Administrative Agreement on the Canada Community-Building Fund - Manitoba
Between: The Government of Canada, as represented by the Minister of Housing, Infrastructure and Communities (“Canada”),
And: The Government of Manitoba, as represented by the Minister of Consumer Protection and Government Services (“Manitoba”).
individually referred to as a “Party” and collectively referred to as the “Parties”.
1) Purpose
This Administrative Agreement sets out the roles and responsibilities of Canada and Manitoba for the administration of the Canada Community-Building Fund (CCBF).
2) Definitions
Unless defined elsewhere in this Administrative Agreement, capitalized words used throughout this Administrative Agreement are defined in Annex A (Definitions).
3) Context
With this Administrative Agreement, Canada and Manitoba wish to help communities build and revitalize their public infrastructure that supports national objectives of productivity and economic growth, a clean environment, and strong cities and communities, building on:
- the success of the Previous Agreements;
- Section 161 of the Keeping Canada's Economy and Jobs Growing Act, S.C. 2011, c. 24, under which, starting in 2014-2015, the Government of Canada makes up to $2 billion per year available for the purpose of municipal, regional and First Nations infrastructure;
- Economic Action Plan 2013, through which the Government of Canada announced a renewed Gas Tax Fund which included the indexation of the Gas Tax Fund funding at two percent per year, with increases to be applied in $100 million increments (confirmed through section 161 of the Keeping Canada's Economy and Jobs Growing Act, S.C. 2011, c. 24 as amended by section 233 of the Economic Action Plan 2013 Act, No. 1, S.C. 2013, c. 33);
- Section 199 of Budget Implementation Act, 2021, No. 1 (Budget 2021) in which the Gas Tax Fund was renamed the Canada Community-Building Fund;
- Budget 2022 (A Plan to Grow Our Economy and Make Life More Affordable) in which the Government of Canada ties access to infrastructure funding to actions by provinces, territories, and municipalities to increase housing supply where it makes sense to do so; and,
- As the two municipalities in Manitoba with a population of 30,000 or more, representing 60% of Manitoba's total population, The City of Winnipeg and the City of Brandon have Housing Accelerator Agreements with Canada. Pursuant to those agreements, The City of Winnipeg and the City of Brandon have committed to policy actions like: prompt amendments to zoning by-laws and local area plans to permit increased housing units, land assembly and enhancement initiatives to facilitate Affordable Housing and market housing development and incentive programs for Affordable Housing, housing downtown and housing along transit corridors. The full suite of initiatives are contained in the Housing Accelerator agreements.
4) Principles
Canada and Manitoba acknowledge that this Administrative Agreement is based on the following principles:
- Principle 1: Respect for Jurisdiction. The CCBF is designed to leverage the strengths of each level of government and is based on the principle that each level of government has its own areas of jurisdiction and is accountable to its population for its delivery of the CCBF program. Canada respects the jurisdiction of provinces and territories over municipal institutions.
- Principle 2: Flexibility of Approach. In recognition of the diversity of Canadian provinces, territories, regions and communities, the CCBF recognizes the need for a flexible approach to program delivery. Wherever possible, the CCBF aims to employ regionally adapted delivery mechanisms, including the leveraging of existing delivery mechanisms and reporting structures.
Principle 3: Equitable Distribution. The CCBF recognizes the importance of ensuring that the inter-provincial/territorial allocation is equitable while supporting meaningful infrastructure investments within the least populated jurisdictions.
Principle 4: Equity. The CCBF is designed to afford participating municipalities with flexibility in developing projects and setting priorities, offering a wide range of possible project categories. Manitoba and its Ultimate Recipients are expected to consider Gender Based Analysis Plus (GBA+) lenses when undertaking projects. - Principle 5: Complementarity. The CCBF provides stable, predictable, long-term funding for communities. The CCBF is not to replace municipal operating and maintenance funding or municipal capital funds. The CCBF complements municipal funding for the purpose of creating or revitalizing municipal infrastructure. The CCBF also complements but does not replace other national infrastructure funding programs.
- Principle 6: Transparency. The CCBF is administered via an open and transparent governance process that includes regular evaluations and audits. Canada and Manitoba are committed to promoting and supporting accountability through regular, effective, and accurate program reporting to the Canadian public.
- Principle 7: Commitment to Improve Housing Supply and Affordability. Canada and Manitoba are committed to working collaboratively to address the national priority of increasing the supply of housing as well as the availability of Affordable Housing. Where appropriate, Manitoba will work with Ultimate Recipients to leverage the CCBF to support housing investments in Manitoba.
5) Annexes and schedules
The following annexes and schedules are attached to and form part of this Administrative Agreement:
6) Canada Community-Building Fund additional or unspent funds
6.1 Any CCBF funding that may be transferred by Canada to Manitoba will be administered by Manitoba in accordance with this Administrative Agreement, including with the Terms and Conditions set out in Annex B.
6.2 Any Unspent Funds, and any interest earned thereon, will be subject to the Terms and Conditions of this Administrative Agreement and will no longer be governed by the terms and conditions of any Previous Agreements.
7) Oversight committee
7.1 An Oversight Committee will be established by Canada and Manitoba to ensure the effective monitoring of this Administrative Agreement . The Oversight Committee will monitor the overall implementation of this Administrative Agreement, and will serve as the principal forum to address and resolve issues arising from the implementation of this Administrative Agreement. The activities of the Oversight Committee including frequency of meetings and program compliance will be laid out in a Terms of Reference document jointly developed and agreed upon by Canada and Manitoba.
7.2 The Oversight Committee will be co-chaired by two (2) members, one of whom is to be appointed by Canada, and designated as Federal Co-Chair, and one of whom is to be appointed by Manitoba, and designated as Provincial Co-Chair. Replacement members from either Canada or Manitoba may, from time to time, be appointed by Canada or Manitoba. Canada and Manitoba agree to keep each other informed in writing upon new appointments.
7.3 The Co-Chairs, working together, will examine any issue that may arise, and, in good faith, will attempt to resolve that issue to the mutual satisfaction of Canada and Manitoba.
7.4 Any sub-committees established by Canada and Manitoba will report to the Oversight Committee through their respective Co-Chairs.
8) Dispute resolution
8.1 Canada and Manitoba will work together to resolve any issues which may arise in relation to this Administrative Agreement.
8.2 If, after a reasonable effort has been made, an issue cannot be resolved by the Co-Chairs, they will provide information about the issue to the representatives of Canada and Manitoba identified at section 11, including the steps they have taken to attempt to resolve the issue. An escalating dispute resolution approach begins with an Oversight Committee discussion followed by senior official-level discussions (at the Assistant Deputy Minister level or another appropriate level) and ultimately Ministerial-level discussions for resolution, within a reasonable timeframe, to the satisfaction of Canada and Manitoba.
8.3 Where the Parties cannot agree on a resolution, the Parties may explore any alternative dispute resolution mechanism available to them to resolve the issue.
8.3 In the event of any unresolved issue, it is understood that the final decision with respect to such issue will rest solely with Canada. At Canada's sole discretion, Canada may delay or withhold fund transfers to Manitoba in circumstances where Canada believes that Manitoba is not acting in good faith to resolve a dispute.
9) Audits and evaluation
9.1 Canada reserves the right to undertake any audit in relation to this Administrative Agreement at its expense. The timing and scope of such audits will be determined in collaboration with Manitoba via the Oversight Committee and will be carried out by external independent auditors. In the event that Canada does undertake an audit, it will provide Manitoba reasonable notice.
9.2 Canada may, at its cost, complete a periodic evaluation of the relevance and performance (i.e. effectiveness, efficiency and economy) of the CCBF. Manitoba will provide Canada with information on program performance and may be asked to participate in the evaluation process. The results of the evaluation will be made publicly available.
9.3 Manitoba will ensure proper and accurate financial accounts and records are kept that are related to this Administrative Agreement and the use of CCBF funding, and any interest earned thereon for at least six (6) years after the termination of this Administrative Agreement and will provide Canada and its designated representatives with reasonable and timely access to documentation for the purposes of audit and ensuring compliance with this Administrative Agreement.
9.4 Manitoba will include provisions in the Funding Agreements to require that the Ultimate Recipient keeps proper and accurate financial accounts and records, including but not limited to its Contracts, invoices, statements, receipts, and vouchers, in respect of an Eligible Project for at least six (6) years after the completion of the project and will provide Canada and its designated representatives with reasonable and timely access to documentation for the purposes of audit and ensuring compliance with this Administrative Agreement.
10) Duration, termination, review and amendment
10.1 This Administrative Agreement will come into effect as of April 1, 2024 and will be in effect until March 31, 2034 unless terminated earlier or unless Canada and Manitoba agree to renew it.
10.2 This Administrative Agreement will be reviewed by Canada and Manitoba by March 31, 2027 and may be amended to incorporate changes, if any, agreed to by Canada and Manitoba.
10.3 This Administrative Agreement may be amended at any time in writing as agreed to by Canada and Manitoba.
10.4 This Administrative Agreement may be terminated at any time and for any reason by either Canada or Manitoba with two (2) years written notice. In the event where this Administrative Agreement is so terminated, any CCBF funding, Unspent Funds (if any), and any interest earned thereon (if any) held by Manitoba or Ultimate Recipients, that have not been expended on Eligible Projects as of the date of termination will nevertheless continue to be subject to this Administrative Agreement until such time as may be determined by Canada and Manitoba.
11) Correspondence
Any correspondence under this Administrative Agreement may be delivered in person, sent by electronic mail, or sent by mail addressed to:
Canada:
Assistant Deputy Minister, Communities and Infrastructure Programs
Housing, Infrastructure and Communities Canada
1100 – 180 Kent Street
Ottawa, Ontario K1P 0B6
Email: jeff.waring@infc.gc.ca
or to such other address or addressed to such other person as Canada may, from time to time, designate in writing to Manitoba; and
Manitoba:
Assistant Deputy Minister, Capital Project Planning and Delivery
Consumer Protection and Government Services
200-400 Ellice Ave
Winnipeg, Manitoba R3B 3M3
Email: steven.spry@gov.mb.ca
or such other address or addressed to such other person as Manitoba may, from time to time, designate in writing to Canada.
General
12.1 The Parties' rights and obligations, which by their nature, extend beyond the termination of this Agreement, will survive any termination of this Agreement.
12.2 This Agreement may be signed in counterpart, and the signed copies will, when attached, constitute an original agreement. Any facsimile or electronic transmitted copies hereof bearing a manual, facsimile or other electronic signature shall, for all purposes, be deemed originals and will be binding on the Parties hereto. For greater clarity, the electronic signature shall be reputed to constitute, much like wet ink, the best evidence available of consent of the Parties to the terms of this Agreement. For the purposes of this agreement, “electronic signature” means a signature that consists of one or more letters, characters, numbers or other symbols in digital form incorporated in, attached to or associated with an electronic version of this Agreement.
12.3 If for any reason a provision of this Agreement that is not a fundamental term of this Agreement between the Parties is found to be or becomes invalid or unenforceable, in whole or in part, and if both Parties agree, it will be deemed to be severable and will be deleted from this Agreement, but all the other terms and conditions of this Agreement will continue to be valid and enforceable.
12.4 Manitoba will not transfer or assign its rights or obligations under this Agreement without the prior written consent of Canada. Any attempt by Manitoba to assign any of the rights, duties or obligations of this Agreement without Canada's express written consent is void. Canada acknowledges that Manitoba entering into agreements with Ultimate Recipient shall not be considered a transfer or assignment of Manitoba's rights or obligations for the purpose of this section.
12.5 A Party may waive any of its rights under this Agreement only in writing. Any tolerance or indulgence demonstrated by the Party will not constitute a waiver.
12.6 This Agreement is governed by the laws applicable in the Province of Manitoba.
12.7 In the event that Canada proposes any material revision to any template or guidance document provided under this Agreement, Canada shall provide not less than six (6) months prior notice in writing to Manitoba and the proposed material revisions shall be reviewed and discussed by the Oversight Committee.
Signatures
Government of Canada
Original signed by:
The Honourable Sean Fraser
Minister of Housing, Infrastructure and Communities
Government of Manitoba
Original signed by:
The Honourable Lisa Naylor
Minister of Consumer Protection and Government Services
Annex A – Definitions
“Affordable Housing” means:
- a dwelling unit where the cost of shelter, including rent and utilities, is a maximum of 30% of before-tax household income. The household income is defined as 80% or less of the Area Median Household Income (AHMI) for the metropolitan area or rural region of the Ultimate Recipient;
- a dwelling unit that charges rent at or below the median market rate and follows Manitoba's Program Income Limits for lower-moderate income households.
Affordable Housing also includes “Social Housing” which means subsidized rental housing where the rent paid is based on a maximum of 30% of total gross household income.
“Administrative Agreement” means this Administrative Agreement on the Canada Community-Building Fund in Manitoba.
“Asset Management” is a principle/practice that includes planning processes, approaches, plans, or related documents that support an integrated lifecycle approach to the effective stewardship of infrastructure assets in order to maximize benefits and effectively manage risk.
“Canada Community-Building Fund” (CCBF) means the program established under section 161 of the Keeping Canada's Economy and Jobs Growing Act, S.C. 2011, c. 24 as amended by section 233 of the Economic Action Plan 2013 Act, No. 1, S.C. 2013, c. 33, as the Gas Tax Fund and renamed the Canada Community-Building Fund insection 199 of Budget Implementation Act, 2021, No. 1.
“Contract” means an agreement between an Ultimate Recipient and a Third Party whereby the latter agrees to supply a product or service to an Eligible Project in return for financial consideration.
“Core Housing Need” means a household living in an unsuitable, inadequate or unaffordable dwelling and cannot afford alternative housing in their community.
“Eligible Expenditures” means those expenditures described as eligible in Schedule C (Eligible and Ineligible Expenditures).
“Eligible Projects” means projects as described in Schedule B (Eligible Project Categories).
“Funding Agreement” means an agreement between Manitoba and an Ultimate Recipient setting out the terms and conditions of the CCBF funding to be provided to the Ultimate Recipient, containing, at a minimum, the elements in Schedule A (Ultimate Recipient Requirements).
“Gender Based Analysis Plus” (GBA Plus or GBA+) is an analytical process that provides a rigorous method for the assessment of systemic inequalities, as well as a means to assess how diverse groups of women, men, and gender diverse people may experience policies, programs and initiatives. The “plus” in GBA Plus acknowledges that GBA Plus is not just about differences between biological (sexes) and socio-cultural (genders). GBA Plus considers many other identity factors such as race, ethnicity, religion, age, and mental or physical disability, and how the interaction between these factors influences the way individuals might experience government policies and initiatives.
“Housing Needs Assessment” means a report informed by data and research describing the current and future housing needs of a municipality or community according to guidance provided by Canada.
“Housing Report” means the duly completed housing report to be prepared and delivered by Manitoba to Canada annually as described in Schedule G (Housing Report).
“Ineligible Expenditures” means those expenditures described as ineligible in Schedule C (Eligible and Ineligible Expenditures).
“Indigenous Recipient” means:
- an Indigenous governing body, including but not limited to:
- a band council within the meaning of section 2 of the Indian Act;
- a First Nation, Inuit or Métis government or authority established pursuant to a self-government agreement or a comprehensive land claim agreement between His Majesty the King in Right of Canada and an Indigenous people of Canada, that has been approved, given effect and declared valid by federal legislation; and
- a First Nation, Inuit or Métis government that is established by or under legislation whether federal or provincial that incorporates a governance structure; and
- an Indigenous development corporation; and
- a not-for-profit organization whose central mandate is to improve Indigenous outcomes;
- incorporated communities and unincorporated communities under The Northern Affairs Act (Manitoba) that identify as Indigenous.
“Local Government” means a municipal or regional government established by or under provincial statute or a public sector body that is wholly-owned by a municipal or regional government.
“Oversight Committee” means the committee established to monitor the overall implementation of this Administrative Agreement as outlined in section 7 (Oversight Committee) of this Administrative Agreement.
“Previous Agreements” means any agreements between Canada and Manitoba for the purposes of administering the Gas Tax Fund or Canada Community-Building Fund (CCBF).
“Statement of Priorities” means an annual letter from Canada to Manitoba outlining expected housing actions by Manitoba required for any CCBF funding to flow for a given year.
“Third Party” means any person or legal entity, other than Canada, Manitoba or an Ultimate Recipient, who participates in the implementation of an Eligible Project by means of a Contract.
“Ultimate Recipient” means:
- a Local Government or its agent (including its wholly owned corporation);
- a non-municipal entity, including Indigenous Recipients, non-governmental and not-for-profit organizations, on the condition that (a) the Local Government(s) has (have) indicated support for the project through a formal resolution of its (their) council(s) or board(s).
Annex B – Terms and conditions
1. Allocation formula
1.1 Any Unspent Funds held by Manitoba and any CCBF funding that may be received by Manitoba from Canada, as well as any interest earned thereon, will be distributed in accordance with the following formula:
- 90 percent will be allocated to Ultimate Recipients on a per capita basis.
- 9.5 percent will be allocated to the five transit service communities of Winnipeg, Brandon, Selkirk, Thompson, and Flin Flon on a per-capita basis.
- 0.5 percent will be allocated to Manitoba's administrative expenses subject to Section 4.
2. Delivery mechanism
2.1 Manitoba will execute a Funding Agreement with each Ultimate Recipient prior to transferring any CCBF funding to the Ultimate Recipient.
2.2 Manitoba will include provisions in the Funding Agreements to make the transfer of CCBF funding to Ultimate Recipients conditional upon the following:
- Completion of all reporting requirements for the previous year(s) by Ultimate Recipients in accordance with the Funding Agreement; and
- Compliance by Ultimate Recipients with the terms and conditions of the Funding Agreement.
2.3 All funds provided to an Ultimate Recipient, and any interest earned thereon, not expended prior to December 31 in the year that funding is received, may be retained and used by the Ultimate Recipient for Eligible Projects and associated Eligible Expenditures in accordance with the Funding Agreement.
3. Use and recording of funds
3.1 Manitoba will ensure that any CCBF funding that may be transferred to it by Canada, Unspent Funds, and any interest earned thereon, are used solely in accordance with the terms and conditions set out in this Administrative Agreement.
3.2 Manitoba will include provisions in the Funding Agreements to require that any CCBF funding that may be transferred to it by Canada, Unspent Funds, and any interest earned thereon is used by Ultimate Recipients in accordance with this Administrative Agreement and specifically Schedule A (Ultimate Recipient Requirements).
3.3 Pending payment to Ultimate Recipients in accordance with the terms and conditions of this Administrative Agreement, Manitoba will record into a separate and distinct account any CCBF funding it may receive from Canada and any interest earned thereon.
3.4 Any CCBF funding that may be transferred by Canada to Manitoba will be treated as federal funds with respect to other federal infrastructure programs. Ultimate Recipients may apply CCBF funding to projects receiving other federal funding, provided that the stacking limits associated with that other federal funding are respected.4. Administration expenses
Upon the review and acceptance by Canada of a detailed business case, which must be submitted within one (1) year of the date of last signature of the Administrative Agreement, Manitoba may apply a portion of any CCBF funding it may receive from Canada for administration expenses related to program delivery and implementation of this Administrative Agreement, including expenditures associated with communication activities such as public project announcements and signage.
5. Eligible project categories
Eligible Project categories under the CCBF include: highways; local roads and bridges; short-sea shipping; short-line rail; regional or local airports; broadband connectivity; public transit; drinking water; wastewater; solid waste; community energy systems; brownfield redevelopment; sports, cultural, recreational or tourism infrastructure; fire halls; resilience; and capacity building among Ultimate Recipients. Schedule B (Eligible Project Categories) provides further details regarding Eligible Project categories.
6. Eligible expenditures
Eligible Expenditures are those associated with: the acquiring, planning, designing, constructing, or renovating of a tangible capital asset, or completing work to ensure that the asset is able to reach the end of its intended life; the strengthening of the ability of Local Governments to improve local and regional planning and Asset Management as well as joint federal communication activities and federal signage. Schedule C (Eligible and Ineligible Expenditures) sets out specific requirements for eligible and ineligible expenditures.
7. Reporting
Manitoba will meet the reporting requirements set out in Schedule D (Program Reporting) and Schedule G (Housing Report).
8. Communications
This Administrative Agreement formalizes clear requirements to support federal communications objectives. Schedule E (Communications Protocol) sets out specific communications requirements, including:
- providing project information on an annual basis for communications purposes;
- including the federal government in local project communications; and
- installing federal project signs, unless otherwise approved by Canada.
9. Asset management
Manitoba will include provisions in the Funding Agreements to require that Ultimate Recipients continue to develop and implement an Asset Management Plan culture and methodology throughout the term of this Administrative Agreement, with the ultimate goal of having Asset Management plans in place for all Ultimate Recipients. Schedule F (Asset Management) provides more details on the approach agreed upon between Canada and Manitoba.
Schedule A – Ultimate Recipient requirements
Manitoba shall include provisions in the Funding Agreements to require that Ultimate Recipients:
- Record into a separate and distinct account any CCBF funding it may receive from Manitoba and any interest earned thereon.
- Apply CCBF funding solely to Eligible Expenditures associated with Eligible Projects.
- Be responsible for the completion of each Eligible Project in accordance with Schedule B (Eligible Project Categories) and Schedule C (Eligible and Ineligible Expenditures).
- Comply with all Ultimate Recipient requirements outlined in Schedule D (Program Reporting) and Schedule E (Communications Protocol) and Schedule G (Housing Report).
- Continue to develop Asset Management plans for the assets under their control and make use of these plans to inform community infrastructure decision-making.
- Invest, in a distinct account, CCBF funding it receives from Manitoba in advance of it paying Eligible Expenditures.
- With respect to Contracts, award and manage all Contracts in accordance with their relevant policies and procedures and, if applicable, in accordance with the Canadian Free Trade Agreement and applicable international trade agreements, and all other applicable laws.
- Invest into Eligible Projects, any revenue that is generated from the sale, lease, encumbrance or other disposal of an asset resulting from an Eligible Project where such disposal takes place within five (5) years of the date of completion of the Eligible Project.
- Allow Canada and Manitoba reasonable and timely access to all of its documentation, records and accounts and those of their respective agents or Third Parties related to the use of CCBF funding and Unspent Funds, and any interest earned thereon, and all other relevant information and documentation requested by Canada or Manitoba or their respective designated representatives for the purposes of audit, evaluation, and ensuring compliance with the Funding Agreement.
- Keep proper and accurate accounts and records in respect of all Eligible Projects for at least six (6) years after completion of the Eligible Project and, upon reasonable notice, make them available to Canada. Keep proper and accurate accounts and records relevant to the CCBF program for a period of at least six (6) years after the
- Ensure their actions do not establish or be deemed to establish a partnership, joint venture, principal-agent relationship or employer-employee relationship in any way or for any purpose whatsoever between Canada and the Ultimate Recipient, or between Canada and a Third Party.
- Ensure that they do not represent themselves, including in any agreement with a Third Party, as a partner, employee or agent of Canada.
- Ensure that no current or former public servant or public office holder to whom any post-employment, ethics and conflict of interest legislation, guidelines, codes or policies of Canada applies will derive direct benefit from CCBF funding, Unspent Funds, and interest earned thereon, unless the provision or receipt of such benefits is in compliance with such legislation, guidelines, policies or codes.
- Ensure that they will not, at any time, hold the Government of Canada, its officers, servants, employees or agents responsible for any claims or losses of any kind that they, Third Parties or any other person or entity may suffer in relation to any matter related to CCBF funding or an Eligible Project and that they will, at all times, compensate the Government of Canada, its officers, servants, employees and agents for any claims or losses of any kind that any of them may suffer in relation to any matter related to CCBF funding or an Eligible Project.
- Agree that any CCBF funding received will be treated as federal funds for the purpose of other federal infrastructure programs.
- Complete, publish on its website and send the link to Manitoba by March 31, 2025, for The City of Winnipeg and the City of Brandon, a Housing Needs Assessment prepared in accordance with guidance provided by Canada. Ultimate Recipients that have completed Housing Needs Assessments after April 1, 2019 may submit their existing Housing Needs Assessment if it complies with the requirements for Housing Needs Assessments provided by Canada.
- Agree that the above requirements which, by their nature, should extend beyond the expiration or termination of this Administrative Agreement, will extend beyond such expiration or termination.
Schedule B – Eligible project categories
Eligible Projects include investments in municipal or regional, publicly or privately owned tangible capital assets in Manitoba primarily for public use or benefit for its construction, renewal or material enhancement in each of the following categories (as defined in the current program terms and conditions):
- Local roads and bridges – roads, bridges, tunnels and active transportation infrastructure
- Highways – highway infrastructure
- Short-sea shipping – infrastructure related to the movement of cargo and passengers around the coast and on inland waterways, without directly crossing an ocean
- Short-line rail – railway related infrastructure for carriage of passengers or freight
- Regional and local airports – airport-related infrastructure (excludes the National Airport System)
- Broadband connectivity – infrastructure that provides internet access to residents, businesses, or institutions or a combination thereof in Canadian communities
- Public transit – infrastructure which supports a shared passenger transport system which is available for public use
- Drinking water – infrastructure that supports drinking water conservation, collection, treatment and distribution systems
- Wastewater – infrastructure that supports wastewater and storm water collection, treatment and management systems
- Solid waste – infrastructure that supports solid waste management systems including the collection, diversion and disposal of recyclables, compostable materials and garbage
- Community energy systems – infrastructure that generates or increases the efficient usage of energy
- Brownfield Redevelopment - remediation or decontamination and redevelopment of a brownfield site within municipal boundaries, where the redevelopment includes one or both of:
- the construction of public infrastructure as identified in the context of any other category under the Canada Community-Building Fund;
- the construction of municipal use public parks and Affordable Housing.
- Sport Infrastructure – amateur sport infrastructure (excludes facilities, including arenas, which would be used as the home of professional sports teams)
- Recreational Infrastructure – recreational facilities or networks
- Cultural Infrastructure – infrastructure that supports arts, humanities, and heritage
- Tourism Infrastructure – infrastructure that attract travelers for recreation, leisure, business or other purposes
- Resilience – built and natural infrastructure assets and systems that protect and strengthen the resilience of communities and withstand and sustain service in the face of climate change, natural disasters and extreme weather events.
- Capacity building - includes investments related to strengthening the ability of municipalities to develop long-term planning practices including: capital investment plans, integrated community sustainability plans, integrated regional plans, Housing Needs Assessments, and/or Asset Management plans, or a combination thereof, related to strengthening the ability of recipients to develop long-term planning practices.
- Fire Halls – fire halls and fire station infrastructure.
Note: Investments in health Infrastructure (hospitals, convalescent and long-term senior centres) are not eligible.
Schedule C – Eligible and ineligible expenditures
1. Eligible expenditures
1.1 Eligible Expenditures of Ultimate Recipients will be limited to the following:
- the expenditures associated with acquiring, planning, designing, constructing or renovating a tangible capital asset and any related debt financing charges specifically identified with that asset;
the expenditures associated with completing maintenance on tangible capital assets so as to ensure that these assets achieve the full length of the planned asset life; - for capacity building category only, the expenditures related to strengthening the ability of Local Governments to improve local and regional planning including capital investment plans, integrated community sustainability plans, integrated regional plans, Housing Needs Assessments, and/or Asset Management plans or a combination thereof. The expenditures could include developing and implementing:
- studies, strategies, or systems related to Asset Management, which may include software acquisition and implementation;
- studies, strategies, or systems related to housing or land use, including Housing Needs Assessments; and
- training directly related to Asset Management planning.
- the expenditures directly associated with joint federal communication activities and with federal project signage.
1.2 Employee and Equipment Costs: The incremental costs of the Ultimate Recipient's employees or leasing of equipment may be included as Eligible Expenditures under the following conditions:
- the Ultimate Recipient is able to demonstrate that it is not economically feasible to tender a Contract;
- the employee or equipment is engaged directly in respect of the work that would have been the subject of the Contract; and,
- the arrangement is approved in advance and in writing by Manitoba.
1.3 Administration expenses of Manitoba related to program delivery and implementation of this Administrative Agreement, in accordance with Section 4 (Administration Expenses) of Annex B (Terms and Conditions).
2. Ineligible expenditures
The following are deemed Ineligible Expenditures:
- project expenditures incurred before April 1, 2005;
- project expenditures incurred before April 1, 2014 for the following investment categories:
- highways;
- regional and local airports;
- short-line rail;
- short-sea shipping;
- disaster mitigation;
- broadband connectivity;
- brownfield redevelopment;
- cultural infrastructure;
- tourism infrastructure;
- sport infrastructure; and
- recreational infrastructure.
- project expenditures incurred before April 1, 2021 for the following investment category:
- fire halls
- the cost of leasing of equipment by the Ultimate Recipient, any overhead costs, including salaries and other employment benefits of any employees of the Ultimate Recipient, its direct or indirect operating or administrative costs of Ultimate Recipients, and more specifically its costs related to planning, engineering, architecture, supervision, management and other activities normally carried out by its staff, except in accordance with Eligible Expenditures above;
- taxes for which the Ultimate Recipient is eligible for a tax rebate and all other costs eligible for rebates;
- purchase of land or any interest therein, and related costs;
- legal fees;
- routine repair or preventative maintenance costs not designed to ensure that an asset reaches its planned life; and
- costs associated with healthcare infrastructure or assets.
Schedule D – Program reporting
Program reporting requirements under the CCBF consist of a letter of intent, a project list, an audited financial report and an outcomes report, all of which will be submitted to Canada for review and acceptance. The reporting year may be designated as either April 1 to March 31 or January 1 to December 31. In addition to overall program reporting, specific housing reporting obligations are described in Schedule G (Housing Report).
1. Statement of priorities and letter of intent
At the outset of the reporting year, Canada will provide to Manitoba a Statement of Priorities, by April of each year. Initial priorities will reflect the negotiated 2024-25 Statement of Priorities and additional priorities will only be considered and negotiated every three years, unless otherwise agreed to by the Oversight Committee. Manitoba will provide to Canada by May 31 of each year a letter of intent indicating how CCBF funding received from Canada will address priorities and challenges in the province and actions Manitoba will take to improve housing outcomes in Manitoba. A template form of letter to be used by Canada for the Statement of Priorities will be jointly developed and agreed upon by Canada and Manitoba and may be amended any time thereafter by mutual agreement of the Parties.
2. Project list
Manitoba will maintain and provide to Canada a project list by November 30 of each year, containing the following elements: unique project identifier, Ultimate Recipient, project title, project description, investment category, project start date, project end date, geo-location, total project cost, CCBF funding spent, output indicator, and housing indicator (if applicable). A template will be provided by Canada.
3. Audited financial report
By November 30 of each year, Manitoba will provide to Canada a financial report in an electronic format deemed acceptable by Canada consisting of the following:
3.1 Financial report table
The financial report table will be submitted in accordance with the following template.
| Annual Report Financial Table | Annual |
Cumulative |
|---|---|---|
20xx - 20xx |
2024 - 20xx |
|
Manitoba in aggregate |
||
Opening BalanceFootnote 1 |
$xxx.xx |
|
Received from Canada |
$xxx.xx |
$xxx.xx |
Interest Earned |
$xxx.xx |
$xxx.xx |
Administrative Expenses |
($xxx.xx) |
($xxx.xx) |
Transferred to Ultimate Recipients |
($xxx.xx) |
($xxx.xx) |
Closing Balance of Unspent Funds |
$xxx.xx |
|
Ultimate Recipients in aggregate |
||
Opening BalanceFootnote 2 |
$xxx.xx |
|
Received from Manitoba |
$xxx.xx |
$xxx.xx |
Interest Earned |
$xxx.xx |
$xxx.xx |
Spent on Eligible Projects |
($xxx.xx) |
($xxx.xx) |
Closing Balance of Unspent Funds |
$xxx.xx |
|
3.2 Independent audit or audit based attestation
Manitoba will provide an independent audit opinion, or an attestation based on an independent audit and signed by a senior official designated in writing by Manitoba, as to:
- the accuracy of the information submitted in the Financial Report Table; and
- that CCBF funding and Unspent Funds, and any interest earned thereon, were expended for the purposes intended.
4. Housing report
By November 30 of each year, Manitoba will provide to Canada a report on housing as outlined in Schedule G (Housing Report).
5. Outcomes report
By November 30 of each year, Manitoba will provide to Canada an outcomes report that will outline the following program benefits:
- beneficial impacts on communities of completed Eligible Projects, supported by specific outcomes examples in communities;
- the impact of CCBF as a predictable source of funding;
- progress made on improving Local Government planning and Asset Management, including development or update of Housing Needs Assessments; and,
- a description of how CCBF funding has alleviated housing pressures tied to infrastructure gaps and contributed to housing supply and affordability outcomes (further details on this requirement may be found in Schedule G – Housing Report).
The outcomes report will present a narrative on how each program benefit is being met. A template and guidance document will be provided by Canada.
Schedule E – Communications protocol
In support of transparency and accountability of the CCBF, the following Communications Protocol will apply to all communications activities undertaken regarding any CCBF funding and will apply to Manitoba and Ultimate Recipients. Communicating to Canadians on the use of CCBF funding is clearly linked with accountability to Canadians
1. Purpose
1.1 The Communications Protocol applies to all communications activities related to any CCBF funding, including annual allocations and the identification and communication of projects under this Administrative Agreement. Communications activities may include, but are not limited to: public or media events, news releases, reports, digital and social media products, project signs, digital signs, publications, success stories and vignettes, photo compilations, videos, advertising campaigns, awareness campaigns, editorials, awards programs, and multi-media products.
1.2 Through collaboration, Canada and Manitoba agree to work to ensure consistency in the communications activities meant for the public. This will include the importance of managing the delivery of communications activities based on the principle of transparent and open discussion.
1.3 Canada and Manitoba commit to respecting this Communications Protocol in their work with each other and any Ultimate Recipient.
2. Joint communications approach
2.1 Canada and Manitoba will work in collaboration to develop a joint communications approach to ensure visibility for the program, the provision of project information and planned communications activities throughout the year. The joint communications approach will include a joint communications plan developed collaboratively by Canada and Manitoba and reviewed jointly on an annual basis.
This joint communications approach will have the objective of ensuring that proactive communications activities are undertaken each fiscal year to communicate the annual allocations and key projects, as identified in the communications approach, located in both large and small communities by using a wide range of communications tools to ensure local visibility.
2.2 Canada and Manitoba will work together on the initial annual joint communications approach, which will be finalized and approved by Canada's Co-Chair and Manitoba's Co-Chair.
2.3 Canada and Manitoba agree that achievements under the joint communications approaches will be reported to the Oversight Committee once a year.
2.4 Manitoba agrees to assess, bilaterally with Canada, the effectiveness of communications approaches on an annual basis and, as required, update and modify the joint communications approach, as required. Any modifications will be brought to Canada's Co-Chair and Manitoba's Co-Chair, as appropriate for approval.
2.5 If informed of a communications opportunity (ex. milestone event, news release) by an Ultimate Recipient, Canada and Manitoba agree to share information promptly and coordinate participation in alignment with section 4.3, 4.5 and 5.2 of this Communications Protocol.
2.6 Canada and Manitoba agree to ensure the timely sharing of information, products (ex. news releases, media advisories), and approvals in support of communications delivery.
3. Inform Canada on allocation and intended use of CCBF funding for communications planning purposes
3.1 Manitoba agrees to provide to Canada information on confirmed Eligible Projects and Eligible Projects in progress on an annual basis. Canada and Manitoba will each agree, in the joint communications approach, on the date this information will be provided.
In this Agreement the information will include, at a minimum:
- Ultimate Recipient name; Eligible Project name; Eligible Project category, a brief but meaningful Eligible Project description; expected project outcomes including housing (if applicable); federal contribution; anticipated start date; anticipated end date; and a status indicator: not started, underway, completed.
Canada will link to the Recipient's CCBF websites where this information will be accessible to the general public.
3.2 Manitoba agrees that the above information will be delivered to Canada in an electronic format deemed acceptable by Canada.
3.3 Canada and Manitoba each agree that their joint communications approach will ensure the most up-to-date Eligible Project information is available to Canada and Manitoba to support media events and announcements (see 4.2 for full definition) for Eligible Projects.
4. Announcements and media events for eligible projects
4.1 At Canada's request, Canada and Manitoba agree to coordinate an announcement regarding annual allocations of CCBF funding.
4.2 Media events and announcements include, but are not limited to: news conferences, public announcements, and the issuing of news releases to communicate funding of projects or key milestones (e.g. ground breaking ceremonies, completions).
4.3 Key milestones events and announcements (such as ground breaking ceremonies and grand openings) may also be marked by media events and announcements, news releases, or through other communications activities. Ultimate Recipients, Canada and Manitoba will have equal visibility through quotes and will follow the Table of Precedence for Canada.
4.4 Media events and announcements related to Eligible Projects will not occur without the prior knowledge and agreement of Manitoba and, as appropriate, Canada and the Ultimate Recipient.
4.5 The requester of a media event or an announcement will provide at least 15 working days' notice to other parties of their intention to undertake such an event or announcement. An event will take place at a mutually agreed date and location. Manitoba, and, as appropriate, Canada and the Ultimate Recipient will have the opportunity to participate in such events through a designated representative. If communications is proposed through the issuing of a news release (with no supporting event), Canada requires at least 15 working days' notice and 5 working days with the draft news release to secure approvals and confirm the federal representative's quote.
4.6 For media events, each participant will choose its own designated representative. Manitoba will include provisions in the Funding Agreements to require that Ultimate Recipients be responsible for coordinating all onsite logistics.
4.7 No party shall unreasonably delay the announcement of opportunities identified in annual communications plans that have been pre-approved in advance.
4.8 The conduct of all joint media events, announcements for project funding, and supporting communications materials (ex. News releases, media advisories) will follow the Table of Precedence for Canada.
4.9 All joint communications material related to media events and announcements must be approved by Canada and recognize the funding of the parties.
4.10 All joint communications material for funding announcements must reflect Canada's Policy on Official Languages and the Policy on Communications and Federal Identity.
4.11 Canada, Manitoba and Ultimate Recipients agree to ensure equal visibility in all communications activities.
5. Program communications
5.1 Canada, Manitoba and Ultimate Recipients may include messaging in their own communications products and activities with regard to the CCBF.
5.2 The party undertaking these activities will recognize the funding of all contributors.
5.3 The conduct of all joint events and delivery of supporting communications materials (ex. News releases) that support program communications (ex. Such as intake launches) will follow the Table of Precedence for Canada.
5.4 Canada and Manitoba agree that they will not unreasonably restrict the other parties from using, for their own purposes, public communications products related to the CCBF prepared by Canada, Manitoba or Ultimate Recipients, or, if web-based, from linking to it.
5.5 Notwithstanding Section 4 of Schedule E (Communications Protocol), Canada retains the right to meet its obligations to communicate to Canadians about the CCBF and the use of funding.
6. Operational communications
6.1 Manitoba will include provisions in the Funding Agreements to require that Ultimate Recipients be solely responsible for operational communications with respect to Eligible Projects, including but not limited to, calls for tender, construction, and public safety notices. Operational communications as described above are not subject to the federal official language policy.
6.2 Canada does not need to be informed on operational communications. However, such products should include, where appropriate, the following statement, “This project is funded in part by the Government of Canada” or “This project is funded by the Government of Canada”, as applicable.
6.3 Manitoba and the Ultimate Recipient will share information as available with Canada should significant emerging media or stakeholder issues relating to an Eligible Project arise. Canada, Manitoba will advise Ultimate Recipients, when appropriate, about media inquiries received concerning an Eligible Project.
7. Communicating success stories
7.1 Manitoba agrees to facilitate communications between Canada and Ultimate Recipients for the purposes of collaborating on communications activities and products including, but not limited to Eligible Project success stories, including the positive impacts on housing, Eligible Project vignettes, and Eligible Project start-to-finish features.
8. Advertising campaigns
8.1 Canada, Manitoba or an Ultimate Recipient may, at their own cost, organize an advertising or public information campaign related to the CCBF or Eligible Projects. However, such a campaign must respect the provisions of this Administrative Agreement. In the event of such a campaign, the sponsoring party or Ultimate Recipient agrees to inform the other parties of its intention, and to inform them no less than 21 working days prior to the campaign launch.
9. Digital Communications, websites and webpages
9.1 Where Manitoba produces social media content to provide visibility to CCBF programs or projects, they shall @mention the relevant Housing, Infrastructure and Communities Canada official social media account.
9.2 Where a website or webpage is created to promote or communicate progress on an Eligible Project or Projects, it must recognize federal funding through the use of a digital sign or through the use of the Canada wordmark and the following wording, “This project is funded in part by the Government of Canada” or “This project is funded by the Government of Canada”, as applicable. The Canada wordmark or digital sign must link to Canada's website. The guidelines for how this recognition is to appear and language requirements are published on Canada's website: Infrastructure project signage.
10. Project signage
10.1 Manitoba will include provisions in the Funding Agreements to require that Ultimate Recipients install a federal sign to recognize federal funding and provincial funding, if applicable, at Eligible Project site(s). Federal sign design, content, and installation guidelines will be provided by Canada and included in the joint communications approach.
10.2 Manitoba will include provisions in the Funding Agreements to require that where Ultimate Recipients decide to install a sign, a permanent plaque or other suitable marker recognizing their contribution with respect to an Eligible Project, it must recognize the federal contribution and the provincial contribution, if applicable, to the Eligible Project(s) and be approved by Canada and Manitoba, if applicable.
10.3 Manitoba will include provisions in the Funding Agreements to require that Ultimate Recipients be responsible for the production and installation of Eligible Project signage, or as otherwise agreed upon.
10.4 The joint communications plan develop in section 2.1 of this Communications Protocol will address Manitoba's approach to signage installation.
11. Communication costs
11.1 The eligibility of costs related to communication activities that provide public information on this Administrative Agreement will be subject to Schedule C (Eligible and Ineligible Expenditures).
Schedule F – Asset management
Canada and Manitoba agree that the measures contained in the Previous Agreements to create and foster a culture of Asset Management planning were effective in increasing the capacity of the diverse range of Ultimate Recipients in Manitoba to enhance their community's sustainability.
Asset Management is a key underpinning of community sustainability because it can inform a range of investment, servicing, and community planning decisions, which in turn support maximizing Ultimate Recipient infrastructure investments.
Asset Management can include:
- an inventory of assets;
- the condition of infrastructure;
- level of service objectives or standards;
- risk assessments;
- cost analyses;
- an inventory of future repair, maintenance, recapitalization, or capital work to maintain the asset's ability to meet its function or purpose;
- community priorities for future works; and
- financial planning.
Schedule G – Housing Report
1. Housing Needs Assessments
1.1 By March 31, 2025, The City of Winnipeg and the City of Brandon (as the Ultimate Recipients with a 2021 Census population of 30,000 or more) are required to complete and make available to Canada a Housing Needs Assessment (HNA) prepared according to guidance provided by Canada. If The City of Winnipeg and the City of Brandon have already completed HNAs after April 1, 2019, they may submit existing HNAs, if they meet the requirement outlined in the HNA guidance. The Capacity Building Category under CCBF can be used to support the preparation or updating of HNAs.
1.2 HNAs should be used by Manitoba in preparing the Housing Reports to identify housing pressures related to infrastructure and capacity building pressures, to prioritize projects according to need and to measure housing outcomes.
1.3 The City of Winnipeg and the City of Brandon must make HNAs publicly available on their respective websites and must provide links to the page where the HNAs are posted to Canada.
1.4 A separate HNA Guidance Document will be provided by Canada.
2. Project-level Housing Report
By November 30 of each year, Manitoba will provide Canada a Housing Report in an electronic format deemed acceptable by Canada consisting of the following:
2.1 Methodology
Manitoba will provide a description of the process used to collect data and information presented in the Housing Report. The methodology section should include the following information:
- Scope of the report and related rationale.
- Reporting process used to collect data from The City of Winnipeg and the City of Brandon.
- Identification of baseline data and other data sets used for the purposes of the report and which data has been excluded.
- How performance indicators were assessed in the province (e.g., how was the number of housing units enabled with CCBF infrastructure investments determined and what measure of affordability was used)?
Criteria for project-level reporting
The City of Winnipeg and the City of Brandon must be included in Table 1 (below) and are required to complete an HNA by March 31, 2025, and to provide project-level data on housing requirements to Manitoba, for inclusion in the Housing Report that will be submitted by Manitoba to Canada.
Ultimate Recipients that do not meet these criteria may additionally be included at the discretion of Manitoba, but are not required by Canada to include project-level data in the annual Housing Report.
Manitoba will be expected to consolidate project-level information from The City of Winnipeg and the City of Brandon to report to Canada annually.
The following table (Table 1) is to be used as a template to identify Ultimate Recipients required to provide project-level reporting and to identify housing pressures related to infrastructure needs. Housing pressures should be consistent with needs and pressures identified by The City of Winnipeg and the City of Brandon in their HNAs. Manitoba will provide an aggregate of this table to Canada in their annual Housing Report.
| Ultimate Recipient | Project Level Reporting Criteria |
Key Infrastructure-Related Housing Pressures |
|---|---|---|
Name of the municipality/Community |
Identify which criteria as noted above applies |
Identify key housing gaps and needs that are related to infrastructure |
2.2 Project-level housing outcomes
For The City of Winnipeg and the City of Brandon , Manitoba is required to collect project-level data on housing outcomes and to complete the table below (Table 2) on an annual basis.
Table 2 is intended to link the housing pressures identified in Table 1 and in HNAs with outcomes supported by CCBF projects that can help The City of Winnipeg and the City of Brandon to address their specific housing pressures. More specifically, Table 2 is to be completed by The City of Winnipeg and the City of Brandon . It will include a subset of the projects from the above project list and this subset represents projects with housing outcomes.
| Project ID | Ultimate Recipient |
Project Title |
Project Description |
Investment Category |
Housing Outcomes and Indicators |
|---|---|---|---|---|---|
As provided in program reporting (Schedule D) |
As provided in Table 1 |
As provided in program reporting (Schedule D) |
Provide a brief description of the project |
Indicate which CCBF category the project falls under |
Identify key housing outcomes and indicators (section 2.2.1) that will be used to measure success |
2.2.1 Housing outcome indicators
For each of the projects listed in Table 2, Manitoba shall report on the following core indicators, as relevant to each investment category.
- # of new housing units enabled; and
- # of Affordable Housing units enabled or preserved.
3. Housing narrative in the CCBF Outcomes Report
By November 30 of each year, Manitoba shall provide Canada with a narrative report on program-level housing outcomes. This narrative report will be aligned with and incorporated into the annual CCBF Outcomes Report.
The housing narrative should outline how CCBF was used to address housing pressures within Manitoba's jurisdiction, over the reporting period, and steps taken between Manitoba and The City of Winnipeg and the City of Brandon to unlock supply and improve affordability for Canadians. It should also link to identified needs in The City of Winnipeg and the City of Brandon respective Housing Needs Assessments once they have been developed.
The housing narrative should describe how CCBF funding has alleviated housing pressures tied to infrastructure gaps and contributed to housing supply and affordability outcomes. More specifically, Manitoba must include in their Outcomes Report a narrative assessment of measures they have taken to improve housing outcomes through CCBF funded infrastructure projects. This should include:
- How The City of Winnipeg and the City of Brandon have prioritized specific infrastructure investments that are unlocking an increased supply of housing (e.g., upgrading pipes to support densification rather than sprawl, or remediating a brownfield site that could then be used for Affordable Housing);
- Steps taken to preserve and/or increase supply and mix of Affordable Housing (e.g., minimizing displacement, making land available for non-market housing, minimum affordability requirements for private developers); and
- How The City of Winnipeg and the City of Brandon are utilizing CCBF funding to build local capacity for sound land use and development planning (e.g., through the capacity building category).
This housing narrative must also include responses to the following questions:
- How many or what percentage of projects from the total CCBF project list contribute to an increase in housing supply and how many new housing units were enabled (as outlined in 1.3)?
- What percentage of total new housing units enabled or preserved are Affordable Housing?
- How many communities have published a new Housing Needs Assessment or an updated one within the last 5 years?
For further information and details on the housing narrative portion of the Outcomes Report please refer to the Housing Report Template and Guidance document.
4. Assessment of the Housing Reports and compliance
4.1 Assessment of Housing Reports
Both the project-level housing report and the housing narrative on program-level housing outcomes will be assessed against the Government of Canada's Evaluation Framework as well as HNAs.
4.2 Compliance
Failure to comply with the terms of this Schedule will require compliance actions to address the compliance issue. Compliance actions may include notification of the failure to comply, discussions to bring Manitoba or the Ultimate Recipient, where applicable, into compliance as well as withholding funding intended, where applicable, until the failure to comply is addressed, as a last resort.
Repeated or sustained failures to comply with the terms of this Schedule could result in downward adjustment of allocations for Manitoba or the non-compliant Ultimate Recipient, where applicable, for future Housing, Infrastructure and Communities Canada programs.
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