It all depends on the program and the nature of it, but, in brief, a minister proposes something, sponsors the proposal, so to speak, which would have been developed by public servants with input, again depending on the case, from stakeholders.
Again, going back decades, governments of all stripes have engaged with stakeholders through their own political offices and, through public servants, have received proposals and have asked for proposals. It is a very dynamic process. That will result in a proposal that public servants will sign off on. It will typically go to a committee of cabinet for scrutiny, and then, if the recommendation is positive or even if it is disputed but still has life, it will go to full cabinet for ratification. Different governments will vary the process somewhat according to the procedures that the head of the government puts in place, but, generally speaking, that is the process that is followed.
During the COVID pandemic there have been amendments to the process. There has not always been the luxury of time. Cabinet, of course, was meeting less frequently than it normally would. The COVID committee, which is an ad hoc committee chaired by the deputy prime minister, was meeting far more regularly than any committee normally would.
So there were variances related to the nature of the crisis, but, in general, that would be the process.