WORKING PAPER #1: Backgrounder: Canadian and New Brunswick Sport Systems - November 30, 2021
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November 2021
WORKING PAPER #1:
Backgrounder: Canadian
and New Brunswick Sport
Systems
November 30, 2021
NE McKay & AssociatesThe Sport Envisioning Project October 2021
TABLE OF CONTENTS
1 The Envisioning Sport Project ............................................................................................................... 3
1.1 Project Purpose / Approach .......................................................................................................... 4
2 The Canadian Context ........................................................................................................................... 5
2.1 Canadian Sport Policy ................................................................................................................... 5
2.2 True Sport ..................................................................................................................................... 7
2.3 Sport Dispute Resolution Centre of Canada ................................................................................. 8
2.4 Sport For Life ................................................................................................................................. 8
2.5 Quality Sport for Communities and Club ...................................................................................... 9
3 Canadian Jurisdictional Scan (October 2021) ..................................................................................... 10
3.1 Highlights .................................................................................................................................... 10
3.2 Key Findings ................................................................................................................................ 11
3.3 Promising Practices ..................................................................................................................... 14
3.4 Sport Federation Service/Program Inventory and Organizational Features .............................. 15
3.5 Looking Ahead............................................................................................................................. 16
4 The New Brunswick Context ............................................................................................................... 17
4.1 Sport New Brunswick .................................................................................................................. 17
4.2 Sport and Recreation Branch ...................................................................................................... 19
4.2.1 Sport Development Trust Fund ........................................................................................... 19
4.2.2 Funding Opportunities ........................................................................................................ 20
4.2.3 Strategic Plan ...................................................................................................................... 20
4.2.4 A Sport Plan for New Brunswick…One Day (2008) ............................................................. 21
4.3 New Brunswick’s Recreation and Sport Policy Framework ........................................................ 22
4.3.1 System Principles and Partners ........................................................................................... 22
4.3.2 Other Sport System Partners .............................................................................................. 24
5 Envisioning the Future Sport System in New Brunswick .................................................................... 25
6 Appendices .......................................................................................................................................... 26
6.1 Appendix A: Working Definitions ................................................................................................ 26
6.2 Appendix B: Long Term Athlete Development Rectangle .......................................................... 27
6.3 Appendix C: Overview of Services/Programs Offered by Sport Federations Across Canada ..... 25
6.4 Appendix D: Scope of Available Services and Programs ............................................................. 26
2The Sport Envisioning Project October 2021
WORKING PAPER #1: Backgrounder:
Canadian and New Brunswick Sport Systems
1 THE ENVISIONING SPORT PROJECT
Many years have passed since New Brunswick (NB) examined the sport system, envisioned the future
for a strengthened sport system, and determined a clear path forward to make it happen. Important
past work does exist to learn from and build on, including the A Sport Plan for NB (2008), New
Brunswick’s Recreation and Sport Policy Framework (2017), Canadian Sport Policy (2021-2022), and
Sport NB – New Brunswick System Visioning Report (June 2021).
It is important to consider our provincial context in relation to the evaluation of the Canadian Sport
Policy (2012-2022) even though its renewal process is delayed to 2023. As NB charts its own path, we
can identify and learn from promising practices in other Canadian jurisdictions.
Current Context
Sport in New Brunswick in experiencing a unique period in history. We must navigate the challenges of
the current global pandemic while delivering a sports system that offers all New Brunswickers
opportunities to stay active and participate in sport. The urgency for change is growing among many
concerned about our sport system and the pressures it faces. It is important to question:
• What progress has been made since the 2008 NB Sport Plan called for increased investment in
sport, better use of existing resources, and the need for greater levels of cooperation and
collaboration within the New Brunswick sport system?
• How have system partners and stakeholders seized the opportunity identified in the 2017 NB
Recreation and Sport Policy Framework “to strengthen effectiveness and to create new growth
and development through greater collaboration within the recreation and sport delivery
system?”
• How do we build upon the recent dialogue within Sport NB’s 2001 Visioning Project and gain
further insights into developing a future sport system for all?
Shaping the future of our NB sport system requires thinking creatively, learning from others, involving
stakeholders, and embracing new ideas and change. Decisions must be made about the future sport
system regarding the scope of programs and services, alignment of roles and responsibilities, enabling
structures and processes, and targeted outcomes.
Once decisions are made, the hard work follows… determining how to make the transition from the now
to the preferred future with sufficient support and buy-in to sustain the momentum for change. This
project must deliver both… the preferred future and the way forward.
3The Sport Envisioning Project October 2021
1.1 PROJECT PURPOSE / APPROACH
The project’s purpose as described at the launch was “to renew and strengthen our approach to
developing and delivering sport across the province.” The Consulting Team is working closely with a
Guiding Team to engage sport partners and stakeholders throughout the process. Project work will
conclude by July 2022 and result in the development of the:
• Backgrounder on the Canadian and New Brunswick Sport Systems
• Canadian Jurisdictional Scan of Sport Systems, Programs and Services
• Recommendations for building toward an improved NB sports system
The Envisioning Sport Project (ESP) focuses on the sport system and its components, including not-for-
profit sport governing bodies and government partners becoming stronger, more coordinated, and
streamlined voices for amateur sport at all levels. It is a sector-led project that looks to strengthen and
grow the sport system in New Brunswick. Making concrete change to modernize the provincial sport
system has eluded the primary stakeholders ~ Sport NB (SNB), Sport & Recreation Branch (RSB),
Provincial Sport Organizations (PSO), Multi-Sport Organizations (MSO), and other system partners (e.g.,
Coach NB, Sport Centre Atlantic, NBIAA, etc.).
SNB, with support from the SRB and the project consulting team, is spearheading a sector-led process
over the next 10-12 months that will be open, transparent, and inclusive. While an ESP
Management/Coordinating Group (MAC Group) oversees the process, the ESP Guiding Team, with
extensive knowledge of the provincial sport system and experience in systems thinking/change, plays an
instrumental role in envisioning the future. Its work will be informed by valuable input and insights from
individuals and organizations throughout the process.
Stakeholders will have the opportunity to reflect on the existing system, consider new directions,
provide feedback on the impact of proposals, and identify strategies moving forward. The consultations
will both inform and engage stakeholders while exploring the now and then, the what and why, and the
how. A minimum of five initiatives will engage stakeholders in exploring the now and then, the what and
why, and the how.
Proposed Consultation Subject/Topic Format
Sport NB website used Open invitation for input and posting key project Project page and
throughout the project documents assigned email
November 27, 2021 Future System: values, outcomes & change agenda Virtual Sport Summit
session on Zoom
Survey 1: November The Then and Now: features, barriers/challenges, Survey Monkey
2021 priorities for action
November 2021-January Sector Interviews with individuals and Interviews held with
2022 partner/stakeholder organizations about role, project team members
issues, and advice on the future system Team member (1 hour)
Survey 2: March 2022 Future Sport System in NB: roles & responsibilities, Survey Monkey
transition, implementation
4The Sport Envisioning Project October 2021
2 THE CANADIAN CONTEXT
The Canadian sport context can best be understood by being informed about sport policy, sport
movements, and the different jurisdictional systems that develop and deliver sport across Canada.
2.1 CANADIAN SPORT POLICY
The Canadian Sport Policy (2012-2022) envisions “a dynamic and innovative culture that promotes and
celebrates participation and excellence in sport.” With the intention to realize the positive impacts of
sport on individuals, communities, and society, the Policy focuses on five priorities:
1. Excellence
2. Enhanced education and skill development
3. Improved health and wellness
4. Increased civic pride, engagement, and cohesion
5. Increased economic development and prosperity
The Federal/Provincial/Territorial Sport Committee (FPTSC) recently released a progress report1 on the
renewal of the Canadian Sport Policy which is expected to be completed in February 2023. The current
Canadian Sport Policy (CSP) spans 2012-2022 and sets “the direction for all governments,institutions and
organizations that are committed to realizing the positive impacts of sport on individuals, communities,
and society.” The CSP Renewal Work Group guides the current work with a mandate to:
• lead and manage a process for a renewed Canadian Sport Policy in 2022 [revised 2023];
• promote continued engagement of the sport and related sectors in Canadian Sport Policy
processes for the betterment of sport throughout Canada; and
• make recommendations to F-P/T governments via the FPTSC on matters related to these
objectives.
Work to date has resulted in a Summative Evaluation of the CSP 2012 that outlines progress, significant
influences, key learnings and priorities going forward, and an Environmental Scan and summary report
(February 2021) that identifies potential barriers and issues impacting the Canadian sport landscape
over the next decade as a result of the COVID-19 pandemic.
Highlights from Summative Evaluation2
It is recognized that the CSP 2012 has broadened the policy lens from primarily a sport policy for
governments to a policy for the sport sector. In the report, a decline in sport participation in Canada is
noted from 61% in 1992 to 45% in 2016 (p.1). The Summative Evaluation identified achievements of the
CSP (2012-2021) as follows:
• Principles of physical literacy and LTAD are well-integrated in the sport system
• Canadian athletes have achieved a high level of international success
• Participation rates among girls and women are higher
• Promotion of safe and ethical sport has increased, related to maltreatment, harassment, abuse,
and bullying
• Traditionally under-represented populations have increased representation
1 Memo to the Canadian Sport Community from the Federal/Provincial/Territorial Sport Committee (September 24, 2021)
2 CSP-2012-evaluation-Summary-Report-Final-Feb12-21.pdf (sirc.ca)
5The Sport Envisioning Project October 2021
CSP’s most significant influences are identified as:
• Recognition of the importance of sport to overall health and well-being
• Higher participation rates for girls and women aged 15+ ~ from 16% in 2010 to 20% in 2016
• Increased numbers of trained/certified coaches and coach/leadership training activities
• Increased focus and support for ethics in sport
• F-P/T government support for sport program alignment with LTAD
• Growing F-P/T government support for accessible, equitable and inclusive sport
From the evaluation, areas needing improvement were also noted, including:
• Low levels of physical literacy among Canadian youth/children
• Safety concerns that limit participation
• Confusion about the meaning of Sport for Development (S4D) and its objectives
• Weak linkages among sport, health, education, and community development
• Rising costs of participation
• Decreasing volunteer recruitment/retention, with increasing requirements for training and
accreditation
• Lack of capacity and serious resource limitations among local sport organizations
• Inconsistent effectiveness of NSOs and P/TSOs in providing resources to local sport groups
• Aging infrastructure with uncertainty about the plans for renewal
Several observations made by the evaluators should be considered moving forward:
• A stronger focus on clarifying terms/roles, guiding decisions, and mobilizing resources
• More capacity and resources for P/TSOs to work with local sport organizations
• More clearly defined and practice-oriented values and principles (e.g., equity, diversity, and
inclusion); and then how to best operationalize these in the different contexts of high
performance, and recreation
• Better aligning the CSP with the Framework for Recreation in Canada (2015) and A Common
Vision for Increasing Physical Activity and Reducing Sedentary Living in Canada (2018); with a
view to avoiding overlaps and redundancies
Highlights from the Environmental Scan and Report on Post-Pandemic Impact on Canadian Sport3
Research is lacking on the future of sport after COVID-19 and the barriers and issues impacting the
Canadian sport environment over the next decade. There are current discussions about “building back
better”. The emergent themes from the scan include:
• Inequity: There is exacerbated inequity in sport with socio-economic status identified as the
strongest determinant of health and participation in recreational sport and physical activity.
Two key areas noted for immediate attention are women and girls and race.
• Re-imagine sport: The need exists to promote physical activity as essential to maintaining and
improving physical and mental health. People are engaging more and more in unstructured
physical activity and sport opportunities. If the trend is here to stay, we may need to re-imagine
3 CSP RENEWAL (sirc.ca)
6The Sport Envisioning Project October 2021
sport. A call was heard for equity and inclusiveness in sport requiring more balance between
“sport for all and high-performance sport” and responsive funding models.
• Infrastructure: Diverse factors will put increasing pressure on infrastructure decisions in the
future: aging facilities; new and retrofitted facilities in a post-pandemic world; heightened
demand for outdoor spaces, and accessible, inclusive, and safe indoor and outdoor spaces.
• Financial impact: There is recognition of the severe financial hardship on sport and recreation
organizations. Organizers are facing increased health and safety expectations and operational
unpredictability which can lead to reduced sport operations, scaled back Sport Tourism, and
higher cost operations and major events.
• Working together: Partnerships and collaboration must be expanded and enhanced.
• Risk management Plans are important and must be in place.
• Additional Note: The inter-relationship of climate change and sport must be considered.
Report authors conclude with stating that “physical activity, recreation, and sport are important for
Canada’s recovery” and that “there has never been a more opportune time for sport to contribute to the
health and wellbeing of Canadians, and the world (p.4).”
Although the policy renewal work will not be completed until February 2023, the CSP Renewal Work
Group has already identified some considerations impacting policy development including:
i) stakeholder concerns with immediate responses to the COVID-19 pandemic,
ii) a new environment calling for a consumer-driven ‘market’ approach to programming
and delivery,
iii) advancing the Truth and Reconciliation Commission’s Calls to Action,
iv) alignment of the process and content to other sector policies including the Framework
for Recreation and the Common Vision for Increasing Physical Activity (2018) and
Reducing Sedentary Living in Canada (2015), and
v) growing international dialogue and increased understanding of how sport contributes to
the U.N. Sustainable Development Goals (SDG’s).
A “pilot” CSP renewal workshop was included as part of the annual Sport Information Research Council
conference held October 28-29, 2021, followed by the release draft policy concept paper and F P/T
consultations during winter/spring 2022.
2.2 TRUE SPORT
With the release of the What Sport Can Do: The True Sport Report (2008), a national movement for sport
and community was launched that invites supporters to help sport live up to its potential as a public
asset for Canada and Canadian society. True Sport4 is a member-driven sport movement with thousands
of supporters throughout Canada ~ coaches, officials, teams, sport organizations, facilities, schools,
communities, citizens, and allies.
The True Sport organization advances the belief that “good sport can facilitate a wide range of health
and social benefits.” To make the greatest difference, members commit to uphold and embed seven
principles for sport in all their sporting programs and initiatives.
4 https://truesportpur.ca/
7The Sport Envisioning Project October 2021
Go For It ~ Rise to the challenge – always strive for excellence. Discover how good you can be.
Play Fair ~ Play honestly – obey both the letter and spirit of the rules. Winning is only meaningful when
competition is fair.
Respect Others ~ Show respect for everyone involved in creating your sporting experience, both on and
off the field of play. Win with dignity and lose with grace.
Keep It Fun ~ Find the joy of sport. Keep a positive attitude both on and off the field of play.
Stay Healthy ~ Place physical and mental health above all other considerations – avoid unsafe
activities. Respect your body and keep in shape.
Include Everyone ~ Share sport with others. Ensure everyone has a place to play.
Give Back ~ Find ways to show your appreciation for the community that supports your sport and helps
make it possible.
2.3 SPORT DISPUTE RESOLUTION CENTRE OF CANADA
The Sport Dispute Resolution Centre of Canada (SDRCC) was created under Provision 10 of the Physical
Activity and Sport Act (S.C. 2003, c.2).
"The mission of the Centre is to provide to the sport community a) a national alternative dispute resolution
service for sport disputes; and b) expertise and assistance regarding alternative dispute resolution."
With its focus on education and prevention, SDRCC provides resources to resolve minor disputes and
reduce the need for arbitration and mediation. The main goals include to:
• Ensure access to independent, alternative dispute resolution (ADR) solutions for all participants
in the Canadian sport system at the national level
• Strengthen the transparency and accountability of the national sport system and national sports
organizations by clarifying their responsibilities to athletes, coaches, and other stakeholders
• Ensure that independent alternative dispute resolution (ADR) processes are equitable for all
• Offer a low-cost mechanism throughout Canada in both official languages.
2.4 SPORT FOR LIFE
Incorporated as a Canadian not-for-profit organization in 2014, Sport for Life5 is a social enterprise
driven by a vision “for every Canadian to find a custom-designed physical literacy pathway that works for
them throughout their entire lives.” While promoting physical literacy and quality sport in both domestic
and international arenas, this recognized multi-sport organization advances their agenda through
collaboration, innovation, inclusion, and integrity.
With a focus on promoting quality sport that is developmentally appropriate, safe and inclusive, and well
run, its core belief is that good programs led by good people in good places. Resources are available for
developing quality sport programming for communities and clubs, and under-represented groups.
Sport for Life believes that effective development requires the alignment of the entire Canadian sport
and physical activity system/network from community programming through to high-performance
sport. To be successful, this evolution involves far more than just sport organizations.
5 https://sportforlife.ca/
8The Sport Envisioning Project October 2021
Long Term Development in Sport and Physical Activity 3.0
The Long-Term Development in Sport and Physical Activity 3.0 (2019)6 is the most recent and key
resource targeted for coaches, NSOs, and PSOs/TSOs. To be inclusive and more adequately describe
everyone who is active, the model uses the term athlete when describing individuals striving to achieve
their sporting potential, and both athlete and participant when dealing with young children and adults
engaged in sport and physical activity.
Building on the previous Long-Term Development (LTAD) model, the new Development in Sport and
Physical Activity Framework encompasses everyone’s development through optimal participation in
sport and physical activity. The framework has three key goals:
• support the development of physical literacy
• strive for excellence
• empower people to be active for life
The Framework clearly includes everyone who is active, both athletes and participants. The basic seven
stages are depicted as in the previous LTAD model, however there are two pre-stages (awareness and
first involvement). In addition, the Active for Life stage is sub-divided into two phases for greater clarity
~ Competitive for Life and Fit for Life. Each of the seven recognized stages has its own physical, mental,
emotional, and cognitive characteristics. (See Appendix B: Long Term Athlete Development Rectangle).
Active Start: making physical activity a fun part of daily life and involving unstructured play
FUNamentals: focusing on learning fundamental movement skills and building overall motor skills
Learn to Train: learning and refining general sport skills for participation in sport
Train to Train: competing/specializing in chosen sport(s) with a focus on applying learned skills
Train to Compete: developing as athletes in a sport under competition conditions and optimizing physical preparation
Train to Win: training to win at the highest levels of sport and working with highly skilled coaches
Active for Life: transitioning from competition to lifelong physical activity and sport participation
The framework emphasizes the need for a coordinated and integrated system for developing athletes
and identifying appropriate competition levels at each stage. As important is the recognition that long-
term development links sport performance with life-long physical activity for health.
2.5 QUALITY SPORT FOR COMMUNITIES AND CLUB
Quality Sport for Communities and Clubs7 is a practical resource to improve and sustain Quality Sport
based on Long-Term Development in Sport and Physical Activity. The program guide, available through
Canadian Sport for Life, promotes collaborative commitment and action to deliver Quality Sport for all ~
good programs delivered by good people in good places.
• Good programs, that are developmentally appropriate, are participant-centered; progressive
and challenging; well-planned; and designed for meaningful competition.
• Good people, who are caring and knowledgeable, include coaches, officials, instructors, and
teachers; parents and caregivers; and partners and leaders.
6 https://sportforlife.ca/wp-content/uploads/2019/06/Long-Term-Development-in-Sport-and-Physical-Activity-3.0.pdf
7 https://sportforlife.ca/portfolio-view/quality-sport-for-communities-and-clubs/
9The Sport Envisioning Project October 2021
• Good places, that create good feelings, are inclusive and welcoming; fun and fair; and safe.
Quality Sport is built on four guiding principles:
• Quality is key
• Optimal programming is critical
• Inclusion is non-negotiable
• Collaboration makes the system better
Community sport organizations are encouraged to take five actions to improve and sustain programs:
• Focus on athlete growth and development
• Support long-term goals (lifelong participation and athlete development)
• Use competition intentionally for development
• Make a commitment to Sport for All (as inclusive and accessible as possible)
• Develop partnerships that prioritize participant development
In 2020, two individuals in NB received facilitator training, however the roll-out has been severely
limited by COVID restrictions. When there is full return to play, this Quality Sport program will be re-
launched with purpose.
3 CANADIAN JURISDICTIONAL SCAN (OCTOBER 2021)
A jurisdictional scan was conducted to develop insight into roles and responsibilities, organizational
structures, funding agreements and promising practices. The scan included two major components:
i. A review of materials on the internet, including both government and sport federation policy
statements, funding programs, organizational structures and relationships, budgets and more;
and,
ii. Key respondent interviews, typically with a senior manager in government and a senior manager
in the sport federation.
All provinces and the Northwest Territories were scanned. Yukon and Nunavut received less-extensive
internet reviews only.
The project consultants conducted interviews with government representatives in all 10 provinces and
with sport federation representatives in 7 provinces and Northwest Territories. (The Newfoundland and
Labrador representative was unavailable; Alberta and Ontario do not have federations.)
3.1 HIGHLIGHTS
• Each province is unique in structure and delivery, despite common agreement with A Common
Vision for Increasing Physical Activity and Reducing Sedentary Living In Canada (2018), Framework
for Recreation in Canada (2015), and the Canadian Sport Policy (2012). Despite the differences,
there are three basic approaches to how the sport system is organized, developed, and offers
services/programs:
a. GOVERNMENT HANDS-OFF, FEDERATION DELIVERS MOST PROGRAMMING - Government is hands-off on
program delivery and outsources most sport development activity. In these cases,
government retains overall public-interest objectives and policy via funding agreements with
10The Sport Envisioning Project October 2021
arms-length agencies. British Columbia, Saskatchewan and Manitoba take this
approach. The arms-length agencies in Saskatchewan and Manitoba also have a role in
supporting PSOs or MSOs with services; in British Columbia, two sport agencies provide
distinct service to PSOs and MSOs.
b. GOVERNMENT RETAINS ALL PROGRAMMING - Government retains all sport development activity in
support of public-interest objectives, and there is no substantive sport federation that
supports PSOs or MSOs. Alberta and Ontario take this approach. (While not examined in
detail and without an interview, it appears that Nunavut falls into this approach).
c. JOINT GOVERNMENT-FEDERATION PROGRAMMING DELIVERY WITH DEFINED ROLES - Government retains
public-interest objectives or policy; but shares program delivery with an arms-length
organization via funding agreements. Northwest Territories, Quebec and all Atlantic
provinces take this approach. The shared responsibilities may be modest (Quebec, New
Brunswick) or comprehensive (Nova Scotia, Northwest Territories). These arms-length
organizations also provide some level of service to PSOs or MSOs. (Note: While not examined
in detail and without interview, it appears that Yukon falls into this approach).
• In the absence of an understood provincial vision or guiding plan, changes in government
structures / departmental alignment can give rise to uncertainty and frustration both within
government and within sport organizations, sapping energy and impairing progress.
• Major gaps continue to exist between community sport (including school sport) and provincial
and national sport organizations. The LTAD continuum from Active Start to Fit for Life is not at
all seamless, nor is it continuous. If left as is, the poor alignment, lack of collaboration, and
duplication makes achieving either sport performance or health outcomes difficult.
• The pandemic has created an unprecedented opportunity to re-examine desired outcomes,
strategic priorities, and system organization at a fundamental level.
• The limited organizational capacity to change or accept new responsibilities is a significant and
recurring concern.
• A renewed or reimagined system has a greater chance of success if leaders’ emotional
responses can be addressed: issues of perceived importance of the sector, threats to individual
roles, organizational ego must all be considered. Change requires meaningful conversation with
stakeholders and engagement throughout the process.
3.2 KEY FINDINGS
• Clarity of purpose and defined government policy objectives are the top requirements for
successful system alignment, whether work is done inside or outside government. Other often-
cited keys to success included:
o Building trust
o Operating transparently
o Ensuring accountability
11The Sport Envisioning Project October 2021
• Provincial sport organizations – both single-sport and multi-sport – are being asked to do more
with respect to equity, inclusion and access, safe sport, and general participation, with few new
resources, if any. Further, most sport activity takes place at the community and club level,
generally outside the direct influence of provincial sport organizations, let alone federations.
• The scope and responsibility for providing specific services and programs differs among
governments and sport federations across the country. From the publicly available information
on the web sites, over 65 programs or services are offered across 8 categories.
• Membership organizations that do not receive additional funding are less likely to have the
ability to expand services or programs that do not serve their membership. Innovation and
growth are challenging. Taking on new government mandates (e.g., equity, access, and
inclusion) will be done more willingly, and with greater success, if supported with new
resources.
• Strong, professional leaders make a difference. Inexperienced or under-paid staff generally
support operational /admin functions only, contributing little to system or strategic
change. Many PSOs struggle with a lack of staff or volunteer capacity.
• As with the not-for-profit sector, volunteer recruitment and retention are growing issues,
particularly among provinces whose populations are stagnant (or growing largely through
immigration). Newcomers that do not yet have a sense of belonging in their community will not
likely add to the volunteer base.
• The pandemic is front-of-mind for most interviewees, with opportunities and threats both being
considered. The largest threats are perceived to be whether children return to sport activities,
and the impact on volunteerism. The largest opportunity is perceived to be the potential for
closer ties to social, emotional, and mental health outcomes.
• There is a desire by most interviewees to have improved alignment and collaboration among
sport organizations to improve both effectiveness and efficiency. Historical roles are hard to
overcome. Organizational culture matters and must be considered in organizational
design. Several respondents cited amalgamations among PSOs as possible options to improve
organizational performance or to find efficiencies. At the same time, sport has little ability to
innovate while struggling with sustainability.
• In the three provinces with the most arms-length relationships with federations (BC, SK, MB),
government interviewees all made comments along the lines of “we trust the sport federation
to know what is needed.” All referenced multi-year agreements that featured high-level
outcomes and / or specific deliverables.
• The nature of sport is evolving ~ immigrants are importing sports (e.g., the rise of cricket), IOC
sport selection has an impact (e.g., skateboard); and youth activities are changing (e.g., eSports).
“Sport for All” is driving changes for inclusion, diversity, and equity. Sport recognition policies
and/or funding have not kept pace.
• Federal government bilateral funding agreements have been helpful in building greater
participation by marginalized groups. There remain significant gaps in integrating Indigenous
participation experiences into mainstream sport structures.
• In most provinces, school sport is viewed as somewhat outside the system, even when school
sport is the primary competitive environment for some sports. Many interviewees thought there
12The Sport Envisioning Project October 2021
were opportunities to rethink the role of school sport, alignment with the sport system, and
maybe even rethink the governance of school sport organizations.
• Many respondents cited a lack of good data or good evidence to support decision-making. A
specific concern was expressed regarding PSO membership figures being an incomplete
indicator of the reach of sporting activity; yet is a default measurement in most jurisdictions.
The following section identifies several key insights or unique perspectives per jurisdiction.
British Columbia
• Austerity period is likely post-pandemic; concerns continue over sustainability
• Relevance of traditional approaches under question with changes in Olympic program (e.g.,
skateboarding, rock climbing, breakdancing)
• Little overlap with Sport BC; PSOs decide for themselves if there is value in membership with
Sport BC
• viaSport receives significant funding from government to lead and strengthen the BC sport
system while Sport BC is member-based and focused on providing member services.
Alberta
• Effective, internal government communication can lead to greater awareness of government
funding programs beyond sport and recreation departments
• Like all not-for-profits entities, PSOs can benefit from additional organizational / governance
support
Northwest Territories
• Staying focused is important; Sport North is all things to all organizations at times which can
hamper productivity
• To be able to help P/TOs, the federation must first ensure its own health
• Sport North benefits from lottery proceeds, currently at $800,000 per year in core funding, plus
major Games contributions (Arctic Winter Games, North American Indigenous Games, Canada
Games)
Saskatchewan
• Plans and programs developed with sport, not for sport; success comes from listening to
communities
• PSOs lead technical development, communities lead people development; both pieces needed
to improve club development
• SaskSport operates the provincial lottery, under license from the Province of Saskatchewan.
Lottery proceeds are managed by SaskSport, with revenues distributed 50% to sport, 15% to
recreation and 35% to culture. In 2020, this represented $31M to SaskSport.
Manitoba
• More investment needed in R&D “rip-off & deploy” (use what’s out there, share what we have)
• Multi-year agreements in place (5 years between government and Sport Manitoba, 4 years
between Sport Manitoba and PSOs); allows for stability, planning horizon to achieve outcomes
Ontario
13The Sport Envisioning Project October 2021
• Culture of organizations is a key consideration in organizational design
• Ontario Sport Plan (Game ON) identifies roles for four different government departments
Quebec
• Although sport’s government home is within the Department of Education, alignment problems
still exist. Work is underway to resolve duplication between school sport and PSOs,
• A third agency (Regroupement Loisir et Sport du Québec / Centre Québecois de services aux
associations) provides substantial administrative and management support to sport, recreation,
and other not-for-profit organizations across the province.
New Brunswick
• The broad focus of both the government department and sport federation has led to overlaps,
gaps, duplication, and a lack of clarity on who leads what or who is best to lead what.
• Most sport funding is kept centrally
• Government regional consultants support local clubs, leading clubs to question the value of
connection to PSO
Nova Scotia
• Government strategy, “Let’s Get Moving Nova Scotia” has a health lens rather than sport policy
• Regional sport consultants work with municipalities, community groups, schools, and First
Nations
• Block (core) funding amounts to PSOs are developed jointly between Sport NS and government:
one application, one process
• Sport Nova Scotia benefits from lottery proceeds through the sale of a unique Support for Sport
gaming product. This amounts to approximately $4.3 million in revenue, about 43% of Sport
Nova Scotia’s annual revenue budget.
Prince Edward Island
• Highly dependent on volunteers; demographics and Covid impacts are changing the nature of
volunteerism and reducing the capacity to grow
• More Atlantic cooperation needed
• Coaching is a shared responsibility among government, Sport PEI, and the University of PEI
Newfoundland and Labrador
• Premier’s commitment to active living (NL “must invest in front end of health care” with healthy
lifestyle) will lead to better connections across continuum, provides opportunity to innovate.
• Redefine ROI in terms of social, mental, emotional, and physical health – Covid has given
recognition of sport contribution to social development. Decision makers see value where they
didn’t before.
3.3 PROMISING PRACTICES
• All provinces have some type of plan, objective, or statement about the value of physical activity
to health outcomes. Government interviewees sounded more optimistic about the future in the
cases where recreation and sport were considered within the context of physical activity and
health. Many respondents cited the pandemic as having raised awareness of the benefits of
physical activity and sport for achieving social, mental, and physical health.
14The Sport Envisioning Project October 2021
• Several respondents raised questions about the intrinsic value of sport and how might a
government measure success and / or return on investment in social or health outcomes.
• Newfoundland and Labrador has embarked on a plan to develop a Health Accord, with a bold
goal of becoming one of the healthiest provinces by 2031. Overall direction is coming person ally
from the Premier, with the working committee chaired by Pat Parfrey, M.D, O.C., who is also a
respected sport leader.
• Longer-term agreements (2-4 years) bring stability and thus a greater opportunity for sport
federations to concentrate on outcomes. Federation representatives expressed anxiety over
one-year agreements.
• Quality coaching has long been established as one of the most important factors in successful
sport experiences. Roles and responsibilities for coach development are spelled out in most
jurisdictions, with little duplication.
• The Canada Games remain important to all jurisdictions, with roles and responsibilities clearly
established. However, responsibility varies from a separate agency, the sport federation, or
government itself.
• It appears that where the federation has a strong regional presence (BC, SK,) there is a better
connection to provincial programs and more comprehensive program delivery.
3.4 Sport Federation Service/Program Inventory and Organizational Features
The project consultants examined publicly available information on the web sites of each government
and sport federation and documented the availability of over 65 services or programs across eight
categories.
A table was developed to provide a summary of program and service categories offered by each
provincial sport federation, as found on web sites. It captures whether the level is high (H), medium (M),
low (L) or non-existent (N/A). In British Columbia, the table includes services and programs offered by
viaSport and Sport BC and, in the case of Quebec, by Sports Quebec and Regroupement Loisir et Sport
du Québec. (See Appendix C for an Overview of Services and Programs Offered by Sport Federations
Across Canada). Detailed inventories for each province are available in a separate document. (See
Appendix D for the inventory template).
This search included descriptions of membership services, financial reports, grant applications, bylaws,
annual reports, and more. The consultants did not try to determine the quality or effectiveness of any
offering, only its existence. Similarly, the web review looked at organizational features such as board
composition, voting structure, total staff, and some budget features (e.g., total expenditures – pre-
pandemic – and major sources of revenue).
Key Findings
In general, the services and programs offered by sport federations is dependent on funding, which can
be described as originating from two primary sources:
• The core funding available to the federation to provide support to member (or emerging) sport
organizations; and is distinct from program or project funding (e.g., HR support, accounting,
15The Sport Envisioning Project October 2021
office space, communications). This funding - either general revenue or lottery revenue (NT, SK,
NS) - typically provides most revenues to federations.
• The amount of self-generated revenue (such as through membership fees) to provide support to
member (or emerging sport organizations) tends to be modest.
In addition to supporting the services of the federations themselves, governments also provide funding
to PSOs and MSOs, either directly or through the federation.
Without a detailed analysis of all federation revenues and expenses – which is outside the scope of this
project – no conclusion can be drawn regarding the effectiveness of the above. There was no attempt to
validate the quality of service provided.
There were multiple models for boards of directors, with a plurality of federations having multiple
membership categories, and different levels of voting (typically, single-sport PSOs would be “full”
members and have 2 votes, with other organizations as “affiliate” members and a single vote; board
members might also have votes).
All but two federations’ boards are elected by members. The exceptions are:
• viaSport in BC, which has a self-determining board; and,
• Sport Manitoba, which has 3 board members appointed by government, 3 board members
elected from and by constituent organizations and 3 outside board members elected by
constituent organizations.
It was noted by several government representatives that given the typical organizational voting
structure (i.e., PSOs controlling the board and the overall direction), change could be difficult without
incentive for buy-in or a change in government direction.
3.5 LOOKING AHEAD
Although we were not surprised by the common commitment to sport across the country, we were
struck by both the diversity of sport structures, government/sport federation mandates, governance,
and funding. Although jurisdictions were reluctant to offer specific advice to New Brunswick, most did
provide food for thought when looking ahead.
Once a preferred future sport system and change agenda are established, and based on public policy
outcomes, a new organizational structure might be warranted. Sport New Brunswick will then need to
look more closely at its organization - mandate, structure, membership/voting rights, board structure -
to ensure it reflects a new (or renewed) mandate and relationship with government. Considerations
should include:
• An ability to serve all regions of the province, in both official languages
• The relationship and level of support for PSOs/MSOs
• A board composition that reflects all New Brunswickers
• An ability to adapt to changes in demographics, emerging sports, or other factors
• The comprehensive skill sets needed to ensure fiduciary duties are met, along with a strategic
mindset
16The Sport Envisioning Project October 2021
• Whether or not the above can be achieved with an exclusively member-based voting structure,
or exclusively self-determining board (with or without outside directors)
The project team believes a unique made-in-New Brunswick approach is both achievable and desirable.
Goodwill exists between departmental officials and Sport NB senior leaders such that a refreshed
relationship can improve the sport outcomes for the province. Clearly each jurisdiction has customized
its sport system and developed roles/mandates, structures, funding models, and enabling processes to
meet its challenges and reflect its own context.
The overview of sport systems is supported by more detailed stand-alone documents: Canadian
Jurisdictional Scan: Inventory of Identified Sport Programs and Services Offered by Sport Federations and
Canadian Jurisdictional Scan: Key Informant Interview Questionnaires.
4 THE NEW BRUNSWICK CONTEXT
The provincial sport system, at a high-level, can best be understood by examining key sport groups with
responsibility for sport development and delivery; and being aware of their role and strategic priorities.
4.1 SPORT NEW BRUNSWICK
Sport New Brunswick (Sport NB) is a non-profit, membership-based federation committed to the
development and promotion of amateur sport in the province. Its membership represents over 60
Provincial Sport Organizations (PSOs), Multi-Sport Organizations (MSOs) and other sport-related groups.
A volunteer board of directors acts as the governing body and provides strategic direction to its small
team of employees (i.e., CEO, program and communication coordinator, bookkeeper, and translator).
Special projects and services are often delivered using external service contracts.
The annual budget is best described as having three components: i) direct operations, ii) recoverable
member services (e.g., rent, insurance, payroll), and iii) externally funded special projects (e.g., Safe
Sport/Dispute Resolution Process, Envisioning Sport Project).
The Sport and Recreation Branch provides a significant grant, covering 72% of operating revenues in
2019-2020. Self-generated revenue is attributed membership fees, membership services, sponsors, and
special projects. For 2021-2022, the government funding for direct operations was $339,000:
• $168,500 – Core
• $68,500 – Translation services
• $40,000 – KidSport Granting
• $32,000 – Communication services
• $30,000 – Staffing
17The Sport Envisioning Project October 2021
Sport NB is guided by its Strategic Plan (2017-2020); however, the pandemic has forced the organization to
pull back to ensure sustainability, membership connection, and focus on priority projects. Sport New
Brunswick – Strategic Plan (2017-2020)
Mission Sport NB is a proactive organization that provides strategic leadership to provincial sport organizations in
New Brunswick to facilitate, support, and advocate sports participation and excellence throughout the
province.
Note: On the Sport NB website 2021
The Mission of Sport NB is to assist New Brunswick provincial sport organizations in enhancing lifelong sport
participation.
Vision Sport NB aspires to be a key partner, facilitator, and contributor to the improvement of health and wellbeing
for the people of New Brunswick through enhancing and acknowledging the social and economic benefits of
sport participation and elite/national team performance and success.
Note: On the Sport NB website 2021
Our Vision is a future where New Brunswickers engage in lifelong sport participation.
Values good governance; inclusive/accessible sport; bilingual and cultural diversity; strong, ethical leadership;
research/evidence-based decision making; innovation
Goals Goal 1 – Leadership: To promote the collective interests of the amateur sport community in New Brunswick
and encourage greater participation across the province.
Goal 2 – Sport System Development: To strengthen the sport delivery system in New Brunswick
Goal 3 – Strategic Partnerships: To foster & build strategic partnerships provincially, regionally, and nationally.
Goal 4 – Organizational Development and Program Delivery: To build internal capacity to support and service
PSOs and their member organizations.
In June 2021, Sport NB released its New Brunswick Visioning Project Report which was informed by
information gathered from consultation with its members and those of Recreation NB. The initiative
identified key areas for more in-depth consideration, discussion, and strategies/solutions going forward.
Summary of Sport NB Visioning Consultation (Feb-June 2021)
Common Themes • Alignment, collaboration and communication, capacity, facilities, funding
What does the ideal sport (and recreation) system look like?
• More funding (stream-lined, multi-year)
• More collaboration (deconstruct silos, work better together)
• Advocacy and strong leadership from Sport NB
• Barrier free system (low registration costs, equipment provided, no user fees, accessible
transportation, sport for all skills levels and physical/mental abilities
• Accessible facilities
What is holding us back? What are our biggest challenges and barriers?
• Funding – lack of paid staff, guideline restrictions of spending funds, equipment costs
• Lack of transparency / unclear funding priorities
• Coaches and officials – recruitment/retention, limited technical knowledge, training cost,
succession, little support re safe sport, complex coaching pathways
• Alignment – sport and government silos, service duplication, lack of communication from all
levels, conflicting seasons, lack of system connection with NBIAA and Middle school sports
Additional challenges identified by 80% of participants
• Facilities, capacity, communication and awareness, volunteers
What gaps, if closed, would have the biggest impact?
18The Sport Envisioning Project October 2021
Summary of Sport NB Visioning Consultation (Feb-June 2021)
•Funding - increased core funding, staffing assistance and spending flexibility
•Facilities - need accessible and regulated multisport, multicourt year-round facilities (e.g.,
challenges with court sports, school facilities)
What could we do? What are the top priorities for change?
• Collaboration**
Other common and shared themes
• Staff, funding, school sport
How do municipalities fit in? Gaps, if closed, to strengthen the recreation/sport system? Municipal priorities?
Themes • Communication and collaboration
consistent with Additional comments:
Sport NB groups
• Massive communication gap needs to be closed, both with PSOs and clubs
• Looking for more clarity and better system for information-sharing from sport and recreation
departments
• Need more collaboration with the health sectors/health department and community level
solutions
4.2 SPORT AND RECREATION BRANCH
The Government of New Brunswick entrusts the development and advancement of sport, recreation,
and active living for its citizens to the Sport and Recreation Branch of the Department of Tourism,
Heritage and Culture through its central office and network of eight regional offices.8
Consultation services are provided to the provincial sport network with the objective of strengthening
the capacity and self-sufficiency of sport organizations. Each provincial sport organization must be
registered as a non-profit, be a member of the national association (if one exists), have a membership-
approved constitution/bylaws, and have held an AGM within the last 12 months. Services encompass
governance/administrative policies, event/program/project planning, and leveraging external support.
4.2.1 Sport Development Trust Fund
The Sport Development Trust Fund (SDTF) was established by statute in 1990 (RSNB 2011, C223) and
receives annual funds from the NB Lotteries and Gaming Corporation in accordance with the Gaming
Control Act (s. 23, SNB2008, c-G1.5). The fund is to be used to provide grants to individual athletes and
sport organizations to promote leadership and excellence in sport (s.3, RSNB 2011, C223).
In 2020, the annual allocation was increased from the $500,000 received since 1990, to $1M to ensure
continued growth and sustainability of the sport system. It is estimated that this increase could generate
an additional $1.6M of partner spending based on what organizations generated from 2011-2015 (i.e.,
$2.20 additional for every dollar invested).
The expectation is that the additional SDTF funding will increase leadership capacity and training,
support effective operations by local and provincial sport organizations, and build safe, accessible,
quality programming.
8Region 1 Republic, Region 2 Western Valley, Region 3 Capital, Region 4 Fundy, Region 5 South East, region 6 Miramichi/Kent,
Region 7 Chaleur/Peninsula, and Region 8 Restigouche
19The Sport Envisioning Project October 2021
4.2.2 Funding Opportunities
In 2020-2021, the total Branch budget was $7,761,000 comprised of the regular budget and special
operating accounts. A range of funding opportunities exist for provincial and local/regional
organizations.
Funding Opportunities
Provincial Sport Organizations Local/Regional Organizations
• Go NB Grant • Go NB Grant Program
• Professional Coach Employment Program • Active Communities Grant Program
• Provincial Sport & Recreation Organizations – • Regional Grant Program / Leadership Development
Core Funding: Core Funding (Tier I & II) • Regional Grant Program / Organizational Development
(including staffing assistance program) • Regional Profile Grant
• NB Athlete Assistance Program • Regional Games Hosting
• Official Languages Program • Long Term Athlete Development
• Trails Infrastructure Fund • Regional Grant Program – Inclusive Community
Recreation Infrastructure Fund
4.2.3 Strategic Plan
The Branch’s direction and focus is well outlined in its Strategic Plan (2016-2020). Work is in progress to
update the Branch strategy and expected results.
Sport and Recreation Branch – Strategic Plan (2016-2020)
Mission Provide strategic leadership and support to strengthen the sport and recreation system resulting in
increased opportunities for active living to improve the wellbeing of all New Brunswickers
Note: Revised Mission (Fall 2021):
Provide strategic leadership and support to grow and develop inclusive sport, recreation, and active living
opportunities for all New Brunswickers
Vision A strong and robust sport and recreation delivery system providing meaningful, accessible, and highly
valued opportunities that contribute to the wellbeing of New Brunswickers
Note: Revised Vision (Fall 2021):
A strong and valued recreation and sport delivery system providing inclusive, accessible, and quality
opportunities that contribute to the wellbeing of New Brunswickers
Values leadership, collaboration, accountability, lifelong participation, inclusion and equity, sustainability, public
good, excellence, safety, and ethics
Strategic Goal 1 – Physical activity – Sport and Recreation for life: To enhance active living through participation in
Goals9 sport and recreation throughout the life cycle
Goal 2 – Inclusion and access: To improve inclusion and access to sport and recreation for populations that
face participation constraints
Goal 3 – Supportive environments: To assist with the development of supportive physical and social
environments that encourage participation and help build strong and caring communities
Goal 4 – Strengthening partnerships: To ensure the continuous growth and sustainability of the sector
through supporting the development of organizations, resources, and leaders
Goal 5 – Operational effectiveness: To ensure the highest level of operational efficiency and effectiveness
9 directly linked to Canadian Sport Policy, Framework for Recreation in Canada, and Department Strategy Map
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