FNCFS Transitional Terms and Conditions: Contributions to provide children, youth, young adults, families and communities, with prevention and protection services

2021 CHRT 41: Update

To learn more about how to apply for capital funding to support the delivery of child and family services (2021 CHRT 41), visit Funding for capital assets: Jordan's Principle and First Nations child and family services.

Table of contents

Context

In January 2016, the Canadian Human Rights Tribunal (CHRT or Tribunal) ordered Canada to cease its discriminatory practices and reform the First Nations Child and Family Services (FNCFS) program and the 1965 Agreement with the Province of Ontario. This order, and subsequent orders, arose from a human rights complaint filed by the First Nations Child and Family Caring Society of Canada and the Assembly of First Nations in 2007. Canada accepts the orders and acknowledges that the discriminatory funding as found by the CHRT has created various adverse impacts for many First Nations children, youth and families. More details on these decisions are available online through the Canadian Human Rights Tribunal.

These revised terms and conditions continue to improve aspects of the program that were determined by the Tribunal to be discriminatory. These transitional terms and conditions are to support the implementation of the immediate measures toward reform of the child and family services program. Where there are inconsistencies between these terms and conditions and the Canadian Human Rights Tribunal decisions or decisions by any other Canadian court, in the context of the First Nations Child and Family Caring Society of Canada et al. v. Attorney General of Canada (T1340/7008) matter, the orders prevail and Canada will amend these terms and conditions to comply with the applicable orders. The changes also support the broader reform of the program to address discrimination identified by the Tribunal (2016 CHRT 2) which focused on addressing the real needs of First Nations children, youth and families living on reserve or in the Yukon and preventing the perpetuation of historical disadvantage.

Canada is committed to a child and family services program that promotes culturally-based and substantively equitable funding to support interventions to ensure the well-being and continuity of family, community and that cultural connections are preserved for First Nations children, including those in alternate care.

The intention is that these terms and conditions are consistent with the United Nations Convention on the Rights of the Child (UNCRC), changes to the FNCFS program emphasize that children and family well-being, including, the safety and best interest of child(ren) are paramount and that cultural and linguistic connections should be upheld.

The Government of Canada is committed to working with partners, including provinces and the Yukon, to transition the program to be needs based, impartial and inclusive, child-centered, community-directed, and focused on prevention and early intervention.

These Terms and Conditions are transitional in nature, and the purpose is to help move the program toward a child, youth, young adult, family, and community focused approach to service delivery. The program intends to support the well-being of First Nations children, youth, young adults, families, and communities, and recognizes program delivery is unique and complex. A centered approach to service delivery promotes, cultural safety, reunification, repatriation, interconnectedness and seeks to prevent separating a child or youth from their family, wherever possible, while ensuring supports are in place that enable children, youth, young adults and families to thrive. Prevention programming enriches options to enhance protective factors and promote positive outcomes.

1. Introduction

The First Nations Child and Family Services (FNCFS) program oversees and administers and provides contribution funding for the ongoing provision of culturally appropriate prevention, including early intervention, least intrusive measures, legislated protection services to respond to children at risk of harm or maltreatment, support family preservation and well-being, including cultural and linguistic connections for First Nations children, youth and families ordinarily resident on reserve or in the Yukon. Canada recognizes the need for culturally-appropriate child and family services that would speak to the unique needs and circumstances of First Nations children and families, as defined by First Nations.

Canada shall fund at actual cost post-majority care to youth ageing out of care and young adults who were formerly in alternative care up to and including the age of 25 across all provinces and in the Yukon.

As of January 1, 2020, child and family services provided to Indigenous children must be delivered in accordance with the national principles and minimum standards set in An Act respecting First Nations, Inuit and Métis children, youth and families (The Act). The Act's national principles of substantive equality, cultural continuity, and the best interests of the child have been established to help guide the provision of Indigenous child and family services while supporting Indigenous groups and communities should they choose to transition toward exercising partial or full child and family services jurisdiction at a pace and time that they choose. Until an Indigenous group, community or people exercises jurisdiction utilizing the framework of the Act, agreements related to existing service providers remain valid unless the parties decide otherwise.

As of April 1st, 2022, the FNCFS program shall fund at actual cost post-majority care to youth ageing out of care and young adults who were formerly in alternative care up to and including the age of 25 across all provinces and in the Yukon. Children are defined as persons under the age of majority, which means the age at which a person is granted the rights and responsibilities of an adult, in accordance with applicable child and family and First Nations legislation. Young adults are defined as persons who have reached the age of majority as defined in applicable First Nations, provincial/territorial legislation and have not reached their 26th birthday.

Child and family services, including First Nation Representative Services (formerly known as Band Representative Services in Ontario), are provided in accordance with the Act as well as applicable legislation and standards of the province, Yukon or First Nation. Funding under the FNCFS program is available to First Nation communities who are not receiving funding through a federal funding transfer agreement for child and family related services.

In order to provide equal opportunity and achieve equitable results and outcomes, the program supports variations in service provision.

2. Authority

The FNCFS program is delivered under the authority of the Department of Indigenous Services Act, S.C., 2019, c. 29, s.336., which provides the Minister of Indigenous Services with powers, duties and functions that extend to and include all matters over which Parliament has jurisdiction and that are not by law assigned to any other department, board or agency of the Government of Canada, relating to the provision of services to Indigenous individuals who are eligible to receive those services under an Act of Parliament or a program of the Government of Canada for which the Minister is responsible.

The Canadian Human Rights Tribunal orders relating to the FNCFS program include the reform of the FNCFS program and the 1965 Agreement with the Province of Ontario, including ceasing discriminatory practices, protocol on consultations, determination of budget, funding deficiencies, immediate funding relief, reimbursements for First Nations Representative Services and children and youth mental health services. Certain remedial orders are intended to address the discrimination identified by the CHRT and prevent its recurrence. More details on decisions are available on the Tribunal's website or by clicking on the CHRT decision links below:

3. Purpose, objective and outcomes

3.1 Purpose

The FNCFS program is intended to provide resources and funding to support the holistic and culturally appropriate delivery of prevention and protection services to meet the needs of children, youth and families ordinarily resident on reserve or in the Yukon. The FNCFS program funds eligible recipients to provide services that account for the distinct needs of First Nations children, youth and families including cultural, historical and geographical circumstances. Child and family services also includes post-majority care services.

The FNCFS program provides 4 streams of funding:

  • Child Protection, Guardianship and Support (Section 5.1)
  • Maintenance and Care (Section 5.2)
  • Prevention (Section 5.3)
  • First Nations Representative Services (Section 7)

In response to the 2021 CHRT 41 order, the FNCFS program will fund First Nations, FNCFS agencies and First Nations Representative Services the full costs for capital expenditures to support the delivery of child and family services.

3.2 Objective

The objective of the FNCFS program is to support thriving children, youth, young adults, families and communities by funding eligible recipients, as outlined in section 4, to deliver prevention and protection services such as child protection, guardianship and support and child maintenance and care for children and families ordinarily resident on reserve or in the Yukon; and in section 7, to deliver First Nations Representative Services.

Services under the FNCFS program will be provided in an inclusive and impartial manner based on substantive equality to address the specific needs and circumstances of First Nations children and families living on reserve or in the Yukon. Services may take into account First Nations' cultural, historical and geographical needs and circumstances, in a manner that accounts for the best interest of the child, as defined by First Nations. Funding under the program will also consider cost drivers related to inflation and increased needs or numbers of children in care and their families or children and families receiving FNCFS services; including prevention services.

The program provides access to linguistic supports such as translation or interpretation services of Indigenous languages, where appropriate, to ensure a culturally appropriate service delivery pursuant to Canada's authorities under the Indigenous Languages Act.

3.3 Outcomes

FNCFS outcomes focus on safe, healthy, thriving children and families being supported by communities able to identify and address child and family needs.

Immediate: 1 to 2 years

  • First Nations families have greater access to culturally appropriate prevention and early intervention services
  • First Nations service providers have adequate and predictable resources that allow for the development and delivery of culturally based child welfare standards and services including prevention services

Intermediate: 3 to 5 years

  • First Nations children are connected to their families and Indigenous communities

Ultimate: 5 years and beyond

  • The overrepresentation of First Nations children in care is decreased compared to the proportion of non-Indigenous children in care in the overall population of children in Canada
  • First Nations children are free from severe physical danger and harm

4. Eligible recipients

FNCFS agencies means an agency established by First Nations and delegated or authorized pursuant to provincial or other authorities to provide prevention or protection services, or both.

FNCFS service provider means a First Nation or a service provider authorized by one or more First Nations for the purposes of providing services to children, youth and families funded by the FNCFS Program, and includes FNCFS agencies.

First Nations:

  1. on reserve or in the Yukon that are recognized as Bands within the meaning of the Indian Act; and
  2. are not receiving funding through a federal funding transfer agreement for delivering children and family related services.
Eligible recipients Protection, Maintenance, and Care Funding
(s.5.1 & s.5.2)
Post-Majority Care
(s.5.2.1)
Prevention Funding
(s.5.3)
First Nation Representative Services Funding
(s.7)
First Nations No Yes Yes Yes
FNCFS agencies Yes Yes Yes No
FNCFS service provider (non-delegated) Yes, if authorized by First Nations pursuant to applicable child and family legislation Yes, if authorized by First Nation Yes, if authorized by First Nation Yes, if authorized by First Nation
Provincial and Yukon Governments directly providing child and family services Yes Yes No No

5. FNCFS: Eligible program activities

The following are the 4 eligible streams of activities:

5.1 Protection: Child protection, guardianship and support

The intention of protection funding is to ensure children and youth are safe, well, healthy, and living free of harm or child maltreatment, in the context of the provision of child and family services. Protection is not intended to be punitive and can be framed as a support to communities and families. Protection and prevention services are not mutually exclusive.

Child protection services are prompted when a child, ordinarily resident on reserve or in the Yukon, registered or entitled to be registered under the Indian Act, is identified as potentially being at risk of harm or maltreatment.

Protective child and family services must be delivered in accordance with the federal Act, provincial, territorial or First Nation legislation and standards, and are funded accordingly. As of January 1, 2020, service providers delivering these services must also comply with the national principles and minimum standards set in the Act.

Eligible services and activities include:

  • intake, assessment and investigation of child maltreatment reports, including after-hours services
  • intervention planning implementation and evaluation to address identified risks and promote protective factors
  • after hours and crisis line services
  • alternative dispute resolution services and proceedings, such as family group conferencing
  • legal fees associated to child and family services, or other legal fora
  • supervision orders
  • guardianship, voluntary and special needs custody agreements
  • adoption and customary care services
  • community and stakeholder engagement and education on child and family services and child maltreatment including associated risk and protective factors
  • placement development including recruiting, assessing, training, supporting, monitoring and evaluating care providers
  • placement services, community liaison and outreach
  • alternative care resource development, training, support and monitoring
  • services to support the delivery of culturally appropriate supports and intervention services
  • placement planning, development and implementation provisions, culturally-based standards that could be applied by First Nations for child welfare

5.1.1 Multi-year planning

Each FNCFS agency and service provider with an existing plan for child and family services can update this plan to outline agency/service provider's response to needs and priorities identified within the communities it serves, including how service delivery will be coordinated with other service providers, and contribute to the expected outcomes. The plans are intended to provide a better understanding of priorities and alignment with the First Nations needs over the medium-term and how to best support these priorities going forward. In light of the transitional nature of these terms and conditions, new plans would not be requested at this stage.

Eligible activities include:

  • community consultations and coordination to support the development, implementation and the delivery of child and family services
  • stakeholder, and community engagement and education
  • policy development to support the delivery of FNCFS programming
  • design of service and delivery models including staffing requirements
  • design, implementation and evaluation of change management
  • development and implementation of operational plans
  • strategic planning and implementation
  • negotiation and implementation of agreements
  • development, implementation and evaluation of service standards and outcomes
  • development and implementation of cultural services and supports
  • development, implementation and evaluation of emergency measures related to child, youth and family (for example, pandemic or natural emergencies that place children at higher risk of maltreatment or mental health crisis)

5.2 Maintenance and care

Child maintenance and care include the services associated to placing First Nations children into alternate care. Eligible activities and services are delivered in accordance with applicable legislation and standards and funded accordingly.

Canada shall fund at actual cost post-majority care to youth ageing out of care and young adults who were formerly in care up to and including the age of 25 across all provinces and in the Yukon.

The extension of care services is intended to support the successful transition of First Nations youth into adulthood and independence. Eligible activities include:

  • neurodiversity services such as special needs assessment and testing
  • placement, support and supervision for children and youth in alternate care while measures are taken with the family to remedy the situation, such as kinship, foster or group care, residential treatment, support for Elders and extended family members caring for children, independent living
  • family visitation, including parents, siblings and extended family members
  • services for children with behavioural problems
  • non-medical, time limited services
  • mental health or addiction services
  • direct services and supports not covered by First Nation and Inuit Health Branch (FNIHB) or other federal or provincial programs
  • other provincially approved professional services, including child representation and/or associated legal services, where funding from other sources was or will not be received, in whole or in part, to support that activity
  • formal customary care, adoption and post-adoption services
  • direct services to support a child's care plan
  • activities to meet the needs of children in care, including land-based or cultural activities
  • provision of child custody/guardianship
  • reunification of children and youth in, or formerly in, care with families on reserve or in the Yukon
  • extension of services to facilitate the transition of First Nations youth into adulthood toward self-care and independence

5.2.1 Post-Majority Care

Canada shall fund FNCFS services providers at actual cost for post-majority care to youth ageing out of care and young adults who were formerly in care, on the day they turned the age of majority, up to and including the age of 25 across all provinces and in the Yukon.

Eligible activities, as they relate to child and family services include:

  • operational and direct support services to implement a young adult's transition plan
  • direct services and supports not covered by First Nation and Inuit Health Branch (FNIHB) or other federal or provincial programs
  • other provincially approved professional services, including child representation and/or associated legal services, where funding from other sources was or will not be received, in whole or in part, to support that activity
  • neurodiversity services such as assessment and testing
  • psychological and diagnostic testing and assessment
  • supports that assist First Nation youth transition into adulthood and independence, housing, food security, health and wellness activities and supports, life skills development, education activities or assistance, community and cultural (re)connection and assistance to establish family and social relationships and self-care supports
  • needs-based financial support (budgeting, credit, money management)
  • equitable funding to meet basic needs and access clothing and hygiene items
  • livable basic income based on local realities and inflation
  • financial literacy programs, planning and access to financial advisors
  • financial costs and support to acquire various forms of identification (birth certificate, government ID, passports)
  • financial cost and support for driver's permit and driver's education
  • education mentorship and support, including education related costs
  • assistance to navigate education systems and options
  • professional development and skills training, and/or career path planning, tutoring and career counselling
  • technology required for education
  • financial support for training/certifications (i.e. first aid, food safe, childcare)
  • rent and rent subsidies
  • interim housing options during transition of youth to independence
  • supports in viewing housing, guidance, transportation, housing related skills training
  • moving costs and support
  • basic household necessities, including home repairs
  • basic household utilities, including internet connectivity and clean water
  • life/home skills including in home supports (i.e., cooking, housekeeping, planning, life coaching)
  • clothing including clothing required for employment
  • personal care and hygiene including menstrual supplies
  • non-insured medical, dental and allied health services prescribed by relevant professional
  • sexual and gender identity health supports, i.e. education related to sexually transmitted diseases, sexual health
  • funding to ensure consistent access to holistic health services, transportation to and from, support navigating health systems
  • counselling and support including support for family violence
  • trauma informed mental health and addictions support options
  • early intervention and parenting services for youth expecting a child or who have dependents, if needed
  • nutrition training, mentorship re: groceries, meal planning
  • access to physical activity, recreation and sport
  • rehabilitative supports, when required
  • mentorship and peer supports
  • family mediation and counselling
  • safe reintegration into community and culture of origin, including visits to community of origin
  • cultural programs, regalia and ceremony, land-based wellness
  • support and guidance from Indigenous Elders and Knowledge Keepers, traditional knowledge

5.3 Prevention

Canada shall, as of April 1, 2022, fund prevention/least disruptive measures at $2,500 per person resident on reserve and in the Yukon in total prevention funding in advance of the complete reform of the FNCFS Program funding formulas, policies, procedures and agreements. Canada shall fund the $2,500 on an ongoing basis adjusted annually based on inflation and population until the reformed FNCFS Program is fully implemented. This amount will provide a baseline for the prevention element in the reformed FNCFS Program pursuant to paragraph 1 of the Consent Order.

Flexibility will be provided on the implementation for First Nations governments and FNCFS agencies not ready on the start date, which will require more time due to exceptional circumstances that will be further defined with the parties. Funds will be directed to the First Nations and/or First Nations child and family service providers(s) responsible for the delivery of prevention services. These funds shall be eligible to be carried forward by the First Nation and/or First Nations child and family service providers(s).

The development and delivery of prevention services to support the safety and well-being of First Nations, children, youth, young adults, families and communities, in an approach that is culturally appropriate, in their best interests, and in accordance with substantive equality.

Prevention services including at the primary, secondary or tertiary levels, are evidence-informed and culturally-appropriate, address identified risk factors, and build protective factors within families and communities. Prevention is a continuum of care that is based on the needs of the child and interventions can be included at all stages of prevention. Stages of prevention are not mutually exclusive.

Prevention projects or activities also support the implementation and operationalization of the minimum standards and principles laid out in The Act, as well as projects and activities intended to build a greater evidence for culturally specific supports or intervention.

In promoting positive outcomes, child and family service programming may focus on building up a child, youth, young adult, or family's sense of purpose, optimism and hope, resilience, confidence, and agency.

5.3.1 Primary Prevention

Primary prevention services are aimed at the community as a whole. A community centered approach to prevention programming could include the ongoing promotion, public awareness and education of traditional child caring approaches, healthy families and child development. Activities could include those that enhance protective factors at a community-level, and help to create the network that supports family retention and healing, cultural engagement, connection, and a sense of belonging.

Eligible activities for primary prevention for the purpose of supporting the best interests of the child and substantive equality, could include:

  • classes, workshops and outreach to improve family preservation and well-being, for example:
    • domestic violence healthy relationships, sexual education, and anger management awareness
    • culture, language, and nutrition classes for parents and teen parents
    • parent education programs to enhance family preservation and well-being such as nurturing adult-child relationships
    • community outreach and awareness campaigns on child maltreatment, children's rights, prevention and how and where to report suspected child maltreatment
    • financial management and independent life skills
  • after hours and crisis/help line services (including chat, virtual)
  • well-being services, including cultural and recreational activities, that support children and families at risk in the home and community
  • coordination efforts with other relevant federal or provincial sectors or programs including addictions and mental health, income support, housing and domestic violence to support community wide information and awareness sessions

5.3.2 Secondary prevention

Secondary prevention services are activated when a child may be at risk of harm or child maltreatment and where intervention could enhance protective factors and remediate the risk.

Secondary prevention programming could include services that establish and build on secure and responsive social relationships between children and caregivers, and support parents in meeting their family's developmental, health, educational, social, cultural, and spiritual needs.

Eligible activities for secondary prevention for the purposes of supporting the best interests of the child and substantive equality, could include:

  • group interventions or supports
  • home visit programs for parents
  • parent mentoring, parenting skills programs, in-home supports, respite care
  • family counseling, guidance and assessment
  • addictions treatment for parents as an alternative to taking children into care or as part of a plan for family reunification
  • addictions treatment for youth as part of a plan for family remediation
  • mediation and alternative resolution disputes
  • coordination and references to other providers related to wrap-around services and interventions to ensure a coordinated approach based on identified needs including income support, housing, addictions and mental health
  • cultural and recreational activities for children and youth at risk
  • services to support reunification and repatriation of children and youth with families on reserve or in the Yukon, including maintaining and enhancing community connections

5.3.3 Tertiary prevention

Tertiary prevention services target specific families when a child has been identified as at risk of harm or child maltreatment. Tertiary prevention attempts to mitigate the risks of separating a child from their family and end the crisis. Targeted, least disruptive interventions and measures refer to the most appropriate level of service needed by a family whose child(ren) is/are at risk of harm or maltreatment or where maltreatment has taken place.

Tertiary prevention programming could include services that provide increased support and/or targeted services with the intention that intervention will enhance protective factors and promote positive outcomes.

Eligible activities for tertiary prevention for the purposes of supporting the best interests of the child and substantive equality, could include:

  • immediate crisis interventions that are identified on the basis of the child's best interest including cultural, communal and other activities to build self-esteem and healing.
  • domestic violence interventions
  • intensive family preservation services
  • restorative intervention services
  • mental health and addictions treatment for parents as an alternative to taking children into care or as part of a plan for family reunification
  • mental health and addictions treatment for youth as part of a plan to remediate risk and promote family wellness

6. FNCFS: Eligible expenditures

Protective child and family services must be delivered in accordance with applicable legislation and standards, and are funded accordingly. Eligible expenditures are considered the costs necessary to operate, deliver and support the provision of child and family services and activities in the best interests of the child and in accordance with substantive equality outlined in section 5.

6.1 Capital

Capital expenditures are funded in accordance with the Tribunal's orders (2021 CHRT 41) to support infrastructure and capital required to support the delivery of child and family services (as listed in Section 5 above) to First Nations children, youth and families on reserve and in the Yukon. Regarding the purchase and sale of capital assets and buildings, the FNCFS terms and conditions are consistent with those outlined in the applicable program directive.

6.2 Protection

Eligible expenditures include:

  • staff salaries and benefits to support the direct delivery of protection services and post majority services
  • employee assistance program costs
  • staff travel and transportation
  • staff recruitment, training and professional development costs (training, workshops)
  • costs supporting orientation and training of local committees
  • costs to support board and committee operations
  • honoraria for Elders and Knowledge Keepers
  • interpretation costs including cultural and First Nations language supports to ensure the delivery of culturally appropriate services
  • paraprofessional and professional fees
  • legal fees associated to child and family services, or other legal fora
  • costs related to supervision orders
  • after hours and crisis intervention supports
  • placement development such as recruiting, assessing, training, supporting, monitoring and evaluating care providers
  • costs to support the governance and central administration functions (administrative overhead and costs) such as office lease, computer and IT, utilities, insurance and janitorial and ground maintenance services to support the delivery of services
  • maintenance such as general repairs, painting, plumbing, electrical
  • professional dues and subscriptions, licenses, memberships, insurance fees, etc.
  • costs related to development or purchase, implementation and evaluation of client information management and technology systems, data collection, data management and analysis
  • costs to support the development and implementation, audits, monitoring, program evaluation
  • provisions to ensure privacy, security and proper management of records
  • incorporation costs and incorporation reporting costs including annual general meetings

6.3 Care and maintenance

Care and maintenance expenditures are the direct costs of placing First Nations children into temporary or permanent care out of the parental home, including foster care rates and group home rates. Eligible expenditures support services delivered in accordance with the applicable legislation and standards, and are funded accordingly.

Canada shall fund at actual cost post-majority care to youth ageing out of care and young adults who were formerly in care up to and including the age of 25 across all provinces and in the Yukon.

Eligible expenditures include:

  • allowance for assessment
  • placement development costs, such as recruiting, assessing, training, supporting, monitoring and evaluating care providers
  • direct costs and supports related to a child's care plan
  • costs to support children in alternative care
  • purchases on behalf of children in care
  • special needs assessment and testing costs
  • non-medical services to children with behavioural problems
  • non-medical, limited-duration services
  • direct costs for a child to support services not covered by FNIHB or other federal or provincial programs
  • other provincially approved, professional services and costs, including child representation and associated legal fees, where funding from other sources was not and will not be received in whole or in part to cover the costs
  • costs to support the establishment and maintenance of Registered Education Saving Programs when necessary to comply with provincial legislation or policy
  • costs to support formal customary care and adoption
  • post-adoption subsidies and supports
  • costs to support the provision of child custody or guardianship
  • costs to support activities to meet the needs of children in care, including land-based or cultural activities and equipment
  • costs to support First Nations youth, up to and including age 25, transition into adulthood and independence, including placement or living arrangements, mental health supports, housing assistance, health and wellness activities and supports, life skills development, education activities or assistance, community and cultural (re)connection and assistance to establish family and social relationships and self-care supports
  • costs to support the reunification of children and youth in care with families on reserve or in the Yukon
  • costs related to family preservation, cultural and linguistic connections and supports to ensure the provision of inclusive and impartial child and family services including needs related to disability, sexual orientation, gender diversity and other characteristics protected by law

6.3.1 Post-Majority Care

Eligible expenditures include:

  • staff salaries and benefits to support the direct delivery of post-majority care services
  • employee assistance program costs
  • staff travel and transportation
  • staff recruitment, training and professional development costs (training, workshops)
  • costs to support the central administration functions (administrative overhead and costs) such as office lease, computer and IT, utilities, insurance and janitorial and ground maintenance services to support the delivery of services
  • maintenance such as general repairs, painting, plumbing, minor electrical
  • interpretation costs including cultural and First Nations language supports to ensure the delivery of culturally appropriate services
  • legal fees associated to child and family services, or other legal fora
  • after hours and crisis intervention supports
  • professional dues and subscriptions, licenses, memberships, insurance fees, etc.
  • costs related to development or purchase, implementation and evaluation of client information management and technology systems, data collection, data management and analysis
  • costs to support the development and implementation, audits, monitoring, program evaluation
  • provisions to ensure privacy, security and proper management of records
  • incorporation costs and incorporation reporting costs including annual general meetings
  • costs to support eligible First Nations young adults transition into adulthood and independence, housing assistance, health and wellness activities and supports, life skills development, education activities or assistance, community and cultural (re)connection and assistance to establish family and social relationships and self-care supports

6.4 Prevention

Eligible expenditures include:

  • salary & benefits to support the delivery of prevention services
  • costs related to supporting recruitment, training or professional development of prevention workers
  • honorariums for Elders and Knowledge Keepers
  • professional and paraprofessional services and professional fees
  • professional dues and subscriptions, licenses, memberships, etc.
  • general program delivery costs
  • non-medical travel costs and accommodations to support the delivery of services
  • court related costs for families
  • travel or other costs, including addictions treatment to support the reunification and repatriation of children or youth in care or formerly in care with families on reserve or in the Yukon
  • costs to support governance and the central administration functions (administrative overhead and costs) such as office lease, computer and IT, utilities, insurance and janitorial and ground maintenance services to support the delivery of prevention services
  • program costs and assistance to support specific needs for children, youth, and families at risk of becoming involved with the child and family services system and those already involved in the child and family services system:
    • episodic or emergency supports to assist caregivers in meeting children's and caregivers' basic needs
    • assistance for children and families to support and facilitate the maintenance and enhancement of community connections by coordinating access to culture and language programs, including one-on-one assistance to strengthen families
    • costs supporting an extension of services for youth transitioning out of the child welfare system to adulthood that are complementary to, and not covered under the provincial or territorial legislation
    • costs and supports to ensure impartial provision of child and family services for persons with distinct identities and characteristics protected by law such as persons with disabilities or 2SLGBTQQIA+ people

7. First Nation Representative Services: Eligible project activities and expenditures

The FNCFS program supports the functions of First Nations Representative Services when it relates to First Nations child and family service matters, including the representation and advocacy of the children's rights and collaboration with other service providers to ensure the best interest of the child.

"First Nations Representative Services" means the services delivered by a First Nation or an entity authorized by a First Nation that provide for a First Nation's participation in child and family services and child welfare processes involving its members, and which are funded under the FNCFS Program. Footnote 1

First Nations Representative Services will be funded in accordance with the applicable guide. Funding is intended to account for First Nation-derived FNRS mandates, the cultural needs of a child; and the need for First Nations to participate in the development a child's plan of care. Eligible activities may include:

7.1 Capital

Funding for capital assets will be available to support the immediate needs for the delivery of First Nations Representative Services on reserve. Eligible costs could include the acquisition or new construction of a building, lot servicing, or expansion to the existing office or program space aimed to support the delivery of services. Capital project development, preliminary work and assessment leading up to the completion of the capital project are also eligible. Regarding the purchase and sale of capital assets and buildings, the FNCFS terms and conditions are consistent with those outlined in the applicable program directive.

7.2 Eligible expenditures

Eligible expenditures support the activities listed above and include:

  • salaries, benefits, and costs to support the delivery of services
  • human resources recruitment, training or professional development including daily honorariums for Elders and Knowledge Keepers
  • paraprofessional and professional fees (such as legal services, professional dues and subscriptions, licenses, memberships, etc.)
  • general program delivery costs such as non-medical travel costs, accommodations, transportation, or meals for First Nations Representatives to support the delivery of services
  • program delivery costs and family support services including supporting specific needs for children, youth, and families at risk of becoming involved with the child and family services system and those already involved in the child and family services system. These include the following:
    • episodic or emergency supports to assist caregivers in meeting children's and caregiver's basic needs (child essentials of life such as food, diapers, clothing, cleaning or hygiene supplies, bedding and towels, children's furniture, car seats, etc.)
    • supports to caregivers involved with FNCFS service providers or Provincial/Yukon Child and Family Service Agencies, such as parental capacity assessments and related travel costs (when not covered by the delegated agency or FNIHB)
    • assistance for children and families to support and facilitate reunification, repatriation, maintenance and enhancement of community connections by coordinating access to culture and language programs, including one-on-one assistance to strengthen families
  • overhead, administrative costs such as office rent, computer and IT, utilities, insurance to support the delivery of First Nation Representative Services
  • acquisition or new construction of a building, lot servicing, or expansion to the existing office or program space aimed to support the delivery of First Nation Representative Services
  • Capital project development, preliminary work and assessment leading up to the completion of the capital project

Capital expenditures are to be funded in accordance with 2021 CHRT 41 to address immediate capital needs to support the delivery of First Nation Representative Services.

8. Application requirements and assessment criteria

Before entering into a contribution agreement, ISC will confirm its authorities to enter into an agreement with the recipient and to fund the proposed activities. The departmental review procedures for verifying eligibility, entitlement, and application approval (including risk assessments) are detailed in relevant departmental program directives and procedures.

Specific requirements include:

9. Method for determining the amount of funding

9.1 Retroactivity

Eligible capital assets as set out in the Tribunal's orders will be funded in accordance with 2021 CHRT 41 as of August 26, 2021 until such time as a new funding process is developed for the program.

9.2 FNCFS Service Providers

Pursuant to 2018 CHRT 4 and 2021 CHRT 41, until a new funding methodology is developed, the government is funding FNCFS agencies on actual costs for intake and investigation, legal fees, building repairs, the child service purchase amount and for small agencies, and the full cost of capital to support the delivery of child and family services and First Nation Representative Services under the program.

Pursuant to 2022 CHRT 8, the Tribunal amended the orders on actual costs to reflect that, as of April 1, 2022, prevention/least disruptive measures will be funded at $2,500 per person resident on reserve and in the Yukon in total prevention funding in advance of the complete reform of the FNCFS Program funding formulas, policies, procedures and agreements. Canada shall fund the $2,500 on an ongoing basis adjusted annually based on inflation and population until the reformed FNCFS Program is fully implemented.

9.3 First Nation Representative Services

Until March 31, 2023, if a First Nation in Ontario has demonstrated that its initial allocation has been fully expended, the First Nation may access additional funding for First Nations Representative Services in accordance with 2018 CHRT 4 paragraph 427.

10. Maximum amount payable

The program's funding methodology is being reformed as per the orders from the Tribunal. While the department has a temporary exception to item 8 of Appendix E of the Directive on Transfer Payments, from an operational perspective, the maximum amount payable is currently considered to be the full eligible cost of the claim of actual eligible expenditures approved by ISC, meets the reasonableness requirements included in Section 11 (Basis for Payment). Once the revised funding methodology has been established, and studies completed, the department will return to the Treasury Board with a maximum amount payable that adheres to the Policy on Transfer Payments.

11. Basis for payment

Payments will be made in accordance with federal policies as reflected in the contribution agreement, including the funding approach and conditions of payment principles. The department shall offer fixed or flexible funding to Indigenous recipients, in accordance with Appendix K of the Directive on Transfer Payments.

The reasonableness of a particular cost will be established by determining whether the expense is consistent with the CHRT legal orders and was reasonable to ensure substantive equality and the provision of culturally appropriate services, given the distinct needs and circumstances of the individual child or family, and community including their cultural, historical and geographical needs and circumstances.

Notwithstanding the above, costs for maintenance will continue to be reimbursed based on actual eligible costs incurred. In addition, the department will fund as required pursuant to CHRT orders, the following expenses when agencies have not already received funding through another federal program (including another program of ISC), or any provincial, territorial or municipal government funding source for that activity:

In accordance with the Treasury Board of Canada Secretariat's Policy on Transfer Payments, advance payments are permitted, based on a forecast cash flow provided by the recipient and supported by the community plan. Progress payments will be subject to periodic reviews of activities and expenditures reports, as specified within the contribution agreement, which will be reviewed and validated by the department. Officials will ensure that all applicable requirements are met prior to processing a payment.

Holdback requirements, when applicable, will be determined based on risk assessment (i.e. general assessment of the recipient) and may be up to 20% of the total contribution. This provision is not applicable to the funding of actuals and cannot lead to the Program not upholding the CHRT orders. Final payment will be contingent on the receipt by the department of the final activity, performance, and financial reports, as specified in the contribution agreement.

Funding under the FNCFS program is targeted and cannot be used for any other purposes.

12. Stacking limits

The purpose of the clause is to promote the balance of the intended use of funds, while empowering FNCFS providers to leverage funds from multiple sources and support the goals of FNCFS providers in the delivery of programs and services.

The stacking limit is the maximum level of funding to a recipient from all sources (including federal, provincial, territorial, and municipal) for any one activity, initiative or project. The limit is 100% of eligible costs. The stacking limit will not be triggered in the case of retroactive payments ordered by the CHRT to rectify discriminatory underfunding.

It is important to note that compensation arising from the Canadian Human Rights Tribunal or the class actions (Federal Court file numbers T-402-19, T-141-20, and T-1120-21), the Children's Special Allowance or other federal child benefits, and First Nations own source revenue, are not to be considered as a source of revenue for stacking purposes.

13. Performance measurement and reporting

Data will be collected by recipients using various methods and sources, and will meet requirements set out in the reporting guide. Frequency of financial and performance reporting will be specified in the contribution agreement. All recipients will be required to report at least annually.

13.1 Performance measurement

To ensure that a balanced approach is implemented and that the reporting burden is minimized, a reliable performance data collection, analysis and reporting methodology is being developed that will meet the respective needs of the recipients, the communities, the provinces, Yukon, and the department.

The methodology will be developed collaboratively with the parties to the CHRT complaint, the National Advisory Committee, and other partners as appropriate, including the provinces or Yukon. Funding recipients will be required to provide the department only the performance data required to demonstrate performance and achievement of program outcomes.

Until the methodology is finalized and implemented, data will continue to be collected by recipients using various methods and sources and will meet requirements set out in the reporting guide.

The frequency of financial and performance reporting will be specified in the contribution agreement, but all recipients will be required to report at least annually on the applicable plan for Child and Family Services. Financial reviews will be conducted to ensure each recipient submits financial reports in accordance with its contribution agreement specifications. An annual audited financial statement will be required in all cases.

13.2 Financial reporting

Financial reporting requirements will be determined based on the recipient's risk assessment and the type of contribution agreement. Appropriate financial reporting obligations, including frequency, will be contained within each contribution agreement.

As per the department's Management Control Framework, annual reviews will be undertaken to ascertain whether funds provided are being expended for the purposes intended, and whether a recipient's financial situation is sufficiently stable to enable continued delivery of funded activities. Where any instability is due to the department's funding structures or levels of funding, the department will take appropriate measures to mitigate and remediate these risks. The department will respect privacy laws and regulations respecting the First Nations child and family service records of children, youth and families.

14. Official languages

Where a program supports activities that may be delivered to members of either official language community, which means where there is significant demand, the recipient is required to provide access to services in both official languages. In addition, the department will ensure that the design and the delivery of programs respect the obligations of the Government of Canada as set out in the Official Languages Act.

15. Redistribution of contributions

Recipients may redistribute contributions, as per the terms of their contribution agreement. Redistributions should be done in line with program objectives, eligibility criteria and eligible expenses. In doing so, however, recipients will not act as agents of the federal government.

Where a recipient further distributes contribution funding to another service delivery organization (such as an authority, board, committee, or other entity authorized to act on behalf of the recipient), the recipient will remain liable to the department for the performance of its obligations under the contribution agreements. Neither the objectives of the programs and services nor the expectations of transparent, fair and substantively equivalent services will be compromised by any redistribution of contribution funding.

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