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PDO
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RMAF
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En ce qui a trait au PDO lui-même, nous avons constaté une situation semblable relativement aux activités nationales et de communication et aux nouvelles activités des missions liées à la diplomatie ouverte.
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We concluded that even at these resource levels, much of FAC's programming was episodic in nature, not well coordinated and not sufficient to enable the development of a vital critical mass. Our work with posts and headquarters staff uncovered considerable instances of lack of follow-up of individual events, or strong statements to the effect that posts had only sufficient resources for occasional activities: even when augmented by ad hoc funding from the PDP.
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Certains répondants ont reconnu que le financement du PDO était utilisé pour « compléter » le financement de programmes existants, en particulier le programme de Promotion des arts; cette situation soulève encore la question plus large qui est celle du manque de cadre politique, de stratégie globale et de cadre de responsabilisation en matière de diplomatie ouverte, malgré les récents efforts déployés, comme l'élaboration de la pyramide de la diplomatie ouverte.
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The prior lack of such a coordinated planning approach to Canadian public diplomacy programs has resulted in one of the four programs, Arts Promotion, retaining until very recently program goals over 20 years old which stated that the purpose of the Arts Promotion program was to promote the arts as a goal in itself (notwithstanding some more recent efforts to "fit" this program into the contemporary RMAF planning structures and systems). Special mention needs to be made of the improved logic model or framework ("the PD Pyramid"), which begins to address the issue of interconnectivity and which was under development at the time of the evaluation. Likewise, the shifting and evolving nature of the PDP's goals, beginning with a largely national identity focus, and evolving towards one with more focussed on the attainment of overall foreign policy objectives (and some aspects of domestic sensitization) has had both positive and negative impacts on the overall ability to contribute to the attainment of foreign policy goals.
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En ce qui a trait au PDO, si on examine les activités vraiment « pilotes » et en particulier les projets nationaux et de communication, il est très difficile de discerner une volonté à l'égard de l'optimisation des ressources.
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The now concluded Canada-France program was able to show more conclusive information about its ability to lever from private and public sector French institutions. This level of leverage and, for our purposes here, level of reporting detail, may in large part be due to the finite nature of the Canada-France program itself, and the extent to which it funded fairly significantly sized projects, which in themselves were apparently attractive to French governmental and/or private sector interests.
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En ce qui a trait au PDO lui-même, nous avons constaté une situation semblable relativement aux activités nationales et de communication et aux nouvelles activités des missions liées à la diplomatie ouverte.
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We concluded that even at these resource levels, much of FAC's programming was episodic in nature, not well coordinated and not sufficient to enable the development of a vital critical mass. Our work with posts and headquarters staff uncovered considerable instances of lack of follow-up of individual events, or strong statements to the effect that posts had only sufficient resources for occasional activities: even when augmented by ad hoc funding from the PDP.
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En ce qui a trait au PDO, si on examine les activités vraiment « pilotes » et en particulier les projets nationaux et de communication, il est très difficile de discerner une volonté à l'égard de l'optimisation des ressources.
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The now concluded Canada-France program was able to show more conclusive information about its ability to lever from private and public sector French institutions. This level of leverage and, for our purposes here, level of reporting detail, may in large part be due to the finite nature of the Canada-France program itself, and the extent to which it funded fairly significantly sized projects, which in themselves were apparently attractive to French governmental and/or private sector interests.
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En ce qui a trait au PDO lui-même, nous avons constaté une situation semblable relativement aux activités nationales et de communication et aux nouvelles activités des missions liées à la diplomatie ouverte.
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We concluded that even at these resource levels, much of FAC's programming was episodic in nature, not well coordinated and not sufficient to enable the development of a vital critical mass. Our work with posts and headquarters staff uncovered considerable instances of lack of follow-up of individual events, or strong statements to the effect that posts had only sufficient resources for occasional activities: even when augmented by ad hoc funding from the PDP.
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Notre travail avec le personnel des missions et de l'administration centrale a révélé beaucoup de cas d'absence de suivi des activités individuelles, ou des affirmations fermes à l'effet que les missions possédaient juste assez de ressources pour les activités occasionnelles, et ce, même avec l'ajout de financement ponctuel issu du PDO.
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Although the prior lack of an overarching strategic framework for FAC's current Public Diplomacy program mix, combined with inconsistent performance information makes it difficult to assess the adequacy of resource levels, we came to the tentative conclusion that there were barely enough resources available to minimally meet the narrow program-level goals of the Academic and Arts Promotion programs.
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Cette constatation de l'étude porte sur les procédures administratives du PDO et sur le rôle du programme en matière de surveillance et d'apprentissage.
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Finding 28: The PDP faced a learning curve in the development of appropriate processes and procedures, with noticeable improvements in some areas made in the last two years.
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Le budget du 24 février affectait 8 millions de dollars annuellement, pendant cinq ans, afin que la programmation stratégique de la diplomatie ouverte puisse continuer. Cet argent, qui remplace le PDO temporarisé permettra au Ministère d'aller de l'avant dans l'élaboration d'une approche stratégique et ciblée pour la diplomatie ouverte.
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The February 24 Budget earmarked $8 million per year for five years to support the pursuit of strategic public diplomacy programming. This money, which replaces the sunseted PDP, will allow the Department to move ahead in developing a strategic and focussed approach to public diplomacy. Within the Treasury Board Submission, required to access these funds, 4-7% has been notionally allocated for program evaluation and monitoring.
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Tableau 3.2 Allocations du PDO approuvées par le Conseil du Trésor de l'exercice 1998-1999 à l'exercice 2004-2005.
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CAN$ 8 million notionally allocated in the federal budget for FAC PD
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Toutefois, les leçons tirées des expériences de la dernière décennie, et en particulier les leçons tirées des activités plus contemporaines financées par le PDO, peuvent fournir un point de départ valable pour entreprendre une nouvelle démarche.
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The mix of arts promotion and academic support activities along with some of the more contemporary initiatives undertaken through the PDP program has provided a solid, albeit small, foundation on which to consider future directions. The decades of experience in arts and academic programming have built up extensive networks that have considerable intrinsic value to Canada. Likewise, the more recent activities funded by the PDP, both at home and abroad, as well as the communications activities also funded by it, have established at least a starting point should the government decide to strengthen its overall approach to public diplomacy.
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Ces programmes existent depuis longtemps et sont antérieurs à l'élaboration du troisième pilier. Or, ces programmes sont assujettis à des contraintes financières depuis un bon moment et ils ont grandement profité du financement « complémentaire » obtenu par l'intermédiaire du PDO.
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The Public Diplomacy Program began a number of years ago with an ad hoc and highly national identity concentration, and has since evolved towards being a mix of "top up" funding for the department's two "foundational" cultural diplomacy programs and some funding for exploratory activities in more contemporary programmatic forms of public diplomacy.
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20e constatation : Si on se base sur les niveaux de ressources actuelles de la présente combinaison de programmes (y compris les niveaux de ressources du PDO confirmés pour l'exercice 2004), on constate que les niveaux de ressources humaines sont à peine suffisants pour atteindre même de manière minimale les objectifs à court terme des programmes et à plus forte raison les objectifs à long terme liés à la promotion de l'ensemble des objectifs de politique étrangère du Canada.
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Program staff at posts and at headquarters remarked that funding uncertainties made it difficult to consider follow-on activities in many cases, and, more importantly, to consider multi-year arrangements. Thus, program commitments tended to be short-term, making it difficult to develop long-term partnership arrangements.
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Le Programme de diplomatie ouverte (PDO) a contribué à élargir la portée des programmes canadiens et a entrepris d'inclure certains éléments d'une programmation de diplomatie ouverte plus contemporaine qu'on retrouve dans d'autres pays.
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The current programming mix is generally seen to be relevant by its current set of stakeholders and beneficiaries. The Public Diplomacy Program (PDP) has broadened the scope of the Canadian program mix and has begun to include some elements of more contemporary types of PD programming used by other nations.
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En ce qui a trait aux activités de sensibilisation nationale, nous voulons souligner que le PDO a faire valoir au Canada l'importance d'obtenir la participation des intervenants nationaux. Toutefois, comme c'est le cas pour les activités de communication, les programmes actuels ne sont encore qu'embryonnaires par rapport à ceux des autres pays.
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In large part, we are of the view that the uncertain nature of the funding, combined with fairly low resource levels (in comparison to the number of objectives) resulted in solid beginnings of the use of new communications technologies and new approaches to domestic outreach. However, they could be considerably more developed should additional resources become available. For example, at this time, the Canadian use of new communications technologies is a "broadcasting approach" as opposed to one, like that of the US, which both broadcasts and narrowcasts its messages.
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Toutefois, nous voulons aussi souligner qu'il semble que les programmes nationaux et de communications soutenus par le PDO semblent dans une très large mesure avoir respecté les exigences en matière de production de rapport.
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As we have noted in several other instances, the absence of an overarching and integrating policy and accountability framework has resulted in a lack of managerial consistency. Systems of organizational performance assessment have been impacted negatively by this lack of a comprehensive sense of the "whole".
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24e constatation : Le PDO a favorisé la création de démarches nouvelles et innovatrices par rapport aux activités nationales et de communication au Canada. Ces activités demeurent toutefois relativement conservatrices en comparaison avec celles mises en oeuvre par certains autres pays.
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However, as we have noted elsewhere, the absence of a coordinated policy and accountability framework (and by implication any sense of cross-government commitment or coordination which is becoming prevalent among other nations) tends to inhibit the Department's ability to work with others in creative and mutually rewarding fashions.
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24e constatation : Le PDO a favorisé la création de démarches nouvelles et innovatrices par rapport aux activités nationales et de communication au Canada; mais ces activités demeurent assez conservatrices en comparaison avec celles mises en oeuvre par certains autres pays.
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Finding 23: The lack of an overarching strategic framework for public diplomacy programming appeared to have resulted in the absence of synergies among other federal departments with respect to the use of human resources.
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Le PDO a favorisé la mise en oeuvre de mécanismes nouveaux et innovateurs dans les domaines des communications et des activités nationales au Canada. Or, ces mécanismes restent assez limités en comparaison avec ceux des autres pays.
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The PDP resulted in new and innovative approaches to communications and domestic activities for Canada, but which in comparison to those of some other nations, remain fairly limited in nature.
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En outre, si on se base sur les niveaux de ressources actuels de la présente combinaison de programmes (y compris les programmes du PDO tel que créé en 2004), les niveaux de ressources humaines suffisent à peine pour atteindre de manière minimale les objectifs à court terme des programmes et, à plus forte raison les objectifs à long terme liés à la promotion des objectifs de politique étrangère du Canada dans l'ensemble.
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In addition, based on current resource levels of the present program mix (including those of the PDP as it was constituted in 2004) there are barely adequate levels of human resources to even minimally meet short-term program goals, let alone longer term ones relative to the overall promotion of Canadian foreign policy objectives as a whole. Despite independently verifiable evidence, there was a widespread perception among departmental informants that a career path primarily in public diplomacy was not as highly valued as other career paths. Any contemplation of increasing overall resource levels for public diplomacy programming would necessitate additional human resources, both at posts and at headquarters.
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Certains répondants ont reconnu que le financement du PDO était utilisé pour « compléter » le financement de programmes existants, en particulier le programme de Promotion des arts; cette situation soulève encore la question plus large qui est celle du manque de cadre politique, de stratégie globale et de cadre de responsabilisation en matière de diplomatie ouverte, malgré les récents efforts déployés, comme l'élaboration de la pyramide de la diplomatie ouverte.
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The prior lack of such a coordinated planning approach to Canadian public diplomacy programs has resulted in one of the four programs, Arts Promotion, retaining until very recently program goals over 20 years old which stated that the purpose of the Arts Promotion program was to promote the arts as a goal in itself (notwithstanding some more recent efforts to "fit" this program into the contemporary RMAF planning structures and systems). Special mention needs to be made of the improved logic model or framework ("the PD Pyramid"), which begins to address the issue of interconnectivity and which was under development at the time of the evaluation. Likewise, the shifting and evolving nature of the PDP's goals, beginning with a largely national identity focus, and evolving towards one with more focussed on the attainment of overall foreign policy objectives (and some aspects of domestic sensitization) has had both positive and negative impacts on the overall ability to contribute to the attainment of foreign policy goals.
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4e recommandation : En ce qui concerne la fin du PDO, il faut porter une attention particulière à la communication avec les intervenants externes. Si un nouveau projet lui succède, il faudrait élaborer une stratégie de communication afin de signaler tout changement liés aux objectifs, aux procédures, et ainsi de suite.
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The communications outreach initiatives - speakers programs, programs with journalism schools, and community media visits-should also be enhanced and leveraged. There are opportunities to link these efforts with other public diplomacy initiatives. One way that has already been identified by program staff is to use the speakers program to reinforce the UN simulations.
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Certains répondants ont reconnu que le financement du PDO était utilisé pour « compléter » le financement de programmes existants, en particulier le programme de Promotion des arts; cette situation soulève encore la question plus large qui est celle du manque de cadre politique, de stratégie globale et de cadre de responsabilisation en matière de diplomatie ouverte, malgré les récents efforts déployés, comme l'élaboration de la pyramide de la diplomatie ouverte.
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The prior lack of such a coordinated planning approach to Canadian public diplomacy programs has resulted in one of the four programs, Arts Promotion, retaining until very recently program goals over 20 years old which stated that the purpose of the Arts Promotion program was to promote the arts as a goal in itself (notwithstanding some more recent efforts to "fit" this program into the contemporary RMAF planning structures and systems). Special mention needs to be made of the improved logic model or framework ("the PD Pyramid"), which begins to address the issue of interconnectivity and which was under development at the time of the evaluation. Likewise, the shifting and evolving nature of the PDP's goals, beginning with a largely national identity focus, and evolving towards one with more focussed on the attainment of overall foreign policy objectives (and some aspects of domestic sensitization) has had both positive and negative impacts on the overall ability to contribute to the attainment of foreign policy goals.
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6 Renseignement tiré du procès-verbal du comité directeur du PDO pour la période 2002 à 2004.
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6 Taken from the Minutes of the PDP Steering Committee for 2002-2004.
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Tableau 4.3 Illustration du cheminement de l'information/des ressources entre les composantes du PDO
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Exhibit 3.2 PDP Allocations Approved by Treasury Board, 1998-99 to 2004-05
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10e constatation : La plupart des projets financés par le PDO ont contribué à améliorer la compréhension des participants par rapport aux questions culturelles, linguistiques et liées à la diversité régionale au Canada.
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Finding 9: PDP projects have generally been successful in improving the participant's personal knowledge or understanding of international issues.
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L'étude conclut que le PDO, principalement grâce à ses programmes nationaux, a atteint son objectif global portant principalement sur la « cohésion sociale » et sur « l'attachement et le sentiment d'appartenance au Canada ».
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The PDP has invested approximately $8 million per year, with partners such as ACA, IMF, BCD, Framework Posts, and Geographic bureaus managing over 60% of these funds in 2003-2004. The Program has used the Terms and Conditions for grants of the International Cultural Relations Bureau (ACD) and the Secretariat (CFDX) has been based in Federal-Provincial-Territorial Relations.
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« Un aspect qui manquait particulièrement de clarté était la relation qui existe entre le PDO et les autres programmes de financement de MAECI »;
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"there wasn't a lot of information about the PDP program. Some guesswork was involved. The PDP objectives and criteria could definitely be more clearly outlined";
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27e constatation : La structure de gouvernance du PDO était lourde, les rôles et les responsabilités en matière de gouvernance et de gestion étaient mal définis et la composition et le mandat des organismes clés ont évolué au cours des années.
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Finding 26: At the time of creation, this "pilot" initiative was appropriate. However, in light of the Department's recent Public Diplomacy mainstreaming efforts, a more coordinated and integrated program should be pursued.
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24e constatation : En général, le PDO a répondu aux attentes des missions, des direction géographiques et des autres directions de AEC, même si des améliorations dans certains secteurs pourraient faire en sorte que le Programme réponde encore plus à leurs besoins.
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Finding 23: The PDP generally has met the expectations of Canadian beneficiary organizations and, as the Program sunsets, there are concerns about the lack of alternative funding resources for engaging in the same type of activities.
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Les projets financés par le PDO ont produit des résultats intéressants et inattendus qui dépassent le simple fait d'améliorer les connaissances par rapport aux questions internationales et d'élargir les connaissances des gens à l'égard du Canada.
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One means of assessing pride and its relation to a sense of belonging to Canada is to survey participants over a longer period of time to track the evolution of their perceptions. However, given the limited resources available to the PDP, the Program's management has not been in a position to use this tool.
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20e constatation : Selon les intervenants internes et externes, il y avait un manque de transparence relativement au PDO, car on transmettait peu d'information à propos des objectifs et des critères du Programme.
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Finding 19: The PDP was established as a pilot, but did not incorporate a strong monitoring and evaluation system that could be important for the maximization of learning from pilot initiatives.
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25e constatation : Les partenaires de AEC à l'étranger affirment que les activités de sensibilisation de l'ambassade réalisées grâce aux projets financés par le PDO sont très utiles, car ils peuvent recevoir des fonds, créer des réseaux et profiter des possibilités d'apprentissage.
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Finding 24: The PDP generally has met the expectations of Posts, Geographic Bureaus, and other divisions in FAC, although improvements in some areas could make it even more relevant to their needs.
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8 Les employés actuels du PDO ont classé plusieurs projets de manière rétroactive, mais en l'absence d'une documentation complète sur les projets, ils allèguent que la classification n'est pas toujours exacte.
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8 Current PDP staff has classified many projects retroactively, but in the absence of full documentation for the projects, they suggest that the classification may not always be accurate. It should be noted, however, that administrative practices have significantly improved since 2003.
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Même si les programmes de sensibilisation financés par le PDO ont contribué à accroître les connaissances des Canadiens sur les questions internationales et sur la politique étrangère du Canada, le Ministère n'a pas renforcé les liens qui existent entre cette composante et les autres composantes du PDO.
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In addition to the domestic initiatives, the BCD has continued with the Foreign Visitors program. This initiative facilitates visits to Canada by foreign journalists in order to increase their interest in and knowledge of Canadian culture, issues and accomplishments. Cultural diversity, higher education, federalism and emerging science are among the themes presented during the journalists' visits. As noted in the Bureau's reports, the foreign visitors program has allowed foreign journalist to write articles which are well-balanced, less stereotyped and more in tune with Canadian realities.
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5 Ces allocations n'incluaient pas les allocations pour activités culturelles du PDO transférées par ACA ou les autres fonds du PDO auxquels il est possible d'avoir accès par l'intermédiaire des enveloppes des directions géographiques.
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5 These allocations do not include the PDP cultural allocations transferred by ACA or other PDP funds potentially accessed through the Geographic Envelopes.
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5 Ces allocations n'incluaient pas les allocations pour activités culturelles du PDO transférées par ACA ou les autres fonds du PDO auxquels il est possible d'avoir accès par l'intermédiaire des enveloppes des directions géographiques.
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5 These allocations do not include the PDP cultural allocations transferred by ACA or other PDP funds potentially accessed through the Geographic Envelopes.
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14e constatation : Certaines activités financées par le PDO ont accru la visibilité des communautés de langue officielle en situation minoritaire au Canada, en particulier à l'occasion d'activités thématiques à l'étranger, fournissant ainsi à AEC un outil important pour s'acquitter de ses obligations en vertu de la Loi sur les langues officielles.
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Similarly, Enfants d'ici et d'ailleurs's policy of requiring participants to hold discussions in Canadian schools before and after their international experience ensures that the learning process on these issues in general, and the impact of the international experience specifically, benefit a wider group of young people.
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2e constatation : En général, les fonds du PDO ont aidé à rehausser le niveau des activités des missions afin de promouvoir les valeurs et la culture canadiennes. Ils ont permis aux missions clés d'élaborer une stratégie et d'assurer la continuité et une qualité uniforme de leurs activités de sensibilisation, et cette démarche a été essentielle dans l'amélioration du profil du Canada.
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Finding 1: The objective of the PDP has essentially remained the same since 1998. Over the years, the addition of new sub-objectives and criteria for project selection led to a cumbersome framework for performance management, but gave the Program flexibility to respond to the political context.
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Il est aussi important de noter que les capacités des missions jouent un rôle important lorsqu'il s'agit de déterminer dans quelle mesure les missions sont capables de profiter au maximum des fonds accordés par le PDO.
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Our interviews also indicated that some of the criteria for projects, particularly the promotion of the Francophonie, are less relevant for Posts in some countries (such as the Commonwealth countries) where target audiences have little appetite for these areas.
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Environ 65 % des chefs de projet ont indiqué que les participants aux projets financés par le PDO ont créé des liens avec des Canadiens des autres régions et avec des groupes linguistiques autres que le leur.
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Both the survey results and project documents indicate that PDP projects generally facilitated greater linkages between Canadians and foreigners. This is the case for activities such as NMUN, EIA, and Mer et Monde, which encourage the development of positive relationships with citizens from various regions, including developing countries.
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Autant les résultats de l'enquête que les documents des projets démontrent que les projets du PDO ont généralement facilité la création de liens plus étroits entre Canadiens et étrangers. C'est le cas notamment pour des activités comme NMUN, EIA et Mer et Monde qui contribuent au développement de relations saines entre les citoyens de différentes régions, y compris des pays en voie de développement.
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The survey results show that a high rate of 94% of the respondents agree that participants (in the PDP-funded projects) improved their understanding of global issues and realities. An average rate of 81% of respondents agrees that participants increased their knowledge about Canada's foreign policy. It should be noted that the survey results are based on the opinions of project leaders who provided a self-assessment of the effects of their project on participants, who could not be reached directly.
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4 En 2004, le Canada avait au total 270 bureaux diplomatiques et consulaires dans 180 pays. Les missions du Programme du PDO peuvent inclure des ambassades et des centres culturels. Dans les cas de Paris et de Londres, ces bureaux incluent les ambassades ainsi que le Centre culturel de Paris et la Maison du Canada à Londres.
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4 In 2004, Canada had total of 270 diplomatic and consular offices in 180 foreign countries. The PDP Framework Posts may include Embassies or Cultural Centers. For Paris and London, they include the Embassies and the Paris Cultural Center and Canada House London.
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La présente section présente les constatations liées aux résultats que le PDO a obtenus au moyen des activités menées dans les secteurs culturel, des affaires publiques et des communications qui ont été mises en oeuvre par les missions du Canada à l'étranger.
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The 1999 submission to the Treasury Board proposed to renew the program "building on past success by expanding and reorienting the program to include more domestic activities." The document underscores that new projects should also meet at least one of 7 new criteria related to youth, trade interests, francophonie, good governance, the Americas, human security and globalization. An additional criterion specifies that projects selected should encourage greater "connectivity" among Canadians.
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Avant la création du PDO, les missions canadiennes à l'étranger comptaient principalement sur le Fonds d'initiative de la mission (FIM) pour mettre en oeuvre des activités de sensibilisation et des activités dans le domaine des affaires publiques.
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PDP funds facilitated the launch a Canadian film festival in Mexico that is now (4 years later) recognized by film critics as one of the best in the country. In order to "keep Canada bubbling" the Embassy in Mexico aims at delivering a combination of big impact projects as well as smaller initiatives. The PDP funds allowed the Embassy to move from being "responsive" to being "proactive," planning events with greater anticipation because they had the discretionary funds and could make decisions on their use.
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Signature d'une entente avec Patrimoine canadien pour promouvoir les communautés de langue officielle en situation minoritaire (le PICLO), qui permet au PDO de recouvrer 50 % des fonds accordés aux communautés de langue officielle minoritaire.
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Treasury Board Submission on Public Diplomacy Initiatives seeks approval to use the international dimension to promote Canadian Unity. The activities are limited to a maximum duration of 2 years and do not restore previous program review reductions. A decision on long-term funding to be sought at a later date. PD Steering Committee established.
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2e constatation : En général, les fonds du PDO ont aidé à rehausser le niveau des activités des missions afin de promouvoir les valeurs et la culture canadiennes. Ils ont permis aux missions clés d'élaborer une stratégie, et d'assurer la continuité et une qualité uniforme de leurs activités de sensibilisation, et cette démarche a été essentielle dans l'amélioration du profil du Canada.
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Finally, the 2003 submission to the Treasury Board adds another objective to the program, which is to "promote greater social cohesion through and inclusive approach for minority groups, especially in debates arising from international issues."
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8e constatation : Entre 1998 et 2004, environ 500 projets comprenant la participation de membres de la société civile ont reçu un financement du PDO. Au cours de cette période, on a constaté un changement dans les types de projets et d'organisations soutenus par le programme, et ce changement reflète, en partie, une amélioration de la stratégie du programme.
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This section focuses primarily on the component of the PDP that has provided grant support to organizations and groups in Canada and is directly managed by CFDX. However, in some findings, reference is also made to activities funded by the BCD and IMF. The findings below are based on four sources of data: a survey of beneficiary organizations, a review of the available documentation for 47 projects(7), interviews with a sub-sample of 14 project leaders, and interviews with program staff and management.
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La mission de l'Allemagne a utilisé le PDO pour faire connaître le point de vue du Canada sur les questions politiques actuelles, comme les réalisations en matière d'éducation, le fédéralisme et l'immigration.
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Before PDP, Canada's missions abroad relied primarily on the PIF to implement public affairs and outreach activities. The introduction of PDP funds has increased their capacities to engage in a sustained way with key target groups. A number of examples of the initiatives being undertaken at the Posts are provided below.
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Comme il est indiqué dans la présentation au Conseil du Trésor de 1999, la promotion de la francophonie est un des principaux secteurs de travail du PDO. Les principaux mécanismes de promotion de la francophonie à l'étranger sont les projets soutenus par la Direction des affaires de la Francophonie (IMF), qui accorde quelque 250 000 $ à 300 000 $ en subventions mineures chaque année, ainsi que pour des activités de la francophonie organisées dans les missions.
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In the case of a project that supported a meeting of youth leaders from francophonie countries and regions, it was the first time that francophone youth leaders from Quebec met with their peers from other parts of Canada. In reference to this meeting, one respondent notes that "the participants are now more interested in cultures within the francophonie because they now have concrete ways of getting involved." Another survey respondent noted that "The PDP has played an essential role in the promotion of francophone and Acadian communities. [The activity they funded] showed the diversity of francophone communities in Canada, the usefulness of bilingualism, and that francophone communities outside of Quebec not only survive but flourish".
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L'étude a aussi conclu que le PDO, dans sa forme actuelle, n'est probablement plus le mécanisme idéal pour atteindre les objectifs fixés. Cette hypothèse est basée principalement sur notre évaluation des facteurs liés à la conception du programme et sur l'évolution du contexte à AEC.
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The evaluation finds that given this context, a pilot program - to test and learn from programming initiatives that use the international dimension to increase the sense of belonging and attachment to Canada--was appropriate. The PDP serves to illustrate that public diplomacy initiatives can support the generation of social cohesion in Canada.
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Même si les présentations et les plans d'activités du PDO contiennent une gamme importante d'objectifs que le PDO devrait atteindre, il existe peu d'éclaircissements ou d'indicateurs particuliers sur la manière d'établir un lien entre ces objectifs et la manière de les transposer en résultats précis.
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An analysis of PDP submissions and results templates presented to the Treasury Board, shows that in essence the PDP overall objective in essence has remained steady over time. The 1998 submission to the Treasury Board specifies that the PDP funding is for the purpose of using the international dimension to promote Canadian unity. Over time, "social cohesion" and the notion of "attachment and belonging to Canada" began to prevail over the reference to "unity" in program documents.
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Signature d'une entente avec Patrimoine canadien pour promouvoir les communautés de langue officielle en situation minoritaire (le PICLO), qui permet au PDO de recouvrer 50 % des fonds accordés aux communautés de langue officielle minoritaire.
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Treasury Board Submission on Public Diplomacy Initiatives seeks approval to use the international dimension to promote Canadian Unity. The activities are limited to a maximum duration of 2 years and do not restore previous program review reductions. A decision on long-term funding to be sought at a later date. PD Steering Committee established.
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Même si les présentations et les plans d'activités du PDO contiennent une gamme importante d'objectifs que le PDO devrait atteindre, il existe peu d'éclaircissements ou d'indicateurs particuliers sur la manière d'établir un lien entre ces objectifs et la manière de les transposer en résultats précis.
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An analysis of PDP submissions and results templates presented to the Treasury Board, shows that in essence the PDP overall objective in essence has remained steady over time. The 1998 submission to the Treasury Board specifies that the PDP funding is for the purpose of using the international dimension to promote Canadian unity. Over time, "social cohesion" and the notion of "attachment and belonging to Canada" began to prevail over the reference to "unity" in program documents.
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Avec le temps, le portefeuille de projets du PDO a mis l'accent de plus en plus sur des projets venant de la société civile canadienne. Les résultats du sondage (effectué en grande partie auprès des bénéficiaires de subventions les plus récentes) indiquent que 39 % des répondants sont des organismes à but non lucratif et que 44 % sont des établissements d'enseignement (comme des universités (26 %), des cegeps (16 %), ou des collèges communautaires (2 %).
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Although a classification of the 500 projects is not available (e.g. by type of project, type of organization, target group, province, etc.)(8), the review team developed a profile of grants and grant recipients based on our review of project documentation and information provided by respondents to the survey.
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Comme le font remarquer certaines personnes interviewées, il est devenu un « comité de sélection/d'approbation » qui avait des fonctions d'orientation générale, de surveillance et des pouvoirs plus limités relativement au PDO.
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The membership of the Committee included ADM for Communications and Policy Planning, the DGs for the different Bureaus involved in program delivery (Federal-Provincial Territorial Relations, International Cultural Relations, and Communications), the Chief of Protocol, representatives of the Privy Council Office and of the Ministers concerned.
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La présente section porte principalement sur la composante du PDO qui a servi à fournir un soutien en subvention à des organisations et à des groupes au Canada et qui est gérée directement par CFDX. Toutefois, dans certains cas, on fait aussi référence à des activités financées par BCD et par IMF.
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Data indicates that a mix of both political and cultural programming is useful to access and influence decision-makers. The appropriateness of the balance of activities between the two types of programming will depend on the country, the nature of the bilateral relationship, the foreign policy objectives, the strategy, and the specific audiences targeted. In that sense, an even split in the budget allocation between political and cultural programming may not be optimal in every case.
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L'étude a aussi conclu que le PDO, dans sa forme actuelle, n'est probablement plus le mécanisme idéal pour atteindre les objectifs fixés. Cette hypothèse est basée principalement sur notre évaluation des facteurs liés à la conception du programme et sur l'évolution du contexte à AEC.
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The evaluation finds that given this context, a pilot program - to test and learn from programming initiatives that use the international dimension to increase the sense of belonging and attachment to Canada--was appropriate. The PDP serves to illustrate that public diplomacy initiatives can support the generation of social cohesion in Canada.
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Le PDO a investi environ 8 millions de dollars par année, avec des partenaires comme la Direction de la promotion des arts et des industries culturelles (ACA), la Direction des affaires de la Francophonie (IMF), les missions faisant partie du Programme (missions du Programme) et les directions géographiques qui géraient plus de 60 % de ces fonds en 2003-2004.
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This report presents the results of the evaluation of the Public Diplomacy Program (PDP). The evaluation, conducted by Universalia Management Group, aimed to assess the extent to which the PDP has been effective in meeting its programmatic objectives and linking to the objectives of the Third Pillar, the relevance of the PDP to its stakeholders, and the extent to which the PDP has been implemented efficiently. The evaluation focused on the period from 1998 to 2005. The interviews, document review, surveys, and field visits (to Germany, France, and Brazil) for the study took place between November 2004 and March 2005.
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Même si les programmes de sensibilisation financés par le PDO ont contribué à accroître les connaissances des Canadiens sur les questions internationales et sur la politique étrangère du Canada, le Ministère n'a pas renforcé les liens qui existent entre cette composante et les autres composantes du PDO.
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In addition to the domestic initiatives, the BCD has continued with the Foreign Visitors program. This initiative facilitates visits to Canada by foreign journalists in order to increase their interest in and knowledge of Canadian culture, issues and accomplishments. Cultural diversity, higher education, federalism and emerging science are among the themes presented during the journalists' visits. As noted in the Bureau's reports, the foreign visitors program has allowed foreign journalist to write articles which are well-balanced, less stereotyped and more in tune with Canadian realities.
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Certains partenaires du PDO font partie d'autres programmes de AEC comme le Programme d'études canadiennes. Il existe de nombreux exemples de la manière dont le financement du PDO a servi à appuyer ou à intensifier les activités d'un réseau de programmes et de centres d'études canadiennes dynamiques et bien répartis géographiquement.
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All three of the Posts visited in the context of this evaluation (Brazil, France, and Germany) develop their programs in partnership with local collaborators who are perceived as credible in in cultural, political, and/or economic spheres. This allows the Post to leverage the resources of others, including financial and human resources, infrastructure, and knowledge/expertise. The most frequent examples are of partners that facilitate the choice of venue for an activity or pick up the costs of publicity for the event. We found many cases where the Canadian Embassy investment was relatively small, yet it allowed them to "piggy back" on an existing event. A small contribution ($1,000-$5,000) to a prominent Festival can facilitate the participation of Canadian artists.
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Les différentes présentations au Conseil du Trésor, les plans d'activités et les notes de service ministérielles à propos du PDO démontrent qu'il y a eu une évolution du programme. Comme nous l'avons indiqué précédemment, le Ministère a ajouté de nouveaux critères et des sous-objectifs au cadre de travail du PDO avec l'objectif de s'adapter au contexte et de donner une orientation stratégique au programme.
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Some of these components of the initial design evolved over time, such as the composition of the PDP Committee. (Further information on the Program's management and governance can be found in Section 6.1.) The Minister's role in approving projects also varied - from signing off on grants in the amounts of $5,000 and higher to delegating this authority to the appropriate divisions, subject to Committee approval.
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Une des lacunes du PDO est qu'il n'a pas favorisé un échange des connaissances acquises entre les différents intervenants du programme (ce qui fonctionne et ce qui ne fonctionne pas) autant qu'il aurait pu le faire.
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The Posts also recognize the limited resources available for monitoring or doing follow-up on public diplomacy initiatives and events. Polling is of particular interest to countries such as China. Yet several other stakeholders have also questioned the cost-effectiveness of polling to monitor public diplomacy. In a subsequent phase of programming, FAC will need to assess the alternatives for monitoring public diplomacy initiatives.
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Le PDO a facilité le lancement du Festival du film canadien à Mexico qui est maintenant reconnu (quatre ans plus tard) par les critiques de cinéma comme un des meilleurs festivals du pays. Afin de « maintenir l'intérêt pour le Canada », l'ambassade de Mexico prévoit mettre sur pied un ensemble de projets ayant une grande visibilité, ainsi que des projets plus modestes.
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Brazil also engages in cultural programming, but with more limited human resources. The size and diversity of the country also presents some challenges for taking cultural events beyond the Brasilia, Rio de Janeiro, and Sao Paolo "triangle." The Mission capitalizes on the Brazilians' knowledge of and respect for traditions in animation, literature, cinema, and music, for example. The promotion of Canada as a diverse and tolerant society also prevails in Brazil's strategy. The promotion of a vibrant francophone population, with many "Latin" affinities, is considered critical. Thus, Francophonie events, in collaboration with the Alliance Française, and other members of the Francophonie have been a key component in their approach.
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Les échanges avec les parlementaires au Brésil ont commencé en 2002-2003. Grâce au financement accordé par le PDO, la mission a donné aux députés et aux sénateurs brésiliens l'occasion d'effectuer des voyages d'information au Canada.
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In China, with the support of the PDP funds, the Beijing mission has developed a Canada 100 list which lists more than 200 opinion leaders who can help Canada have greater resonance in various spheres in China. The targeted opinion leaders are systematically invited to major events organized by the mission in order to maintain Canada on their agenda. A significant example is the first visit of Prime Minister Paul Martin to China, which was an occasion to invite targeted decision-makers and demonstrate to them that Canada's engagement with China goes beyond Mr. Chrétien's personal involvement while he was in power.
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Dans ces circonstances, on menait des interviews axées sur le rendement passé dans le cadre de la présente évaluation du PDO, alors que des discussions étaient déjà amorcées sur de nouveaux moyens de planifier et de gérer la diplomatie ouverte.
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Third, the framework (items) for budget allocations changed over time, which makes some aggregation and comparison more difficult. For example, in the earlier working budgets (1999-2000), budget categories include Identity and Attachment, La Francophonie, Canada Initiatives Fund, Communications Activities, and Academic Relations. (Within these components, there is also some overlap. For example, "Canada in the World" and other communications activities form part of the Identity and Attachment category.) In the proposed allocations for 2004-2005, the budget allocations are organized according to transfer of PDP funds to partners. The analysis of the distribution of PDP funds across components is generally based on the budgets from the last two years.
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Les organisations font aussi remarquer que la subvention accordée par AEC/PDO donne au projet une crédibilité et une visibilité aux yeux des donateurs potentiels. Comme l'indique un répondant à l'enquête : [traduction] « les gouvernements provinciaux, en particulier en ce qui a trait aux activités de la francophonie, veulent toujours savoir d'abord quelle est la participation du gouvernement fédéral. Le financement fédéral du PDO a souvent servi de levier pour obtenir la participation des gouvernements provinciaux. » Plusieurs organisations craignent que si le programme est interrompu, elles n'auront plus les moyens de poursuivre leurs activités.
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These groups have developed an expectation of stable financial support from the program. Some even stress that the development of projects would not have been possible without PDP's financial support. For about half of the respondents to the survey, the PDP funding represented less than 25% of their project's total budget. Nonetheless, for one-third of the respondents the PDP funds provided 25-50% of their project's total budget. While the PDP was not the sole source of funding, in several cases, project leaders report that it was the most important contributor.
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L'évaluation a conclu qu'en raison de ce contexte, la création d'un programme pilote était appropriée, soit un programme pilote qui servirait à tester des programmes, et à tirer des leçons de ces programmes qui utilisent la dimension internationale pour accroître le sentiment d'appartenance et l'attachement au Canada. Le PDO a servi à illustrer que les projets de diplomatie ouverte peuvent renforcer la cohésion sociale au sein du Canada.
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Program documents point out that during the same period, the Department of Foreign Affairs identified a rise in the importance of the international dimension to citizens stemming, in part, from anti-globalization and other movements of the 1990s. These movements drew the attention of young people in Canada. Certain provincial governments, notably the government of Quebec, began stressing the international dimension even more, in part to illustrate that governments share the preoccupations of their citizens.
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De plus, le budget du 24 février affectait 8 millions de dollars annuellement, pendant cinq ans, afin de permettre à la programmation stratégique de la diplomatie ouverte de continuer. Cet argent, qui remplace le PDO temporarisé permettra au Ministère d'aller de l'avant dans l'élaboration d'une approche stratégique et ciblée pour la diplomatie ouverte.
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Steps have been taken to implement this recommendation. The most transformational has been the identification of "mainstreaming Public Diplomacy" by FAC's Deputy Minister as one of six imperatives to the building of a 21st Century Foreign Ministry. Central to this initiative has been the reorganization and transformation of the former Strategic Policy and Planning branch, headed by ADM Ross Hornby, to the Strategic Policy and Public Diplomacy branch. The reorganization will enable increased coherence across all elements of PD (culture, education, youth, etc).
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Les bénéficiaires de subvention ont aussi profité de résultats inattendus. Dans certains cas, la participation au programme du PDO a permis à ces organisations bénéficiaires de se greffer à des réseaux plus importants.
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Furthermore, PDP partners shared accounts of participants taking concrete actions as a result of their participation in the project activity. Some have opted for greater personal involvement in volunteer work, the development of NGOs, participation in solidarity networks, etc. Others have adapted their academic and career orientation to integrate international dimensions, sometimes leading them to seek professional opportunities within international or governmental agencies. One survey respondent writes "[the participants] feel more confident about taking a leadership role, as their participation confirmed that they have the skills to research and present high-level material" and another stated "the program contributed to helping youth identify the values that will determine their choice of life and career as well as their engagement as active and responsible citizens. It favours the emergence of a network of adults that are engaged in their local communities and on the international stage."
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Les différentes présentations au Conseil du Trésor, les plans d'activités et les notes de service ministérielles à propos du PDO démontrent qu'il y a eu une évolution du programme. Comme nous l'avons indiqué précédemment, le Ministère a ajouté de nouveaux critères et des sous-objectifs au cadre de travail du PDO avec l'objectif de s'adapter au contexte et de donner une orientation stratégique au programme.
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Some of these components of the initial design evolved over time, such as the composition of the PDP Committee. (Further information on the Program's management and governance can be found in Section 6.1.) The Minister's role in approving projects also varied - from signing off on grants in the amounts of $5,000 and higher to delegating this authority to the appropriate divisions, subject to Committee approval.
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Avant la création du PDO, les missions canadiennes à l'étranger comptaient principalement sur le Fonds d'initiative de la mission (FIM) pour mettre en oeuvre des activités de sensibilisation et des activités dans le domaine des affaires publiques.
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PDP funds facilitated the launch a Canadian film festival in Mexico that is now (4 years later) recognized by film critics as one of the best in the country. In order to "keep Canada bubbling" the Embassy in Mexico aims at delivering a combination of big impact projects as well as smaller initiatives. The PDP funds allowed the Embassy to move from being "responsive" to being "proactive," planning events with greater anticipation because they had the discretionary funds and could make decisions on their use.
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En ce qui a tait à la gestion et à l'efficacité du programme, l'étude conclut que des lacunes liées aux procédures administratives ont nui à l'efficacité du PDO, malgré les efforts consacrés au cours des dernières années pour régler ces problèmes.
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The purpose of this study was to assess the effectiveness, efficiency, and rationale of the PDP. In general, we found that the program's components contributed to positive results both domestically and abroad that link to Departmental priorities and the Third Pillar. The PDP illustrated that public diplomacy efforts can contribute to greater social cohesion among Canadians. Nonetheless, several program design issues may have frustrated PDP's overall effectiveness. Although the individual components of the program made positive contributions, there often was little synergy among them, which meant that the whole of the PDP was no greater than the sum of its parts. Strategic coordination amongst the components would have greatly benefited the program.
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Certains partenaires du PDO font partie d'autres programmes de AEC comme le Programme d'études canadiennes. Il existe de nombreux exemples de la manière dont le financement du PDO a servi à appuyer ou à intensifier les activités d'un réseau de programmes et de centres d'études canadiennes dynamiques et bien répartis géographiquement.
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All three of the Posts visited in the context of this evaluation (Brazil, France, and Germany) develop their programs in partnership with local collaborators who are perceived as credible in in cultural, political, and/or economic spheres. This allows the Post to leverage the resources of others, including financial and human resources, infrastructure, and knowledge/expertise. The most frequent examples are of partners that facilitate the choice of venue for an activity or pick up the costs of publicity for the event. We found many cases where the Canadian Embassy investment was relatively small, yet it allowed them to "piggy back" on an existing event. A small contribution ($1,000-$5,000) to a prominent Festival can facilitate the participation of Canadian artists.
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Ces groupes avaient des attentes relativement à un soutien financier stable du programme. Certains allèguent même que la création de certains projets n'aurait pas pu être possible sans le soutien financier du PDO.
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In general, the civil society groups that have received grants value the PDP at FAC. It is seen both as a mechanism for citizen engagement and a key source of funding. As stated in one survey, "this program offers more flexibility for the interaction between the citizens and the government than other programs because it addresses itself to all citizens and allows room for originality and initiative in the conception of projects. Contrary to CIDA programs, it is an encouraging not discouraging program, especially for small organizations."
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Finalement, certaines personnes interviewées ont indiqué que les projets de sensibilisation financés par le PDO ont changé la nature du travail effectué par les sections à vocation politique et économique des ambassades.
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Parliamentary exchanges in Brazil were initiated in 2002/03. With PDP funding, the Post has provided opportunities to Brazilian Deputies and Senators to make familiarization visits to Canada. In addition to the long-term benefits that come from the improved awareness of and interest in Canadian models and approaches, this initiative also improves the Post's immediate access to parliamentarians in their efforts to reinvigorate the bilateral relationship.
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En réalité, on peut trouver plusieurs cas dans lesquels le PDO a contribué à une meilleure connaissance des francophones entre eux par l'intermédiaire d'activités liées à la « francophonie » qui regroupaient des communautés francophones de différentes régions du Canada.
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Although the PDP supported a small number of projects in this area, these projects generated positive results in terms of increased awareness of Canada's Language Minority Communities. About a dozen survey respondents--out of the 33 that answered this particular question--indicated that Official Language Minority communities, such as francophones outside Quebec, were the primary participants in their activity. In its commitment to the OLA, PDP mostly provided support to organisations promoting Canadian francophone minority communities. This inclination is explained by the relative importance in terms of number of organisations supporting Canadian francophonie vis-à-vis organisations promoting the development of English as a minority language in Canada.
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En ce qui a tait à la gestion et à l'efficacité du programme, l'étude conclut que des lacunes liées aux procédures administratives ont nui à l'efficacité du PDO, malgré les efforts consacrés au cours des dernières années pour régler ces problèmes.
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The purpose of this study was to assess the effectiveness, efficiency, and rationale of the PDP. In general, we found that the program's components contributed to positive results both domestically and abroad that link to Departmental priorities and the Third Pillar. The PDP illustrated that public diplomacy efforts can contribute to greater social cohesion among Canadians. Nonetheless, several program design issues may have frustrated PDP's overall effectiveness. Although the individual components of the program made positive contributions, there often was little synergy among them, which meant that the whole of the PDP was no greater than the sum of its parts. Strategic coordination amongst the components would have greatly benefited the program.
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Dans l'examen de la documentation que nous avons effectué, il existe une grande différence entre les documents disponibles pour les projets financés par le PDO en 1998, et les documents disponibles pour les projets financés au cours des deux dernières années.
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An Advise and Assist audit conducted in 2000 noted several weaknesses in administrative procedures. One of the primary findings was that the Program's documentation for approved projects was often incomplete. As noted in the Management comment on the Summary of findings from this audit, many of the projects highlighted by the audit team were approved under a "framework" proposal from another branch (e.g. Communications). Nonetheless, Program management took note and proposed to remedy the fact that many of the Program files were missing grant applications, grant agreements, or reports.
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Le PDO a aussi soutenu la création de produits promotionnels à contenu partagé et de nouvelles technologies visant l'atteinte des priorités de AEC. Des projets d'élaboration de contenu particulier incluent les trousses « Canada in a Classroom » (Le Canada dans la classe), des fiches d'information, des outils promotionnels multimédias, la création de nouveaux sites Web.
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Another key initiative is the production of the quarterly magazine "Canada World View", which provides an overview of current policy issues and Canada's perspective on them. The magazine, which is now available in electronic format, is distributed to approximately 43,000 subscribers in Canada. It is unclear whether or not the Embassies distribute the electronic version of the magazine in their host country as an instrument of public diplomacy. If not, this represents an opportunity for broader application of the magazine.
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Comme nous l'avons indiqué précédemment, plusieurs projets financés par le PDO intègrent des activités de partage d'information qui sont menées par les participants eux-mêmes et non par les organisateurs.
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There were also unexpected results for the organizations that benefited from the grant. In some cases, participation in the PDP program has allowed beneficiary organizations to become part of a larger network. Several of the funded projects led to the creation of new networks (international network of young francophones, international meetings of community and associative radio stations, human rights delegations across Canadian universities) and all have helped to galvanize local organisations into action to support the initiative either financially or logistically.
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Même si les programmes de sensibilisation financés par le PDO ont contribué à accroître les connaissances des Canadiens sur les questions internationales et sur la politique étrangère du Canada, le Ministère n'a pas renforcé les liens qui existent entre cette composante et les autres composantes du PDO.
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In addition to the domestic initiatives, the BCD has continued with the Foreign Visitors program. This initiative facilitates visits to Canada by foreign journalists in order to increase their interest in and knowledge of Canadian culture, issues and accomplishments. Cultural diversity, higher education, federalism and emerging science are among the themes presented during the journalists' visits. As noted in the Bureau's reports, the foreign visitors program has allowed foreign journalist to write articles which are well-balanced, less stereotyped and more in tune with Canadian realities.
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Grâce à ses activités nationales, principalement à CFDX (mais aussi par les activités de IMF et de BCD), le PDO a testé des manières intéressantes d'obtenir la participation des Canadiens. Dans plusieurs des projets examinés, on peut démontrer que des Canadiens ont amélioré leur compréhension de la situation internationale.
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The PDP supported a wide range of activities that contribute to Canada's Third Pillar of foreign policy. In the absence of a clear strategy and framework for the pillar, it is difficult to draw the direct and more concrete linkages between what the Program supports and what the Pillar tries to achieve. Above all, the PDP has been a core funding mechanism for activities in this area. The study also finds that the PDP is relevant to foreign policy priorities, especially as they are interpreted at the country level. Some missions have been particularly successful in articulating Post business plans and priorities with activities funded by PDP. Missions use a combination of PDP-funded programs, together with other initiatives, in order to foster understanding of Canada and its foreign policy objectives among decision makers and opinion leaders in key countries.
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La combinaison de programmes culturels et politiques soutenus par le PDO a été examinée et on a démontré les possibilités offertes par une telle combinaison dans les missions. La démarche de AEC en ce qui a trait au PDO dans l'avenir devrait s'inspirer de l'expérience des missions dans ce domaine.
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The evaluation has shown the overall value of "public diplomacy" to Canada's foreign policy. As noted in the new framework being put forward, public diplomacy is more than a discrete program/project. Thus, although we recommend that FAC end the Public Diplomacy Program as it has been operating, we also recommend that FAC continue to engage in public diplomacy and allocate the necessary resources. This intention has already been expressed in the Department's response to the International Policy Statement and declaration of Public Diplomacy as one of the six key departmental imperatives. The new approach should include a clear policy and results framework, which is already under development, and consider direct allocations to centers of responsibility. These centres should become accountable for resources within the context of the overall policy framework. Finally, FAC should develop strategies and allocate resources for monitoring, evaluation, and learning from its public diplomacy initiatives.
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En 1998, AEC a créé le Programme de diplomatie ouverte (PDO) avec l'objectif d'utiliser la plate-forme internationale pour promouvoir l'unité canadienne. Le programme était conçu comme un projet pilote à court terme destiné à renforcer l'identité des Canadiens et leur attachement envers leur pays, à projeter l'image du Canada à l'étranger et à sensibiliser les Canadiens.
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The Canada in the World paper of 1995 proposed a foreign policy for Canada based on three pillars: the promotion of prosperity and employment; the protection of our security, within a stable global framework; and the projection of Canadian values and culture. For the last ten years, the Third Pillar, which emphasized the projection of Canadian culture, provided the rationale for several programs at Foreign Affairs Canada (FAC). Today, these programs form part of the Department's new business line of public diplomacy.
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Le PDO a facilité le lancement du Festival du film canadien à Mexico qui est maintenant reconnu (quatre ans plus tard) par les critiques de cinéma comme un des meilleurs festivals du pays. Afin de « maintenir l'intérêt pour le Canada », l'ambassade de Mexico prévoit mettre sur pied un ensemble de projets ayant une grande visibilité, ainsi que des projets plus modestes.
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Brazil also engages in cultural programming, but with more limited human resources. The size and diversity of the country also presents some challenges for taking cultural events beyond the Brasilia, Rio de Janeiro, and Sao Paolo "triangle." The Mission capitalizes on the Brazilians' knowledge of and respect for traditions in animation, literature, cinema, and music, for example. The promotion of Canada as a diverse and tolerant society also prevails in Brazil's strategy. The promotion of a vibrant francophone population, with many "Latin" affinities, is considered critical. Thus, Francophonie events, in collaboration with the Alliance Française, and other members of the Francophonie have been a key component in their approach.
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Les organisations font aussi remarquer que la subvention accordée par AEC/PDO donne au projet une crédibilité et une visibilité aux yeux des donateurs potentiels. Comme l'indique un répondant à l'enquête : [traduction] « les gouvernements provinciaux, en particulier en ce qui a trait aux activités de la francophonie, veulent toujours savoir d'abord quelle est la participation du gouvernement fédéral. Le financement fédéral du PDO a souvent servi de levier pour obtenir la participation des gouvernements provinciaux. » Plusieurs organisations craignent que si le programme est interrompu, elles n'auront plus les moyens de poursuivre leurs activités.
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These groups have developed an expectation of stable financial support from the program. Some even stress that the development of projects would not have been possible without PDP's financial support. For about half of the respondents to the survey, the PDP funding represented less than 25% of their project's total budget. Nonetheless, for one-third of the respondents the PDP funds provided 25-50% of their project's total budget. While the PDP was not the sole source of funding, in several cases, project leaders report that it was the most important contributor.
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Ces groupes avaient des attentes relativement à un soutien financier stable du programme. Certains allèguent même que la création de certains projets n'aurait pas pu être possible sans le soutien financier du PDO.
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In general, the civil society groups that have received grants value the PDP at FAC. It is seen both as a mechanism for citizen engagement and a key source of funding. As stated in one survey, "this program offers more flexibility for the interaction between the citizens and the government than other programs because it addresses itself to all citizens and allows room for originality and initiative in the conception of projects. Contrary to CIDA programs, it is an encouraging not discouraging program, especially for small organizations."
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L'Association canadienne pour les Nations Unies (ACNU) qui organise les simulations de l'ONU à Ottawa, Enfants d'ici et d'ailleurs et Mer et Monde qui gère les stages à l'étranger, et l'Institut international d'études administratives de Montréal sont des exemples d'organisations qui ont reçu des fonds du PDO pendant deux et parfois trois ans.
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The sample of project documents also provides evidence of a shift towards a greater number of projects aimed at a domestic audience, but with activities overseas as evidenced by survey respondents indicating that 76% of projects took place outside Canada. Several of the domestic projects under review involved the participation of Canadians in activities either 1) taking place in Canada (Experience Canada, Conference des Amériques) and incorporating an international dimension such as cultural exchanges with foreign students, or 2) activities taking place abroad such as internships (Mer et Monde, EIA) that also entail a domestic dimension such as debriefing and outreach in Canada following the internships. The respondents to the survey indicate that 76% of projects take place outside of Canada.
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Dans ces circonstances, on menait des interviews axées sur le rendement passé dans le cadre de la présente évaluation du PDO, alors que des discussions étaient déjà amorcées sur de nouveaux moyens de planifier et de gérer la diplomatie ouverte.
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Third, the framework (items) for budget allocations changed over time, which makes some aggregation and comparison more difficult. For example, in the earlier working budgets (1999-2000), budget categories include Identity and Attachment, La Francophonie, Canada Initiatives Fund, Communications Activities, and Academic Relations. (Within these components, there is also some overlap. For example, "Canada in the World" and other communications activities form part of the Identity and Attachment category.) In the proposed allocations for 2004-2005, the budget allocations are organized according to transfer of PDP funds to partners. The analysis of the distribution of PDP funds across components is generally based on the budgets from the last two years.
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En vertu de la Loi sur les langues officielles (LLO), le gouvernement du Canada (par l'intermédiaire de ses ministères) doit s'engager à « renforcer la vitalité des communautés de langue officielle en situation minoritaire anglaise et française au Canada, à soutenir ces communautés et à contribuer à leur développement ». Le programme du PDO, en raison de son mandat et de sa structure souple, est devenu un des principaux mécanismes pour permettre à AEC de s'acquitter de ses obligations légales.
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This is also the case with NMUN participants from certain academic institutions who, as part of the project, have to share their experience at the UN simulation as well as a summary of their research on the country they represented. The University of Sherbrooke, for example, has incorporated the project into their academic program so that students can get academic credit for participating in the simulation. The University builds activities around this initiative (conferences about the country represented, etc.) to increase the educational value and raise awareness in the broader community. Students are also strongly encouraged to write articles in local newspapers.
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Cette caractéristique de la population, jumelée à un calendrier d'exécution serré et à des ressources limitées pour effectuer l'étude, a nui aux possibilités de recueillir des points de vue directement des jeunes ou d'autres participants des projets financés par le PDO.
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Field Visits: The evaluation team conducted field visits to Germany, Brazil, and France in order to increase our understanding of the implementation and management of these programs at the Posts. Each visit contemplated several days in the capital city as well as visits to other cities where program partners and other FAC stakeholders (consulates, OGDs, provinces) were based. A set of criteria for country field visits was taken into consideration: a) missions categorized as PDP Framework posts and receiving funds accordingly, b) a balance between smaller and larger missions with different capacities to implement the programs, and c) some regional diversity. The evaluation advisory committee made the final selection of countries.
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Ces groupes avaient des attentes relativement à un soutien financier stable du programme. Certains allèguent même que la création de certains projets n'aurait pas pu être possible sans le soutien financier du PDO.
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In general, the civil society groups that have received grants value the PDP at FAC. It is seen both as a mechanism for citizen engagement and a key source of funding. As stated in one survey, "this program offers more flexibility for the interaction between the citizens and the government than other programs because it addresses itself to all citizens and allows room for originality and initiative in the conception of projects. Contrary to CIDA programs, it is an encouraging not discouraging program, especially for small organizations."
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De plus, les partenaires du PDO ont fait savoir que des participants ont pris des mesures concrètes à la suite de leur participation à l'activité du projet. Certains ont choisi de s'engager davantage dans un travail de bénévolat, au développement des ONG, ou de participer à des réseaux de solidarité, et ainsi de suite.
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Every year approximately 350 Canadian students from different universities and colleges across the country, both Francophone and Anglophone, participate in the simulation of the National Model United Nations in New York. The simulation is presented as an opportunity to gain through knowledge of the inner workings of the UN as well as diplomatic and international issues. Funding the initiative is appropriate given the program objectives. A majority of student reports on the activity indicate that the simulation is an excellent opportunity to gain knowledge on international issues in a way that would not be possible through the university curriculum. Also, some students have mentioned that the NMUN is not only an opportunity to make contact with foreigners who have different cultural backgrounds but also meet with Canadians from regions that are not easily accessible. Several Francophone participants have mentioned that the simulation is a very good occasion to practice their second language in a challenging context. Additional anecdotes show how the participants in these simulations then take jobs in Canada's international policy community, including FAC.
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En 1998, AEC a créé le Programme de diplomatie ouverte (PDO) avec l'objectif d'utiliser la plate-forme internationale pour promouvoir l'unité canadienne. Le programme était conçu comme un projet pilote à court terme destiné à renforcer l'identité des Canadiens et leur attachement envers leur pays, à projeter l'image du Canada à l'étranger et à sensibiliser les Canadiens.
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The Canada in the World paper of 1995 proposed a foreign policy for Canada based on three pillars: the promotion of prosperity and employment; the protection of our security, within a stable global framework; and the projection of Canadian values and culture. For the last ten years, the Third Pillar, which emphasized the projection of Canadian culture, provided the rationale for several programs at Foreign Affairs Canada (FAC). Today, these programs form part of the Department's new business line of public diplomacy.
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(Il y avait aussi des recoupements au sein de ces composantes. Par exemple, « le Canada dans le monde » et d'autres activités de communication font aussi partie de la catégorie Identité et Attachement). Dans le budget proposé pour l'exercice 2004-2005, les affectations budgétaires sont organisées en fonction du transfert des fonds du PDO aux partenaires.
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Project Review: To support the evaluation, the team reviewed the documentation available for a sample of 47 projects out of the approximately 500 projects funded by the PDP in the Canada. The team used information from the PDP database to draw a sample that captured the greatest proportion of the overall investment made between 1998 and 2004. As a result, the sample comprised projects that received grants of more than $75,000. Phone interviews were conducted with the leaders of a sub-sample of 14 projects, which the Program staff considered representative of more recent programming.
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Même si dans le cadre du PDO on a récemment dressé une liste de tous les projets menés entre 1998 et maintenant, la classification en fonction du type de projet, du groupe cible, etc., a été effectuée de manière rétroactive et elle est souvent fondée sur une quantité minime de documents.
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Interviews: Semi-structured, face-to-face and phone interviews were conducted with stakeholders at FAC Headquarters (regional bureaus and other divisions). Phone interviews were conducted with Heads of Mission, PERPA Managers, or Cultural Attachés and their teams at 8 out of the 12 Framework Posts.(1) During the field visits, individual and small group interviews were conducted with Post staff, as well as cultural, political, and academic partners. More than a dozen interviews (14) were conducted with a sample of project stakeholders in Canada, representing a range of project "types" and investments (UN simulations, First Nations University, Rights and Democracy, among others). More than 100 individuals participated in the interviews.
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Le manque de transparence a été soulevé comme étant une faiblesse du programme à plusieurs reprises durant les interviews avec les intervenants de AEC et au cours des enquêtes et des interviews menés auprès de certains groupes de la société civile qui ont reçu des fonds du PDO.
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As several of the Department's documents suggest, the Program was conceived as a "pilot" initiative. One of the principal characteristics of pilot projects is that they are designed with rigorous monitoring and evaluation systems so that lessons can be drawn from the experience. Although an internal assessment was conducted in 2002 and published as Bilan et Perspectives, the Program did not have an explicit monitoring and evaluation component. This would have been critical for learning from the experiences of the Program and making a future decision about seeking permanent funding. The consequences of the "on-going pilot" include the fact that staff and management resources were required for each of the renewals / extensions requested. In addition, the Program had to manage the possibility of "non-renewal" with its external constituencies, namely the civil society groups in Canada.
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L'Association canadienne pour les Nations Unies (ACNU) qui organise les simulations de l'ONU à Ottawa, Enfants d'ici et d'ailleurs et Mer et Monde qui gère les stages à l'étranger, et l'Institut international d'études administratives de Montréal sont des exemples d'organisations qui ont reçu des fonds du PDO pendant deux et parfois trois ans.
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The sample of project documents also provides evidence of a shift towards a greater number of projects aimed at a domestic audience, but with activities overseas as evidenced by survey respondents indicating that 76% of projects took place outside Canada. Several of the domestic projects under review involved the participation of Canadians in activities either 1) taking place in Canada (Experience Canada, Conference des Amériques) and incorporating an international dimension such as cultural exchanges with foreign students, or 2) activities taking place abroad such as internships (Mer et Monde, EIA) that also entail a domestic dimension such as debriefing and outreach in Canada following the internships. The respondents to the survey indicate that 76% of projects take place outside of Canada.
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Le manque de transparence a été soulevé comme étant une faiblesse du programme à plusieurs reprises durant les interviews avec les intervenants de AEC et au cours des enquêtes et des interviews menés auprès de certains groupes de la société civile qui ont reçu des fonds du PDO.
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As several of the Department's documents suggest, the Program was conceived as a "pilot" initiative. One of the principal characteristics of pilot projects is that they are designed with rigorous monitoring and evaluation systems so that lessons can be drawn from the experience. Although an internal assessment was conducted in 2002 and published as Bilan et Perspectives, the Program did not have an explicit monitoring and evaluation component. This would have been critical for learning from the experiences of the Program and making a future decision about seeking permanent funding. The consequences of the "on-going pilot" include the fact that staff and management resources were required for each of the renewals / extensions requested. In addition, the Program had to manage the possibility of "non-renewal" with its external constituencies, namely the civil society groups in Canada.
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