We have no way to judge that. The one way in which departments could, while respecting Parliament's authority, move ahead on some initiatives is if they were working within a vote that did not name the activity. For example, for a grant and contribution, you can't come up with a new grant and contribution without coming to Parliament. No department is legally spending on a new grant and contribution that's not listed. So I believe this doesn't happen, period.
On February 26th, 2007. See this statement in context.