Global sport: Identities, societies, civilizations. Cambridge, UK: Polity Press. Majumdar, Boria and Fan Hong Eds. Modern sport the global obsession. Oxford, UK: Routledge. All rights reserved. No part of this work may be reproduced or utilized in any form or by any means, electronic or mechanical, including photocopying, microfilm, and recording, or by any information storage and retrieval system, without permission in writing from the publisher.
Printed in the United States of America. Van Gosse and Richard Moser, eds. Regular communication between the evaluation team, SED and EAC members as necessary allowed any issues to be addressed in a timely manner.
For the case studies in particular, it is important to note that since only two alternative initiatives were examined, this limited the ability to extract findings across a wider range of contexts. However, even these two provide a valuable source of evidence to examine the management and delivery of large-scale, industry-focused Programs.
As the PPGTP was unique in its political context, its large materiality, its national scope and its targeted sector focus, the case study method did not seek to make any direct comparisons with other Programs. The case studies thus do not serve as a benchmarking exercise. Findings that discuss the PPGTP and the two alternative initiatives should be interpreted with a view to contrast the findings on the management and delivery of the PPGTP and to identify best practices and lessons learned that could be of value for other initiatives within NRCan.
Attribution: It is challenging to attribute Canada-wide environmental outcomes e. Survey : Given the small survey population and the diversity of survey questions, there was a possibility that targeted respondents were not able to respond accurately to some survey questions. In fact, questions asked ranged from administrative and financial information to project results and other outcome data.
Consequently, a few industry representatives signalled to the evaluation team that more than one individual within their organization answered the survey to account for their respective area of expertise. Nevertheless cross-analyses in the survey by project type and region were closely aligned to performance outcomes noted in other lines of evidence and thereby lending a measure of validation to survey results. In the case of the PPGTP evaluation, the Program had ended and a Report on Results had been already distributed when the evaluation data was being collected.
The potential existed that interviewees may have simply reflected the common Program storyline disseminated since Program closure or sought to focus on positive Program features and outcomes, requiring mitigation. Similarly, the perspectives of industry representatives interviewed and surveyed might have been influenced by the important size of funds provided to the industry and motivated by potential future funding opportunities. By using multiple lines of evidence, the qualitative information and views were balanced by quantitative data on Program outcomes, and the potential for biased conclusions was minimized.
Case studies: Given the evaluation scope, the limited number of management and delivery case studies i. In addition, direct consultations with beneficiaries and external stakeholders would have provided a more balanced perspective on the management and delivery models used by the initiatives i.
However, as noted above, within the scope of the project, the case studies confirmed PPGTP lessons learned and documented by the CFS, and identified additional practices of interest for the federal community. The PPGTP provided access to capital financing directed towards projects that would improve environmental performance of the industry and thereby strengthen economic viability at a time when the industry was severely challenged to remain globally competitive.
All lines of evidence confirmed that the years leading up to Program implementation were some of the most difficult in recent history for the Canadian pulp and paper industry.
Footnote 27 Tight credit markets meant that companies had limited access to the financing required for critical upgrades to aging equipment and to address expanding environmental concerns. These views were reflected by industry stakeholders. Secondary to these contextual factors, a US tax credit led to a market distortion in the North American pulp and paper industry. Figure 4 Perception of industry representatives on the extent to which the PPGTP addressed the needs of their organization.
Considering these factors, the PPGTP clearly addressed the most critical needs of the pulp and paper industry by providing rapid access to capital financing geared towards environmentally-focused investments. Environmental sustainability would therefore contribute to Canadian companies remaining globally competitive at a time when the industry was severely challenged.
Now that the Program has ended, the industry is looking to address future needs. Footnote 29 Interview and survey evidence supported this view, as stakeholders indicated that they aimed to fill this need for transformation with their own in-house resources e. Federal priorities over the evaluation period e.
Footnote 30 This commitment was reflected in the main goal of the PPGTP to support green capital investments in Canadian pulp and paper mills that contributed to the environmental, and hence commercial, sustainability of the industry.
This outcome states that Canada is a world-leader on environmental responsibility in the development and use of natural resources.
For issues concerning international trade, the GoC has a clear constitutional responsibility and therefore a legitimate role to protect Canadian market interests. Contribution Agreements were found to be an appropriate mechanism to hold industrial recipients accountable to environmental outcomes. Further, in the context of serious market distortions at a time of reduced access to credit globally, the Program was necessary to induce improved environmental performance. It is apparent that the federal government took legitimate and appropriate action both domestically and internationally to implement a targeted pulp and paper Program that promoted the sustainability of the forest sector.
At the time of Program design, industry stakeholders — represented by FPAC — were calling for federal action to support green transformation, ensure access to credit and to counter US subsidies.
Footnote 35 There was also ample documentary evidence Footnote 36 e. Since the federal government had jurisdiction over domestic and international market access issues according to the Department of Natural Resources Act, Footnote 37 it voiced its opposition to the tax credit publicly and in diplomatic circles. Interview and documentary evidence also indicated that the use of Contribution Agreements, which contractually obliged PPGTP recipients to environmental objectives, was superior to the US tax credit model, Footnote 40 and appropriate to the role of the GoC, especially when considering the terms of the Softwood Lumber Agreement.
Each CA limited Canadian companies to using the funds only for agreed purposes, whereas the US model imposed no conditions on funding. Finally, the interview, documentary and case study evidence confirmed that while several Programs for the forest industry were operationalized at the same time as the PPGTP, none specifically targeted pulp producers, had the same environmental goals, nor had the same materiality as the PPGTP.
Based on the sense of urgency around Program implementation, external interviewees suggested that the federal government should aim to play a more analytical, proactive role to continuously support a sustainable industry, rather that reacting later when access to capital had become an urgent issue.
Program environmental targets were met or exceeded for energy savings and for the production of renewable electricity, while other improvements e. Finally, the PPGTP appeared to have contributed to the longer-term environmental and commercial sustainability of the pulp and paper industry. Supporting evidence is presented under individual subheadings below.
Industry participation : Overall, 24 companies were allocated credits under the PPGTP based on the production of black liquor at 38 mills across Canada. Footnote 45 This represented the entire eligible pool of mills i. Footnote 47 The distribution of projects generally followed the distribution of chemical mills across Canada with the majority of projects located in British Columbia, Quebec, and New Brunswick.
Interview and survey data indicated that a majority of projects were already identified by companies before the PPGTP announcement; in other words, projects were in a preliminary or planning stage, but implementation could only be continued if financial resources were available. Footnote 48 This confirmed a recognized need for these projects by industry and subsequently expedited project selection and implementation once the Program was formally announced.
The provinces are listed left to right in order of total value of the projects; the amounts are illustrated, not stated, but the range is from zero dollars to four-hundred and fifty million dollars. Targeted outreach : The Program had a large and well-organized record of outreach activities spanning its entire lifecycle.
For example, there was clear documentary evidence of presentations made to trade and research associations to increase industry awareness e. Footnote 56 The Program held several workshops and webinars Footnote 57 in to guide proponents through the various stages of project application and implementation e.
Footnote 61 In August , the Program sent a series of letters to companies with an approved black liquor credit allocation but that had not yet forwarded a formal project proposal. Companies were encouraged to do so and reminded of the September 30 deadline.
The most significant results were realized for energy savings i. Footnote 64 In addition to these parameters, data were collected on several other environmental goals before, during, and after the project. Facilitators and barriers : Across all lines of evidence, several facilitators enabling achievement of Program outcomes were identified. The most important were as follows. The most significant challenge identified by all lines of evidence was the short timeframe for project application and implementation.
Interviewees indicated two main issues. Some external interviewees also suggested that a longer timeframe might have encouraged more transformative projects, even though they understood it was clear from the outset that no project extensions would be given.
This sometimes resulted in higher implementation risks or reduced project quality. Documentary evidence indicated that the PPGTP management was aware of these concerns from industry stakeholders and a rationale for a Program extension e. However, the Program was not extended. A secondary challenge to project implementation cited by interviewees, survey respondents and noted in the documentation was the length of the project review process including the environmental assessments.
The fact that projects had to cycle through EAs with which most proponents were inexperienced and that Contribution Agreements had to pass a series of reviews e. However, these processes were also generally viewed as necessary and not insurmountable or significantly hindering project success.
Mitigation measures such as the aforementioned workshops explaining the EA process helped reduce the burden for industry stakeholders. Longer-term outcomes: To estimate the impact of the PPGTP on the longer-term commercial sustainability of the pulp and paper sector, an analysis of factors contributing to overall return on investment ROI was conducted by the firm Science-Metrix.
The analysis found that the Program clearly made a sizeable contribution to the commercial sustainability of the participating companies as the dollars generated or saved by the mills constituted a net income after four years.
With respect to the environmental sustainability, the evaluation team conducted an exploratory factor analysis Footnote 69 plotting various project characteristics e. Two main results emerged. It should be stressed that there was a lack of strong association patterns in the dataset; thus these results must be interpreted as indicative.
Note: Considering the rather small sample sizes and the unequal representation of project types, the above statements should be considered with care. Furthermore, it should be noted that these findings rely on moderate to weak associations between variables. As such, they should be viewed as hypotheses rather than as certainties. Yes, two main positive unintended outcomes were observed: internal capacity building at CFS and relationship building between CFS and the pulp and paper industry stakeholders.
Two main positive unintended outcomes were observed across lines of evidence — capacity building and relationship-building. These are discussed in further detail below. Additionally, Program documents and survey evidence showed signs of some ancillary benefits such as job creation and increased competitiveness see Figure 6. Figure 6 Perception of industry representatives on indirect or unintended outcomes observed as a result of the PPGTP project s.
Figure 6: Perception of industry representatives on indirect or unintended outcomes observed as a result of the PPGTP project s. Responses in the ten categories are presented as a horizontal bar graph starting with the highest percentage to the lowest percentage. Supporting the research and commercialization of leading-edge technologies that will provide new applications and products for forestry companies, now that much-needed energy efficient equipment is in place to bring pulp and paper facilities back to a competitive level.
Quarterly, annual, and final project reporting requirements are outlined in the Guide. Footnote 74 Evidence provided from interviews and a review of the documents suggests that CFS thus adopted processes created for the PPGTP to a new program aimed at a similar stakeholder community.
The industrial stakeholders also experienced an increase in capacity: as external interviewees noted that the PPGTP process helped them cultivate knowledge on how to apply for a federal funding Program.
In some cases, this knowledge was in fact used to apply for IFIT funding. Relationship building: Most interviewees across all groups noted that over the course of the PPGTP, communication lines opened significantly.
It was widely cited that before the Program, direct interaction between individual industry operations and the CFS was quite limited. The Program efficiently managed its resources with the aid of several insightful management and operational procedures.
Additionally, the operation to total program costs ratio, staff size and service standards for PPGTP were comparable to similar initiatives.
However, external stakeholders suggested opportunities for administrative improvement regarding clearer reporting templates and flexibility around funding release. Finally, a lack of full-time resources or Program budget allocated after the Program closing date meant that resources had to be diverted from elsewhere in the Department to conduct closing activities. Evidence indicated that the Program efficiently managed its resources and activities.
For example, planned expenditures were in line with actual spending see Table 1Section 2. For example, it was estimated that the average time from initial PPGTP proposal submission to signing of the Contribution Agreement was 14 weeks, and within the service standards set by the Program weeks.
Footnote 80 This information was not provided for benchmarking purposes but rather to demonstrate that PPGTP activities were conducted with comparatively limited human resources and within a timeline that was within the range of other large-scale industry-focused initiatives. Nonetheless, when asked about opportunities for administrative improvements, about a third of respondents suggested that performance reporting templates were difficult to use and could be better aligned to common and therefore familiar industrial templates, such as those used for provincial reporting.
This was confirmed by the interview data as well. Management and operational procedures: The evaluation found that insightful management and operational procedures contributed to effective and economic use of the given resources. Several examples are worthy of mention. The use of Memoranda of Understanding or MOUs created efficiencies by expediting or facilitating otherwise long administrative procedures examples follow.
Negotiating multi-project Contribution Agreements CAs was an effective use of limited resources. The CA development process is resource intensive and there is a lot of overlap between CAs signed with a common proponent. This approach reduced the resources required by both the proponents and the Program to develop CAs.
As well, time to process amendments was reduced because already approved funding was able to move between projects with a single amendment, subsequently lessening the demands on proponents and NRCan, and thereby increasing the efficiency of the Program. On average, the time from proposal submission to CA signing was 13 weeks. Allocated funds would have been lost without the ability to retroactively account for project costs during the time between the project approval and the CA being formally signed.
A streamlined staffing strategy was required for engaging human resources within a finite timeline considering the Program had a fixed end date. Using secondments, consultants and contact workers not only contributed to a diverse skill set but also allowed for efficient use of short-term resources.
Footnote 88 Documents indicated that a total of 21 individuals were recruited over three years to deliver the Program. At Program close, all but three two indeterminate and one term were placed either within the CFS and other areas of the department, or had returned to the private sector.
Footnote 89 The resources remaining were assigned to Program close-out activities until September, Program close-out: Close out activities included financial audits of companies requiring outside consultants; and several technical audits, final report reviews, and project claims processing to be conducted by CFS staff.
Footnote 90 With respect to planning for the end of the Program, there was evidence regarding discussions of Program close-out, but no evidence indicating that a clear phase-out plan was agreed upon. Because the PPGTP terms and conditions officially expired March 31, , there were no dedicated funds documented in budgetary planning for although wrap-up was expected be concluded in the first half of that year, and staff resources were allocated to conduct those activities until September, Footnote 91 However, it is clear that funding needs to address any PPGTP program delivery requirements after March 31, have been covered through available CFS discretionary operating funds.
Yes, there was clear evidence that detailed Program performance metrics were collected since the inception of the Program and would continue to be collected after Program closure. However, there was no clear evidence detailing how information to be provided by the industry two-years post-project would be used to inform on the longer-term impact of the Program. The wrong words are highlighted.
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