Mr. Speaker, it is an honour to lead off second reading debate on this important piece of legislation. This legislation results from an extensive review of the existing Export Development Act and of the activities of the corporation it governs, that is the Export Development Corporation or what we commonly call EDC.
The bill contains specific amendments that flow from a comprehensive review process which began in 1998 and brings a balanced approach to change at EDC. This legislation also complements other policy direction from government, as well as changes that have been initiated by EDC since the review process got under way.
It is fair to say that the period leading up to this legislation has seen the most thorough review of Canada's export financing activities that has ever been undertaken. The broad based review included public consultations, parliamentary committee recommendations, and advice and recommendations from many other experts, stakeholders and independent observers.
The bill now before the House is a product of a focused discussion on what is best for Canada in the intensely competitive world of international trade as well as a thorough examination of how best to reflect Canadian values in our dealings with other countries.
A key feature of the bill is a new statutory requirement for the environmental review of projects being considered for EDC support. This is a significant change that positions Canada in the forefront of the international community in efforts to more closely link export credit activities and environmental impacts. The bill also includes other statutory changes that provide the necessary legal basis for a number of operational changes at EDC.
Bill C-31 fulfills a commitment made by the Minister for International Trade last June. At that time the minister announced important policy changes for Canada's export credit agency. He said he would introduce enabling legislation this fall. Bill C-31 completes the package by providing the necessary legal basis for change.
The minister's June announcement was based on conclusions that came out of the review process I mentioned a moment ago. To understand how the amendments we are debating today flow from the review, it is useful to understand something of the process itself.
As members may know the Minister for International Trade, in consultation with the Minister of Finance, is legally required to periodically review the act under the terms of the act itself. This requirement stems from changes that were made to the act in 1993 by the parliament of the day.
Those changes include a significant expansion of the commercial mandate of the Export Development Corporation so that it could fill perceived gaps in the private sector financial services market or more actively support the international financing needs of Canadian exporters.
These changes proved to be very effective. The corporation's financial support to Canadian exporters grew from about $12 billion in 1993 to more than $45 billion last year. In that time Canadian businesses have expanded their market reach all over the world.
Today exports account for over 40% of our GDP. Approximately one-third of our jobs are directly dependent on our success in export markets.
It is clear that the Export Development Corporation is a key part of our country's success in export markets. The EDC has demonstrated its value to Canada by filling gaps in the private sector's financial services, by reaching out to bring more small and medium size businesses into the export marketplace, by providing needed financial support to Canada's customers in developing countries, and overall by ensuring that Canadian exporters have access to the kind of financing that will keep them competitive with exporters from other countries.
Due to the fact that the EDC plays such a key role in our country's trade development strategy, we must ensure that it will continue to meet the competitive financing needs of Canadian exporters, and especially the small and medium size businesses that are the backbone of our economy and the main creators of jobs throughout Canada.
This need has become even more important as economic conditions around the world have tightened and market conditions for Canadian exporters have become even more competitive. At the same time EDC's operating policies and financing activities must reflect Canadian values in areas of corporate social responsibility, the environment, human rights, public accountability and transparency.
As legislators our public policy challenge is to find a balance between the twin priorities of international business competitiveness and corporate social responsibility. Bill C-31 helps to do just that. It also complements other initiatives to bring about a balanced approach to change at EDC.
For example, taken together with earlier policy guidance provided by the Minister for International Trade, the bill builds on a process of change at EDC that has benefited from the extensive public review process which took place over the past three years.
The first step in the process was the commissioning of a consultant study in 1998 undertaken by the well known law firm Gowlings. The Gowlings team undertook a comprehensive study of the Export Development Act as well as the corporation that the EDC governs. Gowlings also assessed Canada's export plans and needs within the international policy environment including extensive stakeholder consultations as well as detailed surveys and independent research.
Gowlings found that EDC enjoyed a very positive reputation in the Canadian export community. EDC is highly regarded as a Canadian success story by both its customers and its competitors.
EDC has gone out of its way in recent times to widely survey its clients. There is a tremendous level of satisfaction with the service that it delivers. I frequently hear from constituents and major companies in my riding about how important is the help and work of EDC.
I cite General Motors Defence of London, Ontario, as a good example. It is very appreciative of the efforts of EDC in the export work that it does. Some 80% of General Motors sales are in the export market.
The Gowlings report also raised concerns. It said that EDC's project financing decisions might not give proper regard to the potential environment in human rights impacts in other countries. Among Gowlings' recommendations were proposals to improve accountability on environmental and human rights matters.
The Gowlings report was tabled in parliament in July 1999 and referred to the Standing Committee on Foreign Affairs and International Trade, or SCFAIT, as well as to the Senate banking committee. Both committees held hearings, heard from witnesses and produced reports for the government's consideration.
The Senate banking committee focused on the relationship between EDC and other Canadian financial institutions. The committee's report recommended a form of private export credit guarantee that is now being studied. SCFAIT's review was more wide ranging. Through a series of hearings and round tables a broad range of advocates from both business and public interest groups as well as many other experts were heard from. Many written submissions were also received by the committee.
In his report to parliament SCFAIT's chair noted the challenge of addressing and balancing two sets of public policy objectives through EDC. On the one hand he said EDC must be open and accountable so that Canadians can ensure that it reflects their values in its dealings with other countries. On the other hand Canadian exporters must have continued access to the kind of financial services that are vital to their competitive position internationally.
The SCFAIT report offered recommendations to achieve this balance. An overarching recommendation was a proposal to amend the Export Development Act so that EDC supported activities would deliver both economic benefits to Canadians as well as meet Canada's international commitments and obligations, particularly those related to environmentally sustainable development and human rights.
Bill C-31 follows up on the spirit of that key recommendation. The Auditor General for Canada has also provided advice on EDC that the government has found helpful and that is relevant to the bill before us.
Last year, in response to a request from the government, the auditor general studied the environmental review framework that EDC had introduced earlier. EDC brought in its own environmental review process in 1999 but public concerns had been raised about its rigor and clarity. The government wanted the auditor general to examine the suitability of EDC's environmental review framework and to assess its performance in implementing it.
The auditor general delivered her report in May of this year. She concluded that EDC's environmental framework contained “most elements of a suitably designed environmental review process”. This was a useful finding. It indicated that EDC was on the right track with its approach to environmental review.
However, the auditor general also identified a shortcoming when she cited a significant difference between the design of EDC's environmental framework and its operation. Although she concluded EDC was on the right track with its approach to environmental review, she also signalled that its operating policies and procedures needed to be improved.
Following on this report, the Minister for International Trade provided a clear set of guidelines to the corporation for the management of its environmental review practices.
EDC has taken to heart the advice it has received and is currently engaged in wide public consultations aimed at strengthening its environmental review framework. In a related move, the corporation is also bringing in a new disclosure policy as a follow up to stakeholder consultations.
It is important to note that the debate on whether or not an environmental review of EDC projects is needed is over. Everyone feels that it is needed. Representatives of both the business sector and public interest groups agree on the need for environmental review. With this bill, the government is using the Export Development Act to provide a statutory basis for an environmental review process at EDC. The next step is for the corporation's board of directors to develop a directive to make the objectives and the expectations of the review process clear and workable.
EDC is now at work to develop a more rigorous environmental review process, one that will meet both economic and social responsibility objectives and one that will have the force of law as proposed by the bill. This move to a statutory requirement for the environmental review of EDC projects is a significant step forward by Canada on the world stage.
A number of other countries, notably OECD member countries, are now looking at measures that would require their national export credit agencies to carry out environmental reviews of projects being considered for support. With this bill, Canada will be among the first to make environmental review of such projects a matter of law.
At the same time, the statutory approach presented in Bill C-31 does not put Canada out of step with emerging trends and developments in other countries. For example, some Canadian public interest groups have argued in favour of bringing EDC's environmental review activities under the authority of Canada's Environmental Assessment Act. However this approach would be inconsistent with developments that are underway elsewhere within the international community, including in the OECD, where most of our export market competitors are found.
In other words, the bill positions Canada as a leader in the international move to higher standards for the environmental review of export agency finance projects. However, it does it in a way that will not put Canadian businesses at a competitive disadvantage to exporters from other countries. This is a key point. It is a further illustration of the need to find a realistic and practical approach to balanced change at EDC.
The bill also proposes some administrative amendments to the existing act. For example, the bill proposes a change in the corporation's legal name to Export Development Canada in English and Exportation et Développement Canada in French. This means the acronym EDC will be the same in both of our official languages.
This change simply reflects the reality of everyday business usage by EDC's clients. It will also allow the corporation to build on its very positive EDC brand name in Canada and abroad. I might add that by having the name of our nation, Canada, in its title, it obviously would play very successfully on the tremendous goodwill throughout the international community that we as Canadians experience every time we travel anywhere in the world. I know Canadians from all walks of life share that experience.
Other changes include: an amendment to enable the board to delegate powers and duties to committees that it may establish. This reflects modern business management practice and is consistent with practices followed elsewhere in both the public and private sectors.
An amendment to exempt EDC's activities from the provisions of the Canadian Environmental Assessment Act. This amendment is included to avoid the potential for duplicate environmental reviews in cases when EDC may be involved in partnership with another organization that is subject to CEAA.
An amendment to enable the EDC board to establish a pension plan for officers and employees of the corporation. This amendment speaks for itself.
Finally, I want to comment on the amendment that would require the auditor general to audit the design and implementation of EDC's environmental review process at least once every five years. This too is a key measure. It ensures that EDC will remain publicly accountable for its environmental review performance. I also note that the Minister for International Trade has asked the auditor general if her first audit could take place after only two years. This is not required but the minister has been very proactive in putting forward this proposal, and should be applauded for it. It shows how seriously the minister and the government view this entire initiative in showing environmental accountability.
The amendment to require EDC's board to establish a directive to determine whether a proposed project is likely to have adverse environmental effects should be welcome news for those who want legal force for environmental review at EDC.
The amendment to require the auditor general to audit the design and implementation of that review process should be good news too. It means that EDC's environmental review performance will remain subject to the scrutiny of the auditor general, an officer of parliament who is independent of the board, or for that matter of the government.
To conclude, EDC is a vital part of Canada's export development efforts. Businesses, large and small, all across Canada depend upon the corporation to provide the financial services they need to be successful in the intensely competitive international marketplace. I have cited already the example brought to me repeatedly by my friends at General Motors Defense in London, Ontario.
At the same time, as a crown corporation, EDC must reflect Canadian values in its policies and operations. Environmental review is an essential aspect of that. The bill would provide statutory force to this key area of corporate social responsibility.
To sum up, there are three basic reasons why the House should support the bill. It facilitates the continuing process of change toward a stronger and more effective EDC. It brings the force of law to the environmental review of EDC projects. It ensures that the auditor general, on behalf of the Canadian public, will continue to monitor and report on EDC and its environmental review performance.
I would urge all my colleagues in the House to support the legislation.