Quarterly Financial Report for the quarter ended September 30, 2016
This Quarterly Financial Report (QFR) should be read in conjunction with the Main Estimates, Supplementary Estimates and the Quarterly Financial Report for the quarter ended June 30, 2016. It has been prepared by management as required under section 65.1 of the Financial Administration Act and in the form and manner prescribed by Treasury Board Accounting Standard 1.3. It has not been subject to an external audit or review.
1.1 Raison d'être
Public Works and Government Services Canada (PWGSC) plays an important role in the daily operations of the Government of Canada. It supports federal departments and agencies in the achievement of their mandated objectives as their central purchasing agent, real property manager, linguistic authority, treasurer, accountant, pay and pension administrator, and common service provider. The Department's vision is to excel in government operations, and its strategic outcome and mission is to deliver high-quality, central programs and services that ensure sound stewardship on behalf of Canadians and meet the program needs of federal institutions.
Further details on PWGSC's authority, mandate and programs may be found in the 2016–17 Report on Plans and Priorities.
1.2 Basis of presentation
This quarterly report has been prepared by management using an expenditure basis of accounting. The accompanying Table 1—Statement of authorities (unaudited) includes PWGSC's spending authorities granted by Parliament and those used by the Department consistent with the Main Estimates and Supplementary Estimates (A) for the 2016–17 fiscal year. This quarterly report has been prepared using a special purpose financial reporting framework designed to meet financial information needs with respect to the use of spending authorities.
The authority of Parliament is required before monies can be spent by the government. Approvals are given in the form of annually approved limits through appropriation acts or through legislation in the form of statutory spending authority for specific purposes.
PWGSC uses the accrual method of accounting to prepare and present its annual Consolidated Departmental Financial Statements (DFS) that are published in the Departmental Performance Report. However, the spending authorities voted by Parliament remain on an expenditure basis. The main difference between the QFR and the DFS is the timing of when revenues and expenses are recognized. The QFR reports revenues only when the money is received and expenses only when the money is paid out. The DFS reports revenues when they are earned and expenses when they are incurred. In the latter case, revenues are recorded even if cash has not been received and expenses are incurred even if cash has not yet been paid out.
1.3 Public Works and Government Services Canada's financial structure
PWGSC provides services to many government departments, agencies and Crown corporations through a variety of funding mechanisms. This includes budgetary authorities that are comprised of voted and statutory authorities, as well as non-budgetary authorities. The voted budgetary authorities include operating expenditures, vote-netted revenues and capital expenditures, while the statutory authorities are mainly comprised of revolving funds, employee benefit plans and payments in lieu of taxes (PILT). The non-budgetary authorities consist primarily of the Seized Property Working Capital Account (see description below).
PWGSC's complex financial structure may result in significant fluctuations in authorities on a quarterly basis which are due to timing differences that are resolved by year end. These are summarized as follows:
- for the most part, PWGSC delivers its services on a cost-recovery basis, generating revenues via revolving fund ("the Funds") organizations and programs within the operating vote. These organizations and programs are mainly designed to provide services to other government organizations, and are expected to recover the cost of their operations through revenues. However, the costs incurred by the Funds are usually disbursed prior to invoicing the client, which generally occurs upon completion of a project or after services are rendered, and thus revenues may be collected in a subsequent quarter
- PWGSC manages a variety of real property projects that progress through phases from planning to funding and from procurement to construction. Historical trends have shown that expenditures against these projects are not incurred evenly throughout the year; thus, quarter-to-quarter fluctuations are normal. Such projects include the Alaska highway in British Columbia and the Yukon, and the new Champlain bridge in Montréal, Quebec
- PILT issued by PWGSC are funded through a statutory vote and paid on behalf of other participating federal departments. Payments are subsequently recovered from the participating departments and are recorded as statutory grants in the Public Accounts of Canada. Timing fluctuations can occur between the payments and the recoveries
- PWGSC also manages seized property for the Government of Canada pursuant to the Seized Property Management Act. The financial management of this activity is undertaken through the non-budgetary Seized Property Working Capital Account. Charged to this account are expenditures and advances made to maintain and manage any seized or restrained property. PWGSC recovers its costs from this account once the property owner loses the right to the property and it is disposed of
2. Highlights of fiscal quarter and fiscal year to date results
2.1 Significant changes to authorities
When compared to the same quarter of the previous year, PWGSC's authorities available for use increased by $229.6 million ($3,142.1 million in 2015–16; $3,371.7 million in 2016–17) as reflected in the Table 1—Statement of authorities (unaudited). Major reasons for the increase are outlined below.
Groupings can change between quarters due to materiality of initiatives.
Amounts may not balance with other public documents due to rounding.
|Initiative||Operating||Capital||Budgetary statutory authorities||Total variances|
|Real property program integrity||255.1||22.7||0||277.8|
|Employee benefit plans adjustment||0||0||2.3||2.3|
|Whole-of-Government web buy||(5.0)||0||0||(5.0)|
|Thirty meter telescope||(10.0)||0||0||(10.0)|
|Federal contaminated sites action plan – phase II||(23.5)||0||0||(23.5)|
|Space efficiencies generated by other federal organizations||(24.7)||0||0||(24.7)|
|Deficit reduction action plan||(47.9)||0||0||(47.9)|
|Carry forward of unused capital funds from previous fiscal year||0||(64.8)||0||(64.8)|
|Cumulative variance in authorities available for use||176.7||50.5||2.4||229.6|
The net increase of $229.6 million over the second quarter of 2015–16 can be explained by:
- Real property program integrity—increase of $277.8 million
- Over the years, the real property program budget has been redirected to cover operating costs (that is rent and utilities), rather than necessary maintenance and repairs. The real property program integrity initiative addresses this situation, but also implements large scale recapitalization projects, such as engineering assets (that is Alexandra bridge and Timiskaming dam).
- Federal infrastructure—increase of $87.8 million
- As announced in Budget 2015, PWGSC has undertaken the construction and repair of new and existing federal infrastructure across Canada, including various federal buildings and assets. In addition, Budget 2016 invests more than $120 billion in infrastructure over 10 years. This new infrastructure plan, implemented in two phases, starts in 2016–17 and incorporates measures for PWGSC to revitalize federal public infrastructure across Canada.
- Grande-Allée armoury—increase of $33.7 million
- After the 2008 fire which caused heavy damage, the Government of Canada announced the reconstruction of the Grande-Allée armoury in Québec City, as it is a significant federal Crown heritage building. The reconstruction is now well underway and it is expected that occupation of this new multi-purpose building will begin in the summer of 2017.
- Employee benefit plans adjustment—increase of $2.3 million
- This adjustment reflects the increase of the Employee benefit plan (EBP) rate from 16.8% in 2015–16 to 17.2% in 2016–17, as directed by the Treasury Board Secretariat (TBS).
- Whole-of-Government web buy—decrease of $5.0 million
- As part of the Whole-of-Government web buy initiative, PWGSC coordinated web publishing on major issues and events (for example health and safety recalls, major government announcements) on behalf of federal organizations. This three-year pilot project ended in 2015–16.
- Thirty meter telescope—decrease of $10.0 million
- The thirty meter telescope (TMT) is an international project that will build one of the world's largest and most advanced astronomical observatories in Hawaii. As part of Budget 2015, the Government of Canada committed to provide $243.5M over 10 years to support Canada's participation in the construction and commissioning of the TMT. Last fiscal year, PWGSC's funding for the contribution to the TMT was adjusted in the fourth quarter, in comparison to the beginning of the fiscal year in 2016–17.
- Federal contaminated sites action plan—phase II—decrease of $23.5 million
- Led by the federal contaminated sites action plan secretariat, residing at Environment Canada, the purpose of the program is to lower environmental and human health risks, benefit local communities, and reduce the burden of future environmental liability for all Canadians. Phase II activities are winding down in 2016–17, while preparations are underway to seek funding for Phase III of the program.
- Space efficiencies generated by other federal organizations—decrease of $24.7 million
- PWGSC exceptionally transferred funding to other federal organizations as a result of a reduction in their accommodation requirements. Five locations, owned or leased by PWGSC, were vacated by Communications Security Establishment Canada. In addition, the Canada Revenue Agency returned 42,369 m² of office space.
- Deficit reduction action plan—decrease of $47.9 million
- In accordance with Budget 2012, PWGSC achieved additional savings in 2016–17 through the space standards modernization and space recapture initiatives. PWGSC continues to work with departments to optimize surplus space in a manner that ensures best value to Canadians, while also introducing a more modern workplace (Workplace 2.0).
- Carry forward of unused capital funds from previous fiscal year—decrease of $64.8 million
- Treasury Board Secretariat allows departments to transfer a portion of unused funds from one fiscal year to the following year. In 2016–17, a capital carry forward of $91.1 million was received in the second quarter. During the same quarter last year, PWGSC had received $155.9 million in carry forward. Amounts carried forward are primarily for projects that are continuing into 2016–17.
- Other—increase of $3.9 million
- This net increase of $3.9 million is the result of funding variances in miscellaneous projects and activities.
2.2 Significant changes in year-to-date net expenditures
As presented in the Table 2—Departmental budgetary expenditures by standard object (unaudited), the total net budgetary expenditures have increased by $279.7 million when compared to the same quarter of the previous year ($1,364.3 million in 2015–16; $1,644.0 million in 2016–17).
Overall, total spending at the end of the second quarter represents 49% of annual planned expenditures for 2016–17, compared to the second quarter of 2015–16 at 43%.
|Standard object||2016–17 Year to date used at quarter end||2015–16 Year to date used at quarter end||Year over year variance|
|Repair and maintenance||432.0||335.5||96.5|
|Acquisition of land, buildings and works||129.8||97.1||32.7|
|Acquisition of machinery and equipment||31.4||17.0||14.4|
|Professional and special services||538.0||530.1||7.9|
|Revenues netted against expenditures||(1,173.1)||(1,231.0)||57.9|
|Total net budgetary expenditures||1,644.0||1,364.3||279.7|
The net increase of $279.7 million is mainly attributable to:
- Repair and maintenance—increase of $96.5 million
- Increase in construction and repair of new and existing federal infrastructure across Canada, including various buildings and assets, on behalf of other government departments
- Progress of remediation work at the Esquimalt graving dock in Esquimalt, British Columbia, as part of the federal contaminated sites action plan
- Increase in repair and maintenance of assets, such as the Alaska highway, as part of the federal infrastructure program
- Transfer payments—increase of $81.2 million
- Timing differences between when a payment in lieu of taxes (PILT) is issued and when the cost is recovered from other government departments
- Acquisition of land, buildings and works—increase of $32.7 million
- Progress of work for the reconstruction of the Grande-Allée armoury in Québec City, Quebec
- Exercise of purchase option for a building in the national capital area
- Acquisition of machinery and equipment—increase of $14.4 million
- Progress of various projects at the Esquimalt graving dock in Esquimalt, British Columbia
- Personnel—increase of $8.9 million
- Increase in service level for My GCHR and pension services under the Canadian Forces Superannuation Act (CFSA)
- Increase related to measures undertaken to address pay issues, such as a call center in Toronto and temporary pay units in Gatineau, Winnipeg, Shawinigan and Montréal
- Professional and special services—increase of $7.9 million
- Timing difference between when the payment for professional and special services is made and when professional and special services costs are recovered from other government departments to whom the service is being provided
- Increase in professional and special services due to work for various projects, such as the government-wide usage of the shared travel system and projects that are part of the federal contaminated sites action plan
- Rentals—decrease of $11.0 million
- Timing difference in the billing cycle between 2015–16 and 2016–17
- Other expenditures—decrease of $8.8 million
- The net decrease in other expenditure categories not listed above is the result of decreased activity in various projects
- Revenues netted against expenditures—decrease of $57.9 million
- Decrease attributable to timing difference in the billing cycle between 2015–16 and 2016–17
- Offset by increased business volume associated with various projects on behalf of other government departments
3. Risks and uncertainties
PWGSC integrates risk management principles into business planning, decision-making and organizational processes to minimize negative impacts and maximize opportunities across our diverse range of services and operations. Risk management in PWGSC is carried out in accordance with the TBS framework for the management of risk, the management accountability framework and the PWGSC policy on integrated risk management.
The following key risks were identified as having a potential financial impact:
- PWGSC's dependency on clients' expenditures: More than half of PWGSC's financial and human resources are directly tied to cost-recovered services and activities. In a context of reduced expenditures on the part of client departments and agencies, there is a risk that PWGSC could face unpredictable and reduced business volumes and associated reduced resources. In response to this risk, PWGSC will adjust to reduced operational demands while maintaining the quality of its services. This includes sustaining rigorous management of revenues, expenditures, forecasting and commitment monitoring and working closely with other departments through the client service network to identify changing requirements and their impacts on the Department
- PWGSC's ability to undertake and deliver complex, transformational and interdepartmental major projects and procurements: There are inherent risks in PWGSC undertaking and delivering complex, transformational and interdepartmental major projects and procurements on time, within the approved budget and according to scope which could ultimately have an impact on the Department's service strategy. In order to address these risks, PWGSC has implemented disciplined investment and project management processes; established service agreements and service standards with clear identification of responsibilities; ensured sound contract management; engaged early with client departments and other stakeholders; and developed the departmental integrated investment plan (IIP)
- As previously outlined in the first quarter, the Department is in the process of implementing a new pay system as part of the pay transformation initiative. The implementation was a major undertaking which experienced challenges. The Department is leading a significant effort to address the issues. It is seeing progress as it continues to work closely with all departments and agencies
4. Significant changes to operations, personnel and programs
There are no significant changes to operations, personnel and programs in the Department that have not been disclosed previously.
Marie Lemay, P.Eng., ing.
Public Works and Government Services Canada
November 25, 2016
Marty Muldoon, CPA, CMA, MBA
Chief Financial Officer
Public Works and Government Services Canada
November 25, 2016
Table 1—Statement of authorities (unaudited)
|Fiscal year ending March 31, 2017||Fiscal year ending March 31, 2016|
|Total available for use for the year ending March 31, 2017
Footnote 1,Footnote 2
|Used during the quarter ended September 30, 2016||Year to date used at quarter end||Total available for use for the year ending March 31, 2016
Footnote 1,Footnote 2
|Used during the quarter ended September 30, 2015||Year to date used at quarter end|
|Gross operating expenditures||3,301,848||821,382||1,516,558||3,090,691||804,489||1,486,220|
|Net operating expenditures||1,912,236||439,316||950,163||1,735,484||429,065||860,236|
|Vote 5 – Capital expenditures||1,335,216||307,511||401,060||1,284,738||192,117||284,395|
|Revolving fund authorities|
|Real property services revolving fund|
|Translation bureau revolving fund|
|Optional services revolving fund|
|Total of all revolving funds|
|Total revolving fund net expenditures||2,281||(70,699)||68,775||4,772||17,410||80,717|
|Other budgetary statutory authorities|
|Contributions to employee benefit plans||121,309||30,252||60,503||116,553||29,138||58,276|
|Minister of PWGSC salary and motor car allowance||84||35||42||82||20||41|
|Refunds of amounts credited to revenues in previous years||0||0||0||3||3||3|
|Spending of proceeds from the disposal of surplus Crown assets||594||16||16||516||0||0|
|Payment in lieu of taxes to municipalities and other taxing authoritiesFootnote 2||0||(204,532)||163,409||0||(173,266)||80,648|
|Total other budgetary statutory authorities||121,987||(174,229)||223,970||117,154||(144,105)||138,968|
|Total budgetary authorities||3,371,720||501,899||1,643,968||3,142,148||494,487||1,364,316|
|Seized Property Working Capital Account||0||(6,715)||(13,772)||0||(2,152)||(9,573)|
|Total authorities||3,371,720Footnote 3||495,184||1,630,196||3,142,148Footnote 3||492,335||1,354,743|
Table 2—Departmental budgetary expenditures by standard object (unaudited)
|Fiscal year ending March 31, 2017||Fiscal year ending March 31, 2016|
|Planned expenditures for the year ending March 31, 2017
Footnote 1,Footnote 4
|Expended during the quarter ended September 30, 2016||Year to date used at quarter end||Planned expenditures for the year ending March 31, 2016
Footnote 1,Footnote 4
|Expended during the quarter ended September 30, 2015||Year to date used at quarter end|
|Professional and special services||1,903,309||375,261||538,039||1,716,418||409,574||530,109|
|Repair and maintenance||1,206,585||268,346||432,030||1,043,578||(3,249)||335,546|
|Other subsidies and payments||723,345||176,729||255,714||579,267||(3,361)||267,216|
|Acquisition of land, buildings and works||503,834||93,329||129,755||478,898||561||97,090|
|Utilities, materials and supplies||290,750||48,016||72,822||280,211||43,756||67,003|
|Transportation and communications||72,732||17,111||31,577||81,856||549,006||28,623|
|Acquisition of machinery and equipment||83,703||17,311||31,374||70,557||10,308||17,045|
|Transfer paymentsFootnote 4||0||(204,532)||163,409||0||(241,686)||82,223|
|Total gross budgetary expenditures||7,096,428||1,312,572||2,817,052||6,451,007||1,318,200||2,595,302|
|Less revenues netted against expenditures|
|Revolving funds revenues||(2,335,096)||(428,607)||(606,689)||(1,953,652)||(448,289)||(605,002)|
|Total revenues netted against expenditures||(3,724,708)||(810,673)||(1,173,084)||(3,308,859)||(823,713)||(1,230,986)|
|Total net budgetary expenditures||3,371,720||501,899||1,643,968Footnote 5||3,142,148||494,487||1,364,316Footnote 5|
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