cabinet.

In addition, several PCO branches undertook tailored efforts to enhance GBA Plus capacity in their respective areas.

Results and Delivery Unit (RDU): Advancement of disaggregated data

RDU continued to promote the usage of disaggregated data across Government departments in partnership with Statistics Canada via the Assistant Deputy Minister Federal Advisory Committee (FAC) on Disaggregated Data, which RDU's Assistant Secretary co-chairs with Statistics Canada. PCO, as co-chair of the ADM FAC on Disaggregated Data, supported initiatives to improve cross-government efforts to address systemic inequities using disaggregated data. It also continued to promote cross‑Government awareness of approaches that leverage disaggregated data to identify systemic inequities in access to and benefit from Government programs and services.

The ADM FAC on Disaggregated Data is currently developing and will be overseeing a workplan to identify and monitor the concrete actions that will help advance the usage of disaggregated data across departments.

Additionally, RDU continued to review MCs and provide input on disaggregated data considerations.

Security and Intelligence Secretariat (S&I): GBA Plus Secretariat lead

In 2021, the PCO Security and Intelligence (S&I) Secretariat identified a GBA Plus lead to support coordination of GBA Plus considerations related to the security and intelligence community. Throughout 2021, 2022, and 2023, the S&I GBA Plus lead led interdepartmental qualitative and quantitative analyses to allow identification of areas of opportunity and improvement across the intelligence community. This included considerations of issues within hiring, retention and community building, personnel training, as well as analysis of the relationships intelligence organizations have with, and the effects they have on, diverse and equity deserving communities.

Social Development Policy (SDP): GBA Plus Awareness Week

The Social Development Policy (SDP) Secretariat led general activities related to GBA Plus for the entirety of PCO, including those noted above. In addition, in May 2022, SDP led activities to mark GBA Plus Awareness Week. These activities, which aimed to improve understanding of the value and application of GBA Plus at PCO, included a PCO-wide message from the GBA Plus Champion, as well as senior management participation in panel discussions on GBA Plus, open to all Government of Canada employees.  

Section 2: Gender and diversity impacts, by program

Program name: Intergovernmental Affairs

Program goals: Intergovernmental Affairs (IGA) provides advice and support to the Prime Minister, Minister of Intergovernmental Affairs, and Quebec Lieutenant on the federal/provincial/territorial landscape, bilateral and multilateral engagement with provinces and territories, management of the federation, and national unity.

Intergovernmental Affairs is the federal policy lead for internal trade and the Atlantic Loop.

Target population: For IGA’s Internal Trade team, the target population is businesses and workers who face interprovincial barriers to trade, labour mobility, and investment. This is also anticipated to have a significant impact on consumers by providing increased choices, lower prices, and greater access to goods and services, in turn leading to improved economic conditions and increased competition. For IGA’s Atlantic Loop team the primary target population is electricity rate payers in Nova Scotia and New Brunswick. Consideration was also given impacts on the population more broadly (e.g., air quality) and on workers who will be impacted directly by the construction of the line and indirectly by the associated phase-out of fossil-fuel-based generating stations.

Specific demographic group outcomes

For the Federal Action Plan to Strengthen Internal Trade, men are expected to benefit more broadly given their larger representation as small- and medium-sized business owners. However, the reduction of trade barriers and costs in certain service sectors (finance, health, education, law, government, etc.) will provide more benefit to women where they make up over 50% of the labour force.

The impacts of the Atlantic Loop on ratepayers and the broader population are likely to be gender balanced. Nevertheless, research suggests that some expected positive and negative impacts of the projects may affect specific groups (rural residents, men and women, Indigenous peoples, etc.) differently. It is believed that the intended relief from energy poverty resulting indirectly from this project will particularly benefit individuals over the age of 65, living in rural communities, or in Indigenous and/or remote communities. The gender make-up of the construction industry and energy sectors are predominantly men, 85% and 82% respectively. This, along with the fact that the energy sector is becoming more male-dominated over time, suggests the economic impacts associated with constructing the project and with the associated phase-out of fossil fuel generation will largely be felt by men.

Key program impacts on gender and diversity

Key program impact statistics

Not applicable. Internal Trade initiatives and the Atlantic Loop are in their first year of implementation and so have not produced any GBA Plus indicators yet.

Other key program impacts

As part of the planning for the Federal Framework for Mutual Recognition, Intergovernmental Affairs also prepared a GBA Plus assessment.

To support federal engagement on the Atlantic Loop, IGA worked with Natural Resources Canada to conduct a GBA Plus analysis of the project’s potential impacts on target populations in Atlantic Canada.

GBA Plus data collection plan

In general, IGA does not collect data on policy proposals as they are developed by departments and owned by Ministers. While not specific to data collection, in its challenge function role IGA supports GBA Plus efforts and ensures advice is informed by GBA Plus. This includes working with other government departments, particularly WAGE, to ensure federal-provincial-territorial alignment on GBA Plus issues and programs (e.g., the National Action Plan to End Gender-Based Violence). This also includes participation at the working level in the internal PCO GBA Plus Network, led by the SDP Secretariat. 

Intergovernmental Affairs’ involvement in the Atlantic Loop is limited to leading the initial round of negotiations with utilities and provinces on the path forward for the project.

Program name: International Affairs and National Security

Foreign and Defence Policy (FDP)

Program goals: The program goals of FDP are as follows:

• Cabinet is well served through FDP’s role as the secretariat to the Cabinet Committee on Canada and the World (CAW).
• The Prime Minister and Cabinet receive high quality advice through FDP’s challenge function on foreign and defence policy.
• The Prime Minister is supported in his strategic international engagement.
• Responses to international crises are coordinated through a whole-of-government approach.
• GBA Plus considerations are incorporated in the advice, challenge function, international engagement support, and coordination roles played by FDP.

Target population: All Canadians

Distribution of benefits

Benefits of foreign and defence policy advice were determined not to have a disproportionate distribution of benefits to any one community.

Key program impacts on gender and diversity

Other key program impacts

When performing the challenge function role, FDP considered GBA Plus input on all Memorandum to Cabinet and other policy proposals submitted by line departments. This information was reviewed and, where necessary, challenged by FDP. This included ensuring that a comprehensive GBA Plus assessment was included in all Memoranda to Cabinet for consideration by Cabinet, as well as applying a GBA Plus lens to other sections of the Memoranda to Cabinet.

When assessing and advising on Budget (including off-cycle request) proposals, FDP also took into account the GBA Plus dimensions of each request, to ensure proposed initiatives respond to GBA Plus commitments.

FDP also applied a GBA Plus lens in the planning and execution of Prime Minister’s visits. This included applying GBA Plus considerations to inform recommendations for Prime Minister’s engagements as well as scenario notes and suggested speaking points.

Security and Intelligence (S&I)

Program goals: The program goals of S&I are as follows:

• The Prime Minister is informed, advised and supported with respect to national security and intelligence.
• Cabinet receives high quality advice.
• S&I exercises a strong due diligence and challenge function in its engagement with departments in their policy development and as reflected in Memoranda to Cabinet, to ensure GBA Plus elements are appropriately incorporated and reflected.
• GBA Plus values are also applied throughout S&I’s provision of balanced advice and support to the Prime Minister on operational and policy issues, beyond Memoranda to Cabinet.

Target population: All Canadians

Distribution of benefits

Benefits of security and intelligence programs listed above were determined not to have a disproportionate distribution to any one community.   

Key program impacts on gender and diversity

Other key program impacts

When performing the challenge function role, S&I considered GBA Plus input on all Memoranda to Cabinet and other policy proposals submitted by line departments. This information was reviewed and, where necessary, challenged by S&I. This included ensuring that a comprehensive GBA Plus assessment is included in all Memoranda to Cabinet for consideration by Cabinet, as well as applying a GBA Plus lens to other sections of the Memoranda to Cabinet.

When assessing and advising on Budget proposals (including off-cycle requests), S&I also took into account the GBA Plus dimensions of each request, to ensure proposed initiatives respond to GBA Plus commitments.

GBA Plus governance and results and deliver mechanisms within the PCO-led Intelligence Priorities are enabling greater application of GBA Plus considerations throughout the Canadian intelligence production process.

Furthermore, S&I is supporting the evolution of communications practices within intelligence organizations, ensuring GBA Plus principles are applied when communicating with Canadians – particularly equity deserving groups.

GBA Plus data collection plan

Within the scope of the intelligence community, S&I conducted and will continue to conduct qualitative and quantitative analyses related to GBA Plus issues. It is expected that data collection will focus largely on qualitative research into intelligence as a practice, as well as research into transparency practices when intelligence organizations conduct targeted outreach to diverse and equity deserving groups.

Emergency Preparedness Secretariat

Program goals: The program goals of Emergency Preparedness (EPS) are as follows:

• Cabinet is well served through EPS’ role as the secretariat to the Cabinet Committee on Safety, Security, and Emergencies (SSE).
• Ensure the Minister of Emergency Preparedness receives full support of the public service in the delivery of their mandate.
• Provide oversight, coordination, and support to the federal Emergency Management community.
• Lead the federal public service response to events of national significance within the scope of responsibility of the National Security and Intelligence Advisor.
• EPS utilizes GBA Plus principles and processes in conducting its work, including in the areas of policy development and emergency operations.

Target population: All Canadians

Specific demographic group outcomes

EPS supports the concept of Disaster Risk Reduction (DRR), which is defined by the United Nations as “systematic efforts to analyze and reduce the causal factors of disasters. Reducing exposure to hazards, lessening vulnerability of people and property, wise management of land and the environment, and improving preparedness and early warning for adverse events are examples of DRR.” The impacts of disasters are not uniform across society, and different variables can intersect and contribute to the level of risk facing vulnerable populations (e.g., gender, age, disability, socioeconomic conditions).

Key program impacts on gender and diversity

Other key program impacts

When performing the challenge function role, EPS considered GBA Plus input on all Memoranda to Cabinet and policy proposals submitted by line departments. This information was reviewed and, when necessary, challenged by EPS. This included ensuring that a comprehensive GBA Plus assessment is included in all Memoranda to Cabinet for consideration by Cabinet, as well as applying a GBA Plus lens to other sections of the Memoranda to Cabinet.

EPS also supported the Minister of Emergency Preparedness in achieving their mandate. This included applying a GBA Plus lens to policy proposals and emergency management, such as around natural disasters, which often have an asymmetrical impact on different groups. EPS evaluated proposals to ensure consideration is given for these asymmetrical impacts, and that the proper analysis was undertaken to maximize program outcomes to benefit impacted communities, while mitigating further negative consequences where possible.

EPS ensured all staff took appropriate GBA Plus training, as a mandatory requirement for PCO employees. To build on this, EPS will evaluate on an ongoing basis whether further in-house expertise is required, and consider enhancing training requirements for staff and management as needed.

GBA Plus data collection plan

N/A

Intelligence Assessment Secretariat

Program goals: The program goals for the Intelligence Assessment Secretariat (IAS) are to:

• Support informed decision-making within the Government of Canada (GoC) on international and national security issues with intelligence assessments on foreign trends and developments that will impact Canadian interests.
• Provide timely, relevant, high-quality intelligence analysis and assessments to the PM, Cabinet, the Clerk of the Privy Council, and senior GoC leaders.
• Play a key interdepartmental leadership and coordination role within the Canadian Intelligence Community (IC) on community and national-level assessments.
• Build a stronger IC through horizontal, community-wide initiatives, enterprise solutions and collaborative, cost-effective intelligence analysis training.
• GBA Plus is an integral part of IAS training, analysis, and community engagement. It informs how IAS conducts its assessments and supports the IC across a range of initiatives.

Target population: There is no specific target population as IAS serves senior political and GoC clients.

Specific demographic group outcomes

N/A

Key program impacts on gender and diversity

Other key program impacts

IAS incorporated GBA Plus considerations into its staffing, training, and analytical practices to maintain a diverse workforce, mitigate biases, and ensure its assessments reflect all considerations, including GBA Plus.

IAS maintained a diverse workforce and its staffing practices complied with GoC standards and polices. 

All IAS employees completed the required GBA Plus courses. All IAS analysts completed training on understanding and identifying bias to ensure their assessments and tradecraft are as structured and objective as possible. In addition, training offered by IAS through the Canadian Academy of Intelligence Analysis (CAIA) is reviewed with a GBA Plus lens.

When developing analysis, IAS employees considered impacts of global developments on gender and diversity. GBA Plus considerations have also been included in the Canadian Intelligence Priorities, which informs assessment approach and development.

Finally, through the Intelligence Analysis Community of Practice (IA COP), IAS coordinated the Canadian IC by promoting and implementing enterprise-level initiatives such as training and learning, career development, community excellence, and Equity, Diversity and Inclusion (EDI). GBA Plus and EDI is a key pillar in all IA CoP initiatives and underpins the work that it does across the IC.

GBA Plus data collection plan

N/A

Program name: Legislative and Parliamentary Governance

Nil for all.

Program name: Planning and Operation of Cabinet

Program goals: PCO supports Government-wide initiatives to enhance productivity. PCO coordinates departmental policy, legislative, and Government administration proposals going to Cabinet and its committees; performs a challenge function during the policy development process; and prepares briefing materials and accompanying policy analysis to facilitate Cabinet’s decision-making process.

Target population: N/A

Specific demographic group outcomes

N/A

Key program impacts on gender and diversity

Other key program impacts

To advance how departments and agencies incorporate GBA Plus into their proposed policies and programs, Plans and Consultations (P&C) analysts work with lead PCO secretariats when reviewing Memoranda to Cabinet and can provide comments on GBA Plus into their proposed policies and programs, Plans and Consultations (P&C) analysts work with lead PCO secretariats when reviewing Memoranda to Cabinet and can provide comments on GBA Plus sections. In addition, P&C surveys ministers on the usage of GBA Plus in reviewing Memoranda to Cabinet, and can reflect comments into the activities of the relevant program at PCO.

P&C also reviews budget proposals, including for alignment with GBA Plus objectives. Finally, P&C’s regular analysis of economic and social trends and data, which can inform policy discussion and development, reflect GBA Plus considerations were appropriate and feasible. This program also convenes a weekly meeting with deputy ministers from all departments on associated topics, which can serve as a venue to discuss and advance work on GBA Plus.

GBA Plus data collection plan

P&C does not collect data on policy proposals as they are developed by clients and owned by Ministers.

Program name: Results, Delivery, Impact and Innovation

Results and Delivery Unit (RDU)

Program goals N/A as RDU does not have external lines of business that target any population; RDU’s work focuses on across-Government policy and implementation

Target population: N/A as RDU does not have external lines of business that target any population; RDU’s work focuses on across-Government policy and implementation.

Specific demographic group outcomes

N/A

Key program impacts on gender and diversity

Other key program impacts

As its clients are internal to Government, RDU does not provide a standard external service. RDU contributed to Government-wide leadership in the activities and support it undertakes through the tracking of Government priorities (via mandate letter commitments), which permit robust, disaggregated data collection (pertaining to a variety of target populations) and advancing GBA Plus considerations.

Additionally, as per the MC guidance, policy proposals include a Results and Delivery Strategy Annex (Annex B) which describe how proposals support Government priorities and expected results and performance indicators. RDU worked with implicated departments and agencies to support the capturing of disaggregated data and inclusion of full consideration of GBA Plus to help inform results and recommended next steps.

To facilitate high-level discussions and in support of Cabinet decision making, RDU supported Stock Take meetings to enable discussions on key themes and key Government priorities, including those that touch upon marginalised and vulnerable groups and communities. 

GBA Plus data collection plan

N/A

Innovation and Impact Unit

Program goals: PCO’s Impact Canada Initiative (ICI) continues to consider GBA Plus in the design and delivery of its programs, including Impact Canada Challenges, behavioural science projects, and the Impact Canada Fellowship program.

Target population: All Canadians

Key program impacts on gender and diversity

Key program impact statistics

Other key program impacts

Key program impacts on gender and diversity

Impact Canada Challenges

Impact Canada Challenges attract a diverse, national, and international pool of applicants. Challenges have been successful in attracting new talent and engaging non-traditional actors: among applicants, more than two thirds had never applied to government funding before. Impact Canada Challenges are designed to have a low barrier to entry insofar as the application process itself, which focuses on outcomes and key assessment criteria and does not require extensive reporting on history, operation, plans, finances, etc.

A GBA Plus lens is applied in Challenge program design, jury member selection, and when reviewing applicants. For Impact Canada Challenge juries, which assess and recommend solutions for funding, attention is paid to diverse views, experience, and expertise of the panels, ensuring better representation of women and minorities, as well as those with lived and living experience. 

Some Challenges in particular, such as the Afri-Plastics Challenge, have a large focus on women and youth. 2022-23 saw the completion of the Afri-Plastics Challenge with Global Affairs Canada, aimed at reducing marine plastics in Sub-Saharan African countries by developing and scaling innovative solutions to plastic mismanagement in a way that promotes gender equality and the empowerment of women and girls by creating economic opportunities for women. 60% of entries that made it to the final 40 were women-led. This project ended in March 2023, with £4.1 million in prize money being awarded to nine African innovators.

Impact Canada Fellowship program

The Impact Canada Fellowship program was created in January 2018 to attract external talent with specialized skills in key disciplines linked to the Impact Canada mandate, with aim to increase capacity and upskill the existing workforce.

In 2022-23, Impact Canada completed two Fellowship recruitment campaigns – one each in Behavioural Science and Challenges.

GBA Plus data collection plan

Impact Canada Challenges

Performance measurement of GBA Plus data is done by routinely collecting data and profiling applicants by demographic and business characteristics via application forms, quasi-experimental analysis, and surveys. Challenge business applicants also vary by age of the primary decision-maker, geography, size of the business, number of years in operation, and industry – with participants operating in 20 different industries.

Impact Canada Behavioural Science program

The Behavioural Science program will also strategically recruit more participants from underrepresented groups (also known as oversamples) to improve our ability to study and understand the experiences of these groups. The decisions on which groups to oversample are informed by the populations of interest identified in published literature and/or by experts. For example, in fiscal year 2022-23 the COVID-19 Snapshot Monitoring Study (COSMO) oversampled pregnant respondents and Canadians who only received two COVID-19 vaccine doses. The Trust, Information and Digital Ecosystems Study (TIDES), which launched in 2023 and focuses on misinformation and trust, has collectively sampled over 1500 youth, immigrants, Black Canadians, Indigenous peoples, and 2SLGBTQI+ Canadians.

Collecting representative samples and strategic oversamples allows for better demographic analyses, and for understanding how different groups might be experiencing or reacting to a given issue. These results are shared with our partners, who can incorporate these GBA Plus insights into the design of their programs and policies.

Program name: Senior Personnel and Public Service Renewal

Senior Personnel

Program goals: PCO will advance the principles of equity, diversity, and inclusion in the Governor in Council appointments system.

Target population: All Canadians aged 18 years and up, with continued focus on increasing representation for equity-seeking groups.

Distribution of benefits

As of March 31, 2023, 52% of Governor in Council appointees self-identified as women.

Key program impacts on gender and diversity

Key program impact statistics

Other key program impacts

The Government of Canada is committed to transparent, merit-based appointments, to help ensure that people of all gender identities, Indigenous Peoples, visible minorities, persons with disabilities and other minority groups are reflected in leadership positions. To support this priority and monitor representation across GIC positions, SPS collects and maintains information on the diversity of Governor in Council appointees.

This diversity information is collected through self-identification for those being recommended for appointment. The collected information covers the following categories: gender, 2SLGBTQI+, visible minorities, persons with a disability, Indigenous Peoples, bilingualism, first official language, and youth (less than 40 when appointed).

PCO will continue to provide information on representation within the GIC community, including on its website and in Departmental Results Reports.

Diversity of Governor in Council appointees

2021–22 Departmental Results Report

GBA Plus data collection plan

SPS is continuously looking for ways to improve the accessibility, timeliness, and usability of GIC diversity data. This includes exploring the use of data visualization to produce more user-friendly information on diversity representation in the GIC community.

Public Service Renewal

Program goals: The Public Service Renewal (PSR) Secretariat supports the Clerk of the Privy Council as Head of the Public Service. PSR is responsible for advancing the core management agenda, establishing and implementing a framework to support the renewal of the public service, and provides focused leadership and direction to address significant emerging public service-wide management and renewal issues. 

Target population: Federal Public Servants

Specific demographic group outcomes

Groups that may benefit: All federal public servants, in particular those who face inequities in the workplace (e.g., Black, Indigenous, visible minority and 2SLGBTQI+ people, as well as persons with disabilities).

Key program impacts on gender and diversity

Other key program impacts

PSR applies a GBA Plus lens primarily through the engagement activities it leads as it advances its program of work.

PSR engages regularly with other federal government departments and central agencies; employee groups that represent functional and horizontal (e.g., young professionals and managers networks) communities, equity groups; federal regional councils; provincial and territorial counterparts and other partners, both internal and external to the federal public service, in advancing work to support the effective management and renewal of the public service, including advancing the Clerk’s Call to Action to on Anti-Racism, Equity and Inclusion.

Program name: Social and Economic Policy

Program goals: PCO provides advice and support to the Prime Minister and portfolio ministers on a wide range of issues, including those pertaining to social, economic, regional development. PCO supports the efficient and effective functioning of Cabinet and Cabinet committees on a day-to-day basis. As part of this work, PCO coordinates departmental policy proposals going to Cabinet and its committees, performs a challenge function during the policy development process and prepares briefing materials and accompanying policy analysis to facilitate Cabinet’s decision-making process.

Target population: N/A

Key program impacts on gender and diversity

Other key program impacts

All policy proposals must be informed by GBA Plus and the program reviews and considers GBA Plus as part of the PCO’s challenge function role.

To advance how departments and agencies incorporate GBA Plus into their proposed policies and programs, Social and Economic Policy initiated a series of improvements. These efforts include the development of tailored tools and resources, improved disaggregated data availability, and the creation of a new model for in-depth GBA Plus reviews.

Social and Economic Policy also created and chaired an internal GBA Plus Network. The Network met regularly as a working group to advance GBA Plus in the due diligence review of Memoranda to Cabinet. With participation from the majority of PCO Secretariats, the network made meaningful strides in mainstreaming GBA Plus best practices across PCO and, as a result, in support of Cabinet decision making.

GBA Plus data collection plan

The GBA Plus Focal Point, based in the Social Development Policy Secretariat at PCO, tracked qualitative data on the GBA Plus comments offered through the challenge function. These comments were then analyzed for broader trends and areas of improvement. In future planning cycles, PCO plans to share these insights with WAGE, other central agencies, and departments, as appropriate. Efforts to develop this tracking system began in 2022-23.