Gender-Based Analysis Plus
Gender-based analysis plus (GBA Plus) is an analytical tool used to support the development of responsive and inclusive policies, programs and other initiatives; and to understand how factors such as sex, race, national and ethnic origin, Indigenous origin or identity, age, sexual orientation, socio-economic conditions, geography, culture and disability, impact experiences and outcomes and how they can affect access to and experience of government programs.
Section 1: institutional GBA Plus governance and capacity
Governance
In 2024–25, to further gender-based analysis plus in the department, a champion at the assistant deputy minister–level continued to work to embed gender-based analysis plus considerations in departmental governance.
TBS focused on the following activities to support GBA Plus governance in the department:
- improving consistency in the guidance that TBS provides to the rest of government
- working through the internal Inclusion, Diversity, Equity and Accessibility Committee to address employment barriers for employees in employment equity and equity-seeking groups
Capacity
In 2024–25, TBS updated the performance information profile template used by its programs. With the new template, TBS programs can now identify how their performance indicators can be disaggregated by different gender and diversity factors. This will increase TBS’s understanding of where and to what degree GBA Plus can be conducted in the department.
TBS also continued to work to integrate GBA Plus into government products and processes, including by:
- helping other federal organizations consider the needs of diverse users and stakeholders when developing policies and procedures
- ensuring that Treasury Board submissions contain sufficient information for decision‑makers to track gender and diversity impacts
- working with departments to improve data collection on gender and diversity to enhance annual reporting required under the Canadian Gender Budgeting Act
- refining and strengthening the Quality of Life Framework to improve reporting on quality-of-life outcomes and to develop the sustainability and resilience lens of the framework to support coordinated, evidence-based decisions that benefit Canadians
- working to enhance GBA Plus analytical tools in collaboration with Women and Gender Equality Canada, the Privy Council Office, and the Department of Finance Canada
Human resources (full-time equivalents) dedicated to GBA Plus
9 full-time equivalents
Section 2: gender and diversity impacts, by program
Core responsibility 1: Spending oversight
Program 1: Expenditure Data, Analysis, Results, and Reviews
Program goals: The program exercises an oversight and challenge role to ensure that government spending achieves tangible results and good value for money across different populations. It provides leadership in making data on spending and performance easier to discover and use, both for accountability purposes and to instill a results-based decision-making culture.
Target population: All Canadians
Specific demographic group(s) to be monitored: Not applicable
Key program impacts on gender and diversity
In 2024–25, the program worked with departments to improve data collection on gender and diversity to enhance annual reporting required under the Canadian Gender Budgeting Act. It reviewed the information provided in the departmental results reports of 90 federal organizations to assess the impacts of programs on different groups of people based on gender and other identity factors. The results of the review are in the annual report on the Impacts of Gender Based Analysis page.
The program also continued to integrate the Quality of Life Framework into government decision‑making processes to help make sure the government’s investments benefit Canadians. The framework measures what matters most to Canadians and supports evidence-based budgeting and decision-making at the federal level.
The program refined and strengthened the Quality of Life Framework and GBA Plus lenses to improve data collection and reporting on quality-of-life outcomes. As part of this work, the program ensured linkages to departmental results structures in departmental plans and departmental results reports. It also developed the sustainability and resilience lens of the framework to support coordinated, evidence-based decisions that benefit Canadians.
In addition, the program supported the Oversight and Treasury Board Support program in reviewing and challenging more than 450 Treasury Board submissions to ensure that they contained sufficient information for decision‑makers to track gender and diversity impacts.
| Statistic | Observed resultstable 1 note * | Data source | Comment |
|---|---|---|---|
Table 1 Notes
|
|||
| Percentage of government programs that have a plan for collecting data on their impacts in terms of gender and diversity | 61% | 2023–24 GBA Plus Supplementary Information Tables to Departmental Results Reports | 62% in 2022–23 |
| Percentage of government programs that have at least one indicator for monitoring their impacts in terms of gender and diversity | 51% | 2023–24 GBA Plus Supplementary Information Tables to Departmental Results Reports | 48% in 2022–23 |
Supplementary information sources
GBA Plus data collection plan
In 2024–25, the program analyzed information reported by departments on the impacts of their programs in terms of gender and diversity. It used this information to update the guidance it provides departments on reporting.
TBS tracked the percentage of government programs that have a data collection plan and at least one indicator for monitoring the program’s gender and diversity impacts. TBS also provided guidance to departments on incorporating gender-based analysis plus into program evaluations.
Program 2: Oversight and Treasury Board Support
Program goals: The program performs due‑diligence reviews of Treasury Board submissions and memoranda to Cabinet to provide advice to the Treasury Board on resource allocation, risks and policy compliance. This work supports sound decision‑making, value for money, compliance with rules and policies, and alignment with Government of Canada priorities and objectives. In addition, this program provides strategic advice, guidance and support to federal organizations in their implementation and application of Treasury Board policies and on government priorities, risk management strategies, and performance management.
The program reviews Treasury Board submissions from departments to make sure they:
- align with Treasury Board policies and government priorities
- provide good value for money
- clearly explain the expected results and how they would be measured
- contain clear assessments of risks, including financial risks
As part of the review process, the program ensures that the submissions:
- identify their potential impact on different groups based on gender and other identity factors
- include a GBA Plus data collection and reporting plan
Target population: All Canadians
Specific demographic group(s) to be monitored: Not applicable
Key program impacts on gender and diversity
In 2024–25, the program reviewed and challenged more than 450 Treasury Board submissions to ensure that they contained sufficient information for decision‑makers to track impacts in terms of gender, diversity and other intersecting identity factors.
Key program impact statistics
In 2024–25, the program reviewed more than 450 Treasury Board submissions from departments. In doing so, the program ensured that the submissions considered and measured outcomes based on gender and other identity factors or included a plan to measure them.
GBA Plus data collection plan
Not applicable. The program has no gender-based analysis data collection plan. The program ensures that Treasury Board submissions on proposed initiatives address government‑wide policy considerations adequately, including GBA Plus. It is up to departments to collect data to support gender-based analysis for their proposed initiatives.
Core Responsibility 2: Administrative leadership
Program 1: Digital Government Program
Program goals: The program provides all departments with a government-wide vision and tools focused on advancing digital service delivery, cybersecurity, recruitment and privacy. The program provides support for initiatives in four areas:
- Excellence in technology and operations
- Simpler, more reliable digital services and programs supported by government‑wide data integration and management
- Policies and frameworks designed for a modern, secure and privacy-enabled digital government
- Empowered employees with optimized and enhanced digital talent across the Government of Canada
To achieve this goal, the program provides all departments with standardized policies, guidelines, objectives, implementation and performance tools, strategic advice, intergovernmental agreement templates, and support through functional communities and government-wide learning and development events.
Target population: All Canadians
Specific demographic group(s) to be monitored: Not applicable
Key program impacts on gender and diversity
In 2024–25, the program worked to develop standards to enable data interoperability government-wide to support the 2023–2026 Data Strategy for the Federal Public Service and standards associated with Statistics Canada’s Disaggregated Data Action Plan. Specifically, TBS set expectations for best practices and established common data standards across the government by publishing:
- Data Reference Standard on Person(s): name architecture
- Data Reference Standard on Person(s): gender
- Data Reference Standard on Person(s): sex assigned at birth
The program also continued to use diversity data to track and inform efforts to advance diversity, equity and inclusion in the digital community to inform its efforts to increase their representation in areas including:
- information management
- information technology
- cybersecurity
In 2024–25, the program also:
- partnered with stakeholders, civil society and departments to explore innovative, ethical and inclusive ways to collect, publish and use open data in a manner that respects government privacy obligations
- acted as public sector champion for a program for women, non-binary and gender-diverse people working in science, technology, engineering or mathematics
- continued to leverage data from the GC Digital Talent platform and other data sources to support gender-based analysis plus analysis and actions for the government’s digital community
| Statistics | Result | Data source | Comment |
|---|---|---|---|
| Percentage of applicants who self-identified in one or more employment equity group for recruitment processes on the GC Digital Talent platform | 57.2% | GC Digital Talent platform | 2023–24 result: 59.2% |
GBA Plus data collection plan
Through the Citizens First survey, the program collects data on how different population groups perceive the government services they use. The program shares the results of the survey with departments.
Program 2: Communications and Federal Identity Policies and Initiatives
Program goals: The program sets the requirements that enable departments to provide Canadians with information about Government of Canada decisions, policies, programs and services that support the use of a single, consistent and coherent identity for the Government of Canada. The program provides guidance, policy interpretations and strategic advice; and monitors departmental policy performance. This includes community support and outreach.
Target population: All Canadians
Specific demographic group(s) to be monitored: Not applicable
Key program impacts on gender and diversity
The program continued to address questions from departments about the Guidelines on Making Communications Products and Activities Accessible and the Guidelines on Making Communications Products and Activities Diverse and Inclusive, and to monitor the evolving environment. These guidelines help departments plan and develop inclusive and accessible communications products and activities.
GBA Plus data collection plan
Not applicable. Departments are responsible for implementing the requirements set out in the policy instruments related to communications and federal identity and for collecting data on the gender and diversity impacts of their communications products and activities, as appropriate.
Program 3: Comptrollership
Program goals: The program provides functional direction and assurance for financial management, internal audit, investment planning, procurement, project management, and the management of real property and materiel. The program supports the Comptroller General of Canada by:
- developing policies and initiatives to strengthen financial management, oversight and reporting in the Government of Canada
- implementing policy instruments governing procurement, real property, materiel management, investment planning, and project management to strengthen the management of investments
- modernizing the financial and materiel management business model to provide more timely access to reliable, consistent government-wide information, and to ensure that these services enable the delivery of programs for Canadians and remain cost‑effective and sustainable
- maintaining a modern internal audit policy suite and overseeing the independent internal audit function for the Government of Canada in order to inform the oversight of public resources and provide assurance as to whether activities are managed in a way that demonstrates responsible stewardship to Canadians
The program also supports the Greening Government Strategy by:
- administering the Greening Government Fund
- providing support and guidance to help departments comply with the strategy
- brokering targeted initiatives
- tracking and publicly disclosing the government’s environmental performance
Target population: All Canadians
Specific demographic group(s) to be monitored: Not applicable
Key program impacts on gender and diversity
In 2024–25 the Comptrollership Program continued to provide policy guidance and to lead initiatives to help departments implement requirements related to gender and diversity by:
- analyzing disaggregated data to better understand the effectiveness of procurement-related policies and initiatives such as the Directive on Government Contracts, Including Real Property Leases, in the Nunavut Settlement Area for equity-seeking groups
- addressing gaps in competency frameworks, standard job descriptions and learning products for comptrollership communities
The program also continued to help departments build a skilled, inclusive, diverse and equitable comptrollership workforce and to serve diverse stakeholders and communities by:
- collecting and monitoring information about gender and diversity in comptrollership communities including information about:
- financial management
- investment management
- internal audit
- departmental audit committees
- analyzing gender and diversity information, such as representation gaps, to inform collective staffing initiatives and professional and leadership development programs
| Statistic | Result | Data source | Comment |
|---|---|---|---|
| Percentage of departmental audit committee members who are women | 56.1% | Departmental audit committee statistics and demographics report | 2023–24 result: 59.9% |
| Percentage of departmental audit committee members who have French as a first language | 26.8% | Departmental audit committee statistics and demographics report | 2023–24 result: 24.7% |
| Percentage of departmental audit committee members who identify as belonging to a visible minority | 22.9% | Departmental audit committee statistics and demographics report | 2023–24 result: 23.5% |
| Percentage of departmental audit committee members who identify as persons living with a disability | 10.2% | Departmental audit committee statistics and demographics report | 2023–24: 10.5% |
| Percentage of departmental audit committee members who identify as Indigenous | 12.1% | Departmental audit committee statistics and demographics report | 2023–24 result: 11.7% |
| Percentage of departmental audit committee members outside the Ottawa-Montreal-Toronto region | 47.1% | Departmental audit committee statistics and demographics report | 2023–24 result: 43.8% |
| Percentage of departmental internal audit functions where representation of Indigenous employees is lower than labour market availability | 75% | Annual survey completed by internal audit functional community | 2023–24 result: 75% |
| Percentage of departmental internal audit functions where representation of persons with disabilities is lower than labour market availability | 62.5% | Annual survey completed by internal audit functional community | 2023–24 result: 62.5% |
| Percentage of departmental internal audit functions where representation of visible minority employees is lower than labour market availability | 20% | Annual survey completed by internal audit functional community. | 2023–24 result: 20% |
| Percentage of departmental internal audit functions where representation of women employees is lower than labour market availability | 7.5% | Annual survey completed by internal audit functional community | 2023–24 result: 7.5% |
GBA Plus data collection plan
In 2024–2025, the program collected and analyzed data on departments’ progress in awarding at least 5% of the total value of their contracts to Indigenous businesses. It also worked with Indigenous Services Canada to consider how data could demonstrate the different impacts of federal procurement activities on Indigenous businesses in modern treaty territories. In addition, the program supported Indigenous Services Canada’s analysis of data from departments on procurement contracts and real property leases in the Nunavut Settlement Area, which informed Indigenous Services Canada’s engagements.
The program also collected data on the representation of employment equity groups in the different comptrollership communities. It used this data to identify and address representation gaps in these communities.
Program 4: Public Service Accessibility
Program goals: The Office of Public Service Accessibility (OPSA) was established to help organizations meet or exceed the requirements of the Accessible Canada Act. OPSA provides expert guidance to help improve the hiring, retention and promotion of persons with disabilities, and supports organizations to develop and implement efficient workplace accommodations processes. The program aims to help departments and agencies create a barrier-free environment for employees with disabilities. Applying an accessibility lens in line with GBA Plus is central to developing barrier-free programs and services.
Target population: Federal public service
Specific demographic group(s) to be monitored: Employees with disabilities
Key program impacts on gender and diversity
In 2024–25, OPSA continued to monitor and report impacts in terms of gender and diversity on accessibility in the public service using:
- the TBS employment equity database
- the Public Service Employee Survey
OPSA also established the Workplace Inclusion and Accessibility Centre to continue to work on improving government-wide workplace accommodation practices and removing barriers by providing advice on horizontal issues, and advancing the implementation of the GC Workplace Accessibility Passport. OPSA’s work helps:
- support the program’s capacity to report on impacts by gender and diversity
- increase understanding of the lived experiences of persons with disabilities who may belong to additional equity groups
| Statistic | Result | Data source | Comment |
|---|---|---|---|
| Overall representation of persons with disabilities in the core public administration | 7.9% | TBS employment equity database | Increase from 2022–23 result (6.9%), but the result is still below workforce availability (12.0%) |
Supplementary information sources
GBA Plus data collection plan
The program collects data on its gender and diversity impacts using:
- the TBS employment equity database
- the Public Service Employee Survey
The program also collaborates with the Public Service Commission to track hiring rates of persons with disabilities across the public service.
Core Responsibility 3: Employer
Program 1: Employer (Office of the Chief Human Resources Officer)
Program goals: The program develops policies and sets the strategic direction for people management in the public service; manages total compensation (including the administration and delivery of equitable and responsive pensions and benefits programs) and labour relations; and undertakes initiatives to improve performance in support of recruitment and retention objectives.
Target population: Employees of the core public administration
Specific demographic group(s) to be monitored: Members of employment equity groups in the public service
Key program impacts on gender and diversity
In 2024–25, the program also continued to consider data on diversity‑group membership as part of selecting participants for the Executive Leadership Development Program and reporting on and reviewing the program. It uses the data to foster continuous improvement. At least half of the participants in the Executive Leadership Development Program will continue to be from at least one of the three under‑represented employment equity groups.
The employer program also applied intersectional perspectives to develop tailored talent‑enablement strategies, ensuring that talent management, succession planning, and professional‑visibility initiatives consider multiple diversity factors.
| Statistic | Result | Data source | Comment |
|---|---|---|---|
Table 5 Notes
|
|||
| Percentage of employees who believe their workplace is psychologically healthy | Overall: 59% Indigenous public servants: 52% Racialized employees: 65% Persons with a disability: 47% Women:61% | 2024 Public Service Employee Survey | The overall result has ranged between 59% and 68% since 2019. |
| Percentage of employees who responded positively to “My department or agency implements activities and practices that support a diverse workforce” | Overall: 76% Indigenous public servants: 71% Racialized employees: 75% Persons with a disability: 67% Women: 77% | 2024 Public Service Employee Survey | The overall result has remained consistent and above target since 2020–21.table 5 note * |
| Percentage of employees who indicate that their organization respects individual differences (for example, culture, workstyles and ideas) | Overall: 69% Indigenous public servants: 65% Racialized employees: 71% Persons with a disability: 58% Women: 71% | 2024 Public Service Employee Survey | The overall result has fallen short of target levels since 2020–21 but has been improving.table 5 note * |
Supplementary information sources
Employment Equity in the Public Service of Canada for Fiscal Year 2023 to 2024
2024 Public Service Employee Survey Results for the Public Service by Demographic Characteristics
GBA Plus data collection plan
In 2024–25, the program continued to monitor and report on the program’s impacts on different groups based on gender and other identity factors using a variety of data sources, including:
- the Actuarial Report on the Pension Plan for the Public Service
- demographic reports on the public service
- the Public Service Pension and Benefits Plan member survey
- Public Service Health Care Plan and Public Service Dental Care Plan data
- employment equity group information from:
- the employment equity database
- the Executive Talent Management System application
- public service workforce data and perception data, including:
- the Public Service Employee Survey
- the Student Experience Survey
Program 2: Public Service Employer Payments
Program goals: The program holds funds centrally to supplement appropriations, from which allocations are made on behalf of other federal organizations. Payments and receipts can also be made on behalf of these organizations. These funds provide payments for the employer’s share of health, income maintenance and life insurance premiums; payments to or in respect of provincial health insurance plans, payroll taxes and provincial taxes; the reimbursement of employment insurance premium rebates; and payments of administration costs.
Target population: Active and retired employees and their eligible dependents who are entitled to health and dental benefits
Specific demographic group outcomes: Not applicable
Key program impacts on gender and diversity
Not applicable
GBA Plus data collection plan
Not applicable. The Public Service Employer Payments Program consists of employer payments of non-salary elements of compensation.
Core Responsibility 4: Regulatory oversight
Program 1: Regulatory Policy, Oversight and Cooperation
Program goals: The program provides leadership and management of the government’s regulatory function and is responsible for:
- federal regulatory policy and oversight promoting good regulatory practice
- regulatory policy research and analysis
- targeted regulatory reviews
- Canada’s Centre for Regulatory Innovation
- the Annual Regulatory Modernization Bill process
- supporting the External Advisory Committee on Regulatory Competitiveness and regulatory reconciliation and cooperation forums established between Canada-US, Canada-European Union, and domestically between the federal government, provinces and territories
Engaging stakeholders, such as the Canadian public, industry associations, businesses, and other groups is also an important part of achieving program objectives.
Treasury Board ministers and federal departments and agencies are the primary clients of the program.
Target population: All Canadians
Specific demographic group outcomes: Not applicable
Key program impacts on gender and diversity
To gain insight on how GBA Plus contributed to regulations in 2024–25, TBS gathered information from regulatory impact analysis statements for 165 final in-scope GIC regulations:
- For about half (46.7%) of these regulations, there was some description of the population with respect to, for example, gender, age, marital status, region, disability, level of education or income.
- For over a quarter (33.9%) of the regulations, regulators identified measures related to diversity or inclusion that would be maintained or implemented, such as the use of certain exemptions, gender-neutral language, training on managing diversity, or enabling the collection of disaggregated data.
- For most (64.8%) of the regulations, regulators reported that no GBA Plus impacts were identified or included a similar statement.
| Statistic | Result | Data source | Comment |
|---|---|---|---|
| Percentage of final in-scope Governor in Council regulations that provided information on GBA Plus in the corresponding regulatory impact analysis statement | 99.4% (165/166) | Canada Gazette, Part II | |
| Percentage of stakeholders that participated in consultations on regulatory initiatives led by TBS that identified as or that represented the interests of an under‑represented demographic (for example, women, Indigenous people, members of visible minorities, gender‑diverse people, people with disabilities) | Not applicable | Let’s Talk Federal Regulations platform | No stakeholder consultations were hosted on the Let’s Talk Federal Regulations platform in 2024–25. |
Other key program impacts
The program engaged stakeholders representing a range of diverse perspectives during the year through regular bilateral meetings, as well as through a series of roundtables hosted by the President of the Treasury Board. In addition, information from previous extensive stakeholder consultations hosted on the Let’s Talk Federal Regulations platform informed the evolution of the regulatory program, including leading to the creation of the Red Tape Reduction Office. The consultations included stakeholders who chose to self‑identify as being a member of one or more under-represented groups.
Looking ahead, the Regulatory Affairs Sector will continue to engage a large cross‑section of regulatory stakeholders to inform the actions of the Red Tape Reduction Office, including through the red tape review process.
GBA Plus data collection plan
The program used regulatory impact analysis statements produced for each proposed regulation to monitor and report on the gender and diversity impacts of proposed regulations. Regulatory impact analysis statements required departments to describe the ways regulatory proposals mitigate or address potential differential or adverse outcomes for Canadians based on factors such as gender, age, education, language, geography, culture and income. Before a department seeks Governor in Council approval, the program reviews the regulatory impact analysis statements for alignment with requirements and instructions related to GBA Plus in the Cabinet Directive on Regulation.