Tab B: Briefing Notes
ERRATA
In the English Office of the Auditor General of Canada Performance Audit of Chronic Homelessness in Canada note, typographical errors were corrected as follows:
- Summary: "On November 15, 2002, the Auditor General of Canada published in the Fall 2022 Reports a performance audit on chronic homelessness (the audit)..." should read "On November 15, 2022, the Auditor General of Canada published in the Fall 2022 Reports a performance audit on chronic homelessness (the audit)..."; and
- Next steps: "…but that communities were still able to make progress on implanting Coordinated Access even during challenging circumstances." should read "…but that communities were still able to make progress on implementing Coordinated Access even during challenging circumstances."
These errors have been corrected in the English HTML version of the note.
Office of the Auditor General of Canada Performance Audit of Chronic Homelessness in Canada
(For Information)
Purpose
To outline the Auditor General of Canada's published performance audit of chronic homelessness in Canada, included in the Fall 2022 Reports on November 15, 2022; and to inform you of an upcoming appearance before the Public Accounts Committee of the House of Commons regarding the report.
Summary
- On November 15, 2022, the Auditor General of Canada published in the Fall 2022 Reports a performance audit on chronic homelessness (the audit). Subsequently, you are appearing before the Public Accounts Committee of the House of Commons on November 29, 2022 to discuss the details of this audit and will be providing opening remarks, attached as Annex A.
- INFC's subject matter experts had the opportunity to review the Draft of the Audit Report to validate its facts, observations, the completeness of the information, and have previously provided comments to the Office of the Auditor General of Canada (OAG) to correct and strengthen the report.
- The Report found that Infrastructure Canada (INFC) and Employment and Social Development Canada (ESDC) did not know whether their efforts to prevent and reduce chronic homelessness were achieving intended results. It also concluded that the Canada Mortgage and Housing Corporation (CMHC) did not know whether it was addressing the housing needs of and improving housing outcomes for vulnerable Canadians and contribute towards the prevention and reduction of chronic homelessness. Lastly it concluded that there was minimal federal accountability for reaching the National Housing Strategy's goal of reducing chronic homelessness by 50% by the 2027-28 fiscal year, and it was unclear how federal organizations were working together to achieve it.
Context and key facts
- OAG performance audits are independent, objective and systematic assessments of how well government is managing its activities, responsibilities and resources. Performance audits do not question the merits of government policies. Rather, they examine the government's management practices, controls, and reporting systems based on its own public administration policies and on best practices.
- The audit work began in late 2021 and its scope includes the period of November 2017 through March 31, 2022.
- The audit examined efforts made by the included entities – INFC, ESDC and the Canada Mortgage and Housing Corporation, to prevent and reduce chronic homelessness in Canada. This included programs that are part of the National Housing Strategy. The focus of the audit for INFC and ESDC was the Reaching Home program, which was launched on April 1, 2019, and for the Canada Mortgage and Housing Corporation it included the overall aim of addressing the housing needs of vulnerable Canadians.
Considerations
- The audit concluded that INFC and ESDC did not know whether their efforts to prevent and reduce chronic homelessness were achieving intended results, mainly because the departments did not carry out analysis of up-to-date homelessness data to assess whether interventions intended to help those at risk of, or experiencing homelessness and chronic homelessness, obtained the housing and supports they needed. It also concluded that the CMHC did not know whether it was addressing the housing needs of and improving housing outcomes for vulnerable Canadians and contributing towards the prevention and reduction of chronic homelessness. The audit also concluded that there was minimal federal accountability for reaching the National Housing Strategy's goal of reducing chronic homelessness by 50% by the 2027-28 fiscal year, and it was unclear how federal organizations were working together to achieve it.
- INFC's subject matter experts validated the accuracy of the information contained in the Draft Report of the Audit. Inaccuracies and concerns with the recommendations, as well as tone and balance were identified. These, and modifications to address them and improve the report, were shared with the OAG for its consideration prior to publication.
- INFC will work to address the audit's findings and recommendations by taking concrete actions within the 2022-23 fiscal year and beyond. Regarding timely data collection, analysis and results reporting (first recommendation), INFC will take concrete steps to:
- Launch the last phase of the Reaching Home Results Reporting Online system in November 2022 to allow for timely collection and analysis of annual program results;
- Identify technological solutions to accelerate the availability of shelter data, and develop a workplan to implement these solutions by March 31, 2023; and
- Produce new research products on homelessness trends by May 31, 2023, including one that will review known structural factors that influence homelessness and an analysis of their relative contribution to observed changes in shelter use.
- INFC will address the second recommendation on barriers to the implementation of Coordinated Access, identified in the OAG's analysis of community reporting, by working individually with communities that have not yet implemented Coordinated Access. Subsequent to the period under audit, over summer 2022, INFC released a number of tools to clarify the minimum requirements under Reaching Home, which helped communities self-assess their progress with implementation through the Community Homelessness Reports due to Service Canada in October 2022. INFC has identified the communities that require a plan to be in place by December 31, 2022 and is engaging with these communities in the coming months to support them with their plan, including coordinating efforts with Service Canada and the Canadian Alliance to End Homelessness.
- INFC will also collaborate with the CMHC to address the audit's last recommendation by:
- Clarifying accountability for the achievement of the target to reduce chronic homelessness by 50% by working with central agencies by December 31, 2023;
- Continuing to improve alignment, coordination, and integration on housing and homelessness issues between the organizations by leveraging three Assistant Deputy Minister-level committees to collaborate more formally on infrastructure, housing, homelessness, chronic homelessness, and Veteran homelessness;
- Developing a targeted awareness strategy for Reaching Home funding recipients by December 31, 2022 to maximize opportunities available through the National Housing Strategy to address homelessness, including the integration of regional CMHC staff into existing Reaching Home local governance structures; and
- Continuing to support cross-jurisdictional efforts on housing and homelessness through established mechanisms, such as the Federal/Provincial/Territorial Forum on Housing.
Next steps
- You have been called to appear before the Public Accounts Committee in the House of Commons on November 29, 2022, together with colleagues from ESDC and the CMHC, to answer questions on the audit.
- This will provide you with the opportunity to further explain the impact the COVID-19 pandemic had on Homelessness sector requiring it to immediately move to providing emergency services, which impacted data collection, but that communities were still able to make progress on implementing Coordinated Access even during challenging circumstances.
- You will also have the opportunity to provide the Committee with additional details on how INFC, together with ESDC and the CMHC, are addressing the audit's recommendations and have put in place detailed action plans that are already being implemented.
ERRATUM
In the English Infrastructure Canada Detailed Action Plan, a typographical error was corrected in the Key Interim Milestones (Description/Dates) column:
In the row for Report Ref. No. 5.74 under Winter 2023: "Establish two additional Assistant Deputy Minister-level committees to improve alignment, coordination an integration" should read "Establish two additional Assistant Deputy Minister-level committees to improve alignment, coordination and integration".
This error has been corrected in the English HTML version of the Action Plan.
Infrastructure Canada Detailed Action Plan
to the recommendations of Report 5: Chronic Homelessness
- Fall 2022 Reports of the Auditor General of Canada -
Report Ref. No. |
OAG Recommendation |
Departmental Response |
Description of |
Expected Final Completion Date |
Key Interim Milestones (Description/Dates) |
Responsible Organization/ Point of Contact |
Indicator of Achievement |
|---|---|---|---|---|---|---|---|
5.45 |
Recommendation. Infrastructure Canada should: |
Agreed. |
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Name: Janet Goulding |
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5.45 |
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While the COVID-19 pandemic required communities to shift their focus to pandemic response measures, impacting their ability to collect and report timely data and therefore the ability of the department to analyze and report up-to-date information, Infrastructure Canada recognizes the importance of emergency shelter and program data to support an understanding of homelessness and the extent to which the program is addressing needs. With respect to shelter data, in early 2022, the department began work to identify technological solutions to accelerate data availability. A workplan for implementing these solutions will be developed by March 31, 2023. |
Estimates of national shelter use and chronic homelessness that are available within a year. |
Fall 2023 |
Fall 2022 (completed) Develop a new methodology for estimating shelter use that accounts for changes that took place among shelter services due to the pandemic in 2020. Develop the 2020 estimate of shelter use and chronic homelessness. Spring 2023 Develop a workplan for further accelerating the availability of national shelter statistics. |
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5.45 |
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The last phase of the new Reaching Home Results Reporting Online (RROL) system is expected to be released in fall 2022. This will allow for timely collection and analysis of annual program results. |
The full implementation of the Reaching Home Results Reporting Online system will allow for timely program data collection and analysis, and will reduce burden on both communities to report, and Infrastructure Canada staff to validate and analyze the data in a timely manner. |
November 2022 |
The RROL platform was released and made available to communities in February 2022 to enter their project details data for the fiscal years 2021-22 and 2022-23. The module of the RROL system that will allow organizations to submit Annual Results and make amendments to Project Details is being launched to funded recipients throughout November 2022. Training began with the Atlantic region on November 9, followed by Quebec Shared Delivery organizations and Ontario region during the week of November 15, Western Canada and Territories region during the week of November 21, and CISSS/CIUSSS in Quebec during the week of November 28. Annual Results for 2021-2022 will be available by March 2023, while Annual Results for 2022-2023 will be available starting in June 2023. |
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5.45 |
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To explain trends in homelessness through data collected by the department, as well as other data available, new research products will be released by May 31, 2023, including one that will review known structural factors that influence homelessness and an analysis of their relative contribution to observed changes in shelter use. |
Infrastructure Canada will put in place research plans that support projects that seek to determine the factors driving homelessness trends and whether funded projects are addressing the needs of people experiencing homelessness, including chronic homelessness. Timely data collection and analysis of program data will support informing on the achievement of Reaching Home expected outcomes, and determine the extent to which the program contributes to preventing and reducing homelessness in Canada. |
March 2023 |
Fall 2022 Put in place projects that seek to understand the factors and drivers of homelessness, including:
Winter 2023 Develop a 2023-24 research plan that includes projects that:
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5.45 |
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All of these information sources will support the department in making adjustments to the program where and when needed. |
On an ongoing basis, when and where appropriate, Infrastructure Canada will make needed adjustments to the Reaching Home program. |
Spring 2024 |
Winter 2023 Seek access to incremental funding provided through Budget 2022 (for 2024-25 and 2025-26) supported by available homelessness and housing data, and community progress on coordinated access. Spring 2023 to Winter 2023 Review existing program policies and guidelines (e.g., Reaching Home Directives, implementation of coordinated access) and identify changes that may be merited given available data, feedback from program partners, and the evolving context of Canada's housing market and homelessness challenges. |
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5.49 |
Recommendation. Infrastructure Canada should collaborate with designated communities and other partners to develop an action plan with timelines to address the barriers to the implementation of coordinated access that were identified in its analysis of community reporting. |
Agreed. While the COVID-19 pandemic required communities to shift their focus to pandemic response measures, impacting their ability to pursue the transformational change required to introduce coordinated access, Infrastructure Canada recognizes the importance of supporting the ongoing efforts of communities to implement and maintain this approach to service delivery. Subsequent to the period under audit, the Department implemented the following measures:
Additionally, Infrastructure Canada will be working individually with all the communities that have not yet implemented coordinated access to help them achieve the requirements by March 31, 2023. |
Infrastructure Canada will collaborate with designated communities to develop individualized action plans to address barriers to the implementation of coordinated access requirements, and help them achieve these requirements. |
March 2023 |
Summer 2022 (completed) Release additional guidance related to coordinated access implementation, to clarify the Reaching Home program requirements and help communities to self-assess their progress. Fall 2022 (completed) Develop an engagement strategy that outlines next steps to support communities by putting individualized action plans in place, so that they can work to meet any outstanding coordinated access requirements by March 31, 2023. Fall 2022 to Spring 2023 (ongoing) Support each community with their implementation of coordinated access by:
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5.74 |
Recommendation. The Canada Mortgage and Housing Corporation and Infrastructure Canada should
|
Agreed. While federal efforts are only one component of addressing homelessness, CMHC and Infrastructure Canada recognize that preventing and reducing homelessness, including chronic homelessness requires clear accountability, alignment of federal initiatives and cross-jurisdictional support and efforts. While CMHC is the lead and accountable for the NHS as a whole, CMHC and Infrastructure Canada will work with central agencies by December 31, 2023, to clarify accountability for the achievement of the chronic homelessness NHS target. In support of improved alignment, coordination and integration on homelessness and chronic homelessness including prevention, subsequent to the initial audit period, an Assistant Deputy Minister-level committee between CMHC and Infrastructure Canada was established to collaborate more formally on infrastructure, housing and homelessness. Two additional interdepartmental committees will be struck in 2022-23: one across federal organizations to facilitate efforts on chronic homelessness; and the other with Veterans Affairs Canada to support the implementation of the new Veteran Homelessness Program. Beyond improving federal governance structures, by December 31, 2022, CMHC and Infrastructure Canada will develop a targeted awareness strategy to ensure that Reaching Home funding recipients can maximize opportunities available through other National Housing Strategy programs that could support their efforts to address homelessness. To promote the ongoing awareness of opportunities, Reaching Home funding recipients will be encouraged to integrate regional CMHC staff into community-level planning around funding through existing structures such as Community Advisory Boards. For cross-jurisdictional support and efforts, one mechanism that is used is the Federal/Provincial/Territorial Forum on Housing which provides opportunities to discuss the implementation of the National Housing Strategy and assess its effectiveness. CMHC is the co-chair of the FPT Housing Forum at the deputy and senior officials' levels and Infrastructure Canada is also represented. |
Improved alignment, coordination and integration of federal efforts to prevent and reduce homelessness and chronic homelessness. Clear federal accountability for the achievement of the National Housing Strategy target to reduce chronic homelessness by 50%. |
December 31, 2023 |
Fall 2022 (completed) Establish an Assistant Deputy Minister-level committee between INFC and CMHC to collaborate more formally on infrastructure, housing and homelessness. This will lead to stronger policy collaboration to achieve federal housing and homelessness objectives. Winter 2023 Establish two additional Assistant Deputy Minister-level committees to improve alignment, coordination and integration:
Develop an awareness strategy for funding opportunities for the homeless-serving sector. This work is intended to ensure that Reaching Home's funding recipients are aware of other available funding opportunities and programs offered through the National Housing Strategy (NHS). Part of the awareness strategy will also include ways to encourage Reaching Home funding recipients to integrate regional CMHC staff into community-level planning around funding through existing structures, such as Community Advisory Boards (CABs). Winter to Spring 2023 CMHC and INFC will collaborate to clarify and define federal accountability for the National Housing Strategy's target to reduce chronic homelessness by 50% by 2027-28, including identifying:
Summer to Fall 2023 CMHC and INFC will leverage the forthcoming interdepartmental committee on chronic homelessness to assess this stream of work on federal accountability for the National Housing Strategy target on chronic homelessness and examine gaps. |
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