Consolidated financial statements

Public Accounts of Canada 2023 Volume I—Top of the page Navigation

• Previous page: Auditor General of Canada—Independent Auditor's Report
• Section 2: Table of contents: Section 2: Consolidated financial statements of the Government of Canada and report of the Auditor General of Canada

Notes to the consolidated financial statements of the Government of Canada

1. Summary of significant accounting policies

Reporting entity

The reporting entity of the Government of Canada includes all of the government organizations which comprise the legal entity of the government as well as other government organizations, including Crown corporations, which are separate legal entities but are controlled by the government. For financial reporting purposes, control is defined as the power to govern the financial and operating policies of an organization with benefits from the organization's activities being expected, or the risk of loss being assumed by the government. All organizations defined as departments and as Crown corporations in the Financial Administration Act are included in the reporting entity. The definition of control for financial reporting purposes may be met by other organizations not listed in the Financial Administration Act, these organizations are therefore included in the government's reporting entity if their revenues, expenses, assets or liabilities are significant.

Some Crown corporations and not-for-profit organizations rely on the government for a portion of their financing. Examples of consolidated Crown corporations that received significant funding from the government include Atomic Energy of Canada Limited, Canada Infrastructure Bank, Canadian Air Transport Security Authority, Canadian Broadcasting Corporation, Windsor-Detroit Bridge Authority and VIA Rail Canada Inc. The consolidated not-for-profit organizations that receive significant funding are the Canada Foundation for Innovation and the Canada Foundation for Sustainable Development Technology. The financial activities of all of these entities are consolidated in these financial statements on a line-by-line and uniform basis of accounting after eliminating significant inter-governmental balances and transactions. Detailed information on the consolidated entities is included in Section 4 (unaudited) of this volume.

Enterprise Crown corporations are government business enterprises able to raise substantial portions of their revenues through commercial business activity and are therefore considered self-sustaining. The major enterprise Crown corporations include the Bank of Canada, Canada Mortgage and Housing Corporation, Canada Post Corporation and Export Development Canada. In addition, there are a number of self-sustaining government business enterprises that are not Crown corporations but which are controlled by the government. These include various Canada Port Authorities. Investments in government business enterprises are recorded under the modified equity method. Detailed information on the enterprise Crown corporations is included in Section 9 (unaudited) of this volume.

The Canada Pension Plan (CPP), which includes the assets of CPP under the administration of the Canada Pension Plan Investment Board, is excluded from the reporting entity because changes to CPP require the agreement of two thirds of participating provinces and it is therefore not controlled by the government.

Basis of accounting

These consolidated financial statements are prepared using the government's accounting policies stated below, which are based on Canadian public sector accounting standards. The presentation and results using the stated accounting policies do not result in any significant differences from Canadian public sector accounting standards.

Foreign currency translation

Transactions involving foreign currencies are translated into Canadian dollar equivalents using rates in effect at the time of the transactions. Monetary assets and liabilities denominated in foreign currencies are translated using rates at March 31. The government has elected to recognize gains and losses resulting from foreign currency translation, including those arising prior to settlement or derecognition of the financial instrument, directly on the Consolidated Statement of Operations and Accumulated Operating Deficit for all financial instruments. Net exchange gains and losses are reported according to the activities to which they relate. Net exchange gains and losses relating to the foreign exchange accounts, foreign debt, swaps and foreign exchange forward agreements revaluations are presented with investment revenues from foreign exchange accounts under net foreign exchange revenues. Net exchange gains and losses relating to loans, investments and advances are presented with the return on investments from these loans, investments and advances under other revenues. Net exchange gains and losses relating to transfer payments are reported in the transfer payment expenses under other transfer payments. Net exchange gains and losses relating to departmental sale or purchase of goods or services in foreign currency are reported under other expenses. The carrying amounts of financial instruments denominated in a foreign currency are disclosed in the respective financial statement notes.

Fair value measurement

Fair value is the amount of the consideration that would be agreed upon in an arm’s length transaction between knowledgeable, willing parties who are under no compulsion to act. For financial reporting purposes, fair value measurements are categorized as Level 1, 2 or 3 based on the degree to which the inputs to the fair value measurements are observable and the significance of the inputs. The three levels of the fair value hierarchy are as follows:

• Level 1: Unadjusted quoted prices in active markets for identical assets or liabilities, which represent actual and regularly occurring arm’s-length market transactions;

• Level 2: Inputs other than quoted prices included in Level 1, which are observable for the assets or liabilities either directly (e.g., prices for similar instruments, prices from inactive markets) or indirectly (e.g., interest rates, credit spreads);

• Level 3: Unobservable inputs for the assets or liabilities that are not based on observable market data (e.g., market participant assumptions).

The fair value hierarchy requires the use of observable market inputs wherever such inputs exist and in measuring fair value, a financial instrument is classified at the lowest level of the hierarchy for which a significant input has been considered.

Measurement uncertainty

The preparation of consolidated financial statements requires the government to make estimates and assumptions that affect the reported and disclosed amounts of assets, liabilities, revenues and expenses in the consolidated financial statements and accompanying notes at March 31. The estimates are based on facts and circumstances, historical experience, general economic conditions and reflect management's best estimate of the related amount at the end of the reporting period. Estimates and underlying assumptions are reviewed annually at March 31. Revisions to accounting estimates are recognized in the period in which estimates are revised if revisions affect only that period or in the period of revision and future periods if revisions affect both current and future periods.

Measurement uncertainty that is material exists when it is reasonably possible that a material variance could occur in the reported or disclosed amount in the near term. Near term is defined as a period of time not to exceed one year from March 31. The government has determined that measurement uncertainty exists with respect to the reported amounts for:

• the accrual of tax revenues and the related amounts receivable, other accounts receivables, and the allowance for doubtful accounts (Note 4, Note 15 and Note 16)
• expenses (Note 5)
• the provision for contingent liabilities (Note 8)
• environmental liabilities and asset retirement obligations (Note 9)
• public sector pensions and other employee and veteran future benefits (Note 11)
• enterprise Crown corporations and other government business enterprises (Note 18)
• other loans, investments and advances (Note 19)
• the expected useful life of tangible capital assets (Note 20)
• inventories (Note 20)
• contractual rights (Note 22b)

It is reasonably possible that the government's reassessments of these estimates and assumptions could require a material change in reported amounts or disclosures in the consolidated financial statements. Refer to the specific note disclosures for more information on measurement uncertainty.

Measurement uncertainties exist at March 31, 2023, as a result of higher than expected inflation rates, increasing interest rates, and the Russia-Ukraine conflict. The consolidated financial statements reflect the impacts to the extent known and estimable at the reporting date. The government continues to assess and monitor the effects of these measurement uncertainties on its financial position, including related estimates and assumptions used in the preparation of its statements. The full potential impact on the assumptions used for the year is unknown as it will depend on future developments that are uncertain.

In addition, these measurement uncertainties have impacted various estimates, assumptions, and judgments in the consolidated financial statements; the most critical areas are discussed within the specific notes below.

Additional significant accounting policies

To facilitate the understanding of these consolidated financial statements, the significant accounting policies related to the following financial statement line items are detailed in the referenced note.

• revenues (Note 4)
• expenses (Note 5)
• other accounts payable and accrued liabilities (Note 7)
• contingent liabilities (Note 8)
• environmental liabilities and asset retirement obligations (Note 9)
• unmatured debt (Note 10)
• public sector pensions and other employee and veteran future benefits (Note 11)
• taxes receivable (Note 15)
• other accounts receivable (Note 16)
• foreign exchange accounts (Note 17)
• enterprise Crown corporations and other government business enterprises (Note 18)
• other loans, investments and advances (Note 19)
• tangible capital assets and inventories (Note 20)
• financial instruments (Note 21)
• contractual obligations and contractual rights (Note 22)
• segmented information (Note 23)

2. Adoption of new accounting standards

(a) Asset Retirement Obligations

Effective April 1, 2022, the government adopted the new Public Sector Accounting Standard PS 3280 Asset Retirement Obligations. This standard requires public sector entities to recognize liabilities for legal obligations to incur costs associated with the retirement of tangible capital assets arising on their acquisition, construction or development or through their normal use, and to expense those costs systematically over the life of the asset.

The government applied the modified retroactive application transitional approach, with a restatement of prior year comparatives. On initial application of the standard, the government removed from its Consolidated Statement of Financial Position any existing liability for an asset retirement obligation and associated asset retirement costs and recognized:

• A liability for any existing asset retirement obligations, adjusted for accumulated accretion to that date;
• an asset retirement cost capitalized as an increase to the carrying amount of the related tangible capital asset;
• accumulated amortization on that capitalized cost; and
• an adjustment to the opening balance of the accumulated deficit.

Asset retirement obligations associated with assets no longer in productive use were recognized as a liability and a corresponding adjustment to the opening accumulated operating deficit.

These amounts were measured using information, assumptions and discount rates that were current at the beginning of the fiscal year. The amount recognized as an asset retirement cost was measured as of the date the asset retirement obligation was incurred. Accumulated accretion and amortization were measured for the period from the date the liability would have been recognized had the provisions of this standard been in effect to the date of transition.

A reconciliation of the restatement for the significant consolidated financial statement line items is as follows:

(b) Financial instruments suite of standards

Effective April 1, 2022, the government adopted the new accounting standards issued by the Public Sector Accounting Board (PSAB) that prescribe the accounting treatment for financial instruments. These standards include PS 3450 Financial Instruments, PS 2601 Foreign Currency Translation, PS 1201 Financial Statement Presentation and PS 3041 Portfolio Investments. PS 3450 addresses the recognition and derecognition, measurement, presentation, and disclosure of financial instruments, including derivatives, while PS 2601 addresses the accounting for and reporting transactions that are denominated in a foreign currency. PS 1201 establishes general reporting principles for disclosure of information in the financial statements. PS 3041 replaces PS 3040 Portfolio Investments in order to conform the accounting for portfolio investments with the requirements in PS 3450.

In accordance with PS 3450, the financial statements of prior periods were not restated on transition to the aforementioned standards. Consequently, the accounting policies for recognition, derecognition and measurement of financial instruments applied to the comparative information reflect those disclosed in the 2022 consolidated financial statements.

On initial application of these standards on April 1, 2022:

• the government introduced a new statement, the Consolidated Statement of Remeasurement Gains and Losses, which records the remeasurement gains and losses for financial instruments measured at fair value and other comprehensive income of enterprise Crown corporations and other government business enterprises. Any historical balance for accumulated other comprehensive income or accumulated actuarial gains and losses from government business enterprises were transferred from accumulated operating deficit to accumulated remeasurement gains (losses). Therefore, effective April 1, 2022, other comprehensive income is no longer reported in the Consolidated Statement of Operations and Accumulated Operating Deficit and is now reported in the Consolidated Statement of Remeasurement Gains and Losses. No comparative amounts are reported in the Consolidated Statement of Remeasurement Gains and Losses due to prospective application of these standards;
• amounts previously reported in the Consolidated Statement of Operations and Accumulated Deficit are reported in the Consolidated Statement of Operations and Accumulated Operating Deficit;
• the government elected to recognize all exchange gains and losses resulting from foreign currency transactions in the Consolidated Statement of Operations and Accumulated Operating Deficit, including those exchange gains and losses arising prior to settlement or derecognition. This elected treatment is consistent with the policy applied prior to April 1, 2022, for exchange gains and losses resulting from foreign currency transactions and, therefore, no adjustments were required to the opening balance of accumulated operating deficit related to the transition to PS 2601;
• the government recognized and classified all financial assets and financial liabilities in accordance with PS 3450, as disclosed in Note 21;
• for financial instruments measured at amortized cost, any associated unamortized discounts or premiums that were presented separately as at March 31, 2022, have been included in the instruments’ opening carrying value as at April 1, 2022;
• for financial instruments measured at fair value:
  
  • any difference between the instruments’ fair values as at April 1, 2022 and previous carrying amounts as at March 31, 2022, excluding previously recognized exchange gains and losses, were recognized as an adjustment to the opening balance of accumulated remeasurement gains and losses;
  • the government adopted a prospective approach to identifying embedded derivatives in contracts. Effective April 1, 2022, embedded derivatives are recognized separately from host contracts and accounted for as derivatives assets or liabilities when all of the following conditions are met: (a) the economic characteristics and risks of the embedded derivative are not closely related to the economic characteristics and risks of the host contract; (b) a separate instrument with the same terms as the embedded derivative would meet the definition of a derivative; and (c) the combined instrument is not measured at fair value. Accordingly, no adjustment to the opening balance of accumulated remeasurement gains and losses was required.

The impacts of adopting PS 3450, PS 2601 and PS 1201 at April 1, 2022, are provided in the table below:

(c) Reclassification of financial statement line items

The following table shows reclassifications of March 31, 2022 amounts reported on the Consolidated Statement of Financial Position and Consolidated Statement of Operations and Accumulated Operating Deficit that were made for either consistency with the current year's presentation or to enhance comparability as a result of the prospective adoption of the Financial instruments suite of standards in 2023, or due to the change to an accounting policy:

3. Spending and borrowing authorities

(a) Spending authorities

The authority of Parliament is required before moneys can be spent by the government. Approvals are given in the form of annually approved limits through appropriation acts or through legislation in the form of statutory spending authority for specific purposes. In response to the COVID-19 pandemic, the COVID-19 support measures were implemented through both voted and statutory expenditures. When Parliament is dissolved for the purposes of general election, section 30 of the Financial Administration Act authorizes the Governor General, under certain conditions, to issue a special warrant authorizing the government to withdraw funds from the Consolidated Revenue Fund. During fiscal year 2023, there were no requirements to issue special warrants to support expenditures. The government uses the full accrual method of accounting to prepare its Budget and present its current consolidated financial statements. However, the spending authorities voted by Parliament are on an expenditure basis, which uses only a partial accrual method of accounting. During the year, expenditures were made under the authorities indicated in the following table:

The total net budgetary expenditures reported in the preceding table differs from the total expenses reported in the Consolidated Statement of Operations and Accumulated Operating Deficit. The difference is due to various factors. The transactions of consolidated specified purpose accounts and of certain Crown corporations and other controlled entities are consolidated in the financial statements but are not included in the budgetary expenditure authorities available for use. Transfer payments to organizations within the government reporting entity are recorded against a budgetary expenditure authority in the year they are disbursed to the organization, but they are recorded as a consolidated expense only when the transfer is authorized and all eligibility criteria have been met by the ultimate recipient outside of the government reporting entity. Provisions for valuation of assets and liabilities are also not included in spending authorities.

In addition to the authorities for budgetary expenditures, non-budgetary spending of $307,701 million ($311,014 million in 2022) was authorized for loans, investments and advances. A net amount of $84,014 million ($66,324 million in 2022) was used, an amount of $17 million ($18 million in 2022) lapsed and an amount of $223,670 million ($244,672 million in 2022) is available for use in subsequent years.

Details about the source and disposition of authorities (unaudited) and the details of ministerial expenditures are provided in Volume II of the Public Accounts of Canada.

(b) Over-expenditure of spending authorities

During the fiscal year, Global Affairs Canada exceeded its authority limit of $50 million for working capital advance for advances to posts abroad in accordance with Vote 630, Appropriation Act No. 2, 1954, amended by Vote L12, Appropriation Act No. 3, 1989-90. Details (unaudited) of this overexpended authority can be found in the ministerial sections of Volume II of the Public Accounts of Canada.

(c) Borrowing authorities

Through the Borrowing Authority Act ("BAA") and the Financial Administration Act ("FAA"), Parliament authorizes the Minister of Finance (the "Minister") to borrow money on behalf of His Majesty in right of Canada.

Borrowing Authority Act: Maximum Amount

Authority to borrow is granted through section 3 of the BAA up to the maximum amount on the total outstanding stock of debt set out under section 4 of the BAA.

Subject to limited exceptions, borrowings undertaken by the Minister – together with amounts borrowed by agent Crown corporations and Canada Mortgage Bonds guaranteed by the Canada Mortgage and Housing Corporation – may not exceed the maximum amount specified in the BAA, which was $1,831,000 million as of May 6, 2021.

As at March 31, 2023, the outstanding borrowings subject to the maximum amount was $1,573,818 million ($1,529,422 million as at March 31, 2022).

Financial Administration Act: Annual Borrowing Authority

In addition to the maximum amount on the total outstanding stock of debt, pursuant to Part IV of the FAA, the Governor in Council (GIC) specifies a maximum aggregate principal amount of money that the Minister is authorized to borrow.

For the fiscal year 2023, the GIC specified a maximum amount of $513,300 million ($635,000 million for fiscal year 2022). The GIC authority is calculated as the sum of i) the maximum stock of treasury bills anticipated to be outstanding during the year, ii) the total value of new issuances of marketable bonds, and iii) the total value of new issuances intended to fund the Exchange Fund Account, plus a contingency margin to enable responses to changes in economic circumstances. During fiscal year 2023, $394,509 million ($451,648 million in fiscal year 2022) has been borrowed by the Minister.

Extraordinary Borrowings

In June 2022, when the Budget Implementation Act, 2022, received Royal Assent, the BAA was amended to cause extraordinary borrowings raised under paragraph 46.1(c) of the FAA for the period of March 23, 2021 to May 6, 2021, inclusive, to be counted against the BAA maximum amount. The extraordinary borrowings that were used to fund the government’s COVID-19 response are reflected in the outstanding borrowings counted against the BAA maximum amount above. This is consistent with the approach taken in May 2021, when a similar tranche of extraordinary borrowing was consolidated into the overall borrowing limit.

(d) Source of budget amounts

The budget amounts included in the Consolidated Statement of Operations and Accumulated Operating Deficit and the Consolidated Statement of Change in Net Debt are derived from the amounts that were budgeted for 2023 in the April 2022 Budget Plan (Budget 2022). To enhance comparability with actual 2023 results, Budget 2022 amounts have been reclassified to conform to the current year's presentation in the consolidated financial statements, with no overall impact on the budgeted 2023 annual deficit.

Since actual opening balances of the accumulated operating deficit and net debt were not available at the time of preparation of Budget 2022, the corresponding amounts in the budget column have been adjusted to the actual opening balances.

4. Revenues

The government has four major types of revenues: tax revenues, employment insurance premiums, proceeds from the pollution pricing framework and other revenues. Tax revenues are comprised of income tax revenues from personal, corporate and non-resident taxes, and other taxes and duties. Other revenues are mainly comprised of Crown corporations' revenues, other program revenues from returns on investments and proceeds from sales of goods and services, as well as other miscellaneous revenues.

(a) Proceeds from the pollution pricing framework

As part of the federal carbon pollution pricing framework, fuel and excess emission charges are collected pursuant to the Greenhouse Gas Pollution Pricing Act and are applicable to jurisdictions that voluntarily adopt the federal carbon pollution pricing framework and those that do not meet the federal benchmark requirements. As of March 31, 2023, there were $7,740 million of fuel charge proceeds recorded ($6,106 million in 2022).

As of March 31, 2023, the excess emission charges revenue pursuant to the output-based pricing system for industrial facilities with high emissions totalled $301 million ($235 million in 2022).

(b) Other taxes and duties

(c) Federal tax objections

As of March 31, 2023, $21,347 million of federal taxes were under objection ($19,258 million for 2022).

5. Expenses

The government has three major types of expenses: transfer payments, other expenses and public debt charges.

Transfer payments are monetary payments, or transfers of goods, services, or assets to third parties. These transfers do not result in the acquisition by the government of any goods, services, or assets.

Other expenses include personnel, professional and special services, repair and maintenance, utilities, materials and supplies, as well as amortization of tangible capital assets. Provisions to reflect changes in the value of assets or liabilities, such as provisions for bad debts, loans, investments and advances and inventory obsolescence, are also included in other expenses. Public sector pension and other employee and veteran future benefit expenses are included in personnel expenses except for net actuarial losses which are presented separately on the Consolidated Statement of Operations and Accumulated Operating Deficit.

Public debt charges include effective interest calculated on market debt including amounts arising on the extinguishment of debt, as well as interest on obligations for public sector pensions and other employee and veteran future benefits.

Expenses in the Consolidated Statement of Operations and Accumulated Operating Deficit include:

(a) Major transfer payments to other levels of government

Major transfer payments to other levels of government include the Canada Health Transfer, the Canada Social Transfer, the Canada-wide Early Learning and Child Care and fiscal arrangements pursuant to the Federal-Provincial Fiscal Arrangements Act. Other major transfers include contributions under the federal Canada Community-Building Fund program, the Home Care and Mental Health Transfer, and certain COVID-19 support measures.

Canada health transfer expenses include additional top-up payments in response to the COVID-19 pandemic of nil in 2023 ($2,000 million in 2022).

(b) Employment insurance and support measures

Pursuant to the Employment Insurance Act, employment insurance includes unemployment and self-employed benefits and support measures paid to/for individuals of $19,561 million ($36,588 million in 2022) and payments to provinces and territories related to Labour Market Development Agreements of $2,344 million ($2,375 million in 2022). The Employment Insurance Act was amended to authorize the emergency response benefit payments, as part of the Government's Economic Response Plan. As at March 31, 2023, benefit overpayments to be recovered of $69 million ($40 million in 2022) related to the Employment Insurance Emergency Response Benefit (EI-ERB) were recorded. Refer to Note 5(c) for information on the Canada Emergency Response Benefit (CERB).

(c) COVID-19 income support for workers

The government provided financial support to workers during the COVID-19 pandemic through the Canada Emergency Response Benefit (ended on October 3, 2020), the Canada Worker Lockdown Benefit (ended on May 7, 2022) and the Canada Recovery Benefits. The Canada Recovery Benefits included three temporary recovery benefits starting September 27, 2020: the Canada Recovery Benefit (ended on October 23, 2021), the Canada Recovery Caregiving Benefit (ended on May 7, 2022), and the Canada Recovery Sickness Benefit (ended on May 7, 2022).

Details of COVID-19 income support provided to workers and the related benefit overpayments to be recovered are as follows:

(d) Canada Emergency Wage Subsidy

The Canada Emergency Wage Subsidy (CEWS), provided a wage subsidy to eligible employers who experienced a drop in qualifying revenues between March 15, 2020 and October 23, 2021. As at March 31, 2023, benefit overpayments to be recovered of $257 million were recorded ($22,291 million of expenses in 2022).

(e) Proceeds from the pollution pricing framework returned

As part of the federal carbon pollution pricing framework, the government returns all direct proceeds from the fuel charge directly to the governments of those jurisdictions that voluntarily adopt the federal carbon pollution pricing framework, and for those that do not meet federal benchmark requirements, they are returned directly to recipients through the tax system, such as the Climate Action Incentive (CAI) payments, various federal programming, and other transfers. For the year-ended March 31, 2023, these expenses for proceeds returned include $6,872 million ($3,762 million in 2022) in CAI payments.

(f) Other transfer payments

Other transfer payments totalling $99,199 million ($88,478 million in 2022) include various amounts paid or payable through federal programs to stabilize market prices for commodities, develop new technologies, conduct research, provide international development assistance, support health care and infrastructure of First Nations and Inuit communities, support social housing and families and promote educational and cultural activities. Also included are expenses of other consolidated entities and other miscellaneous payments. The various types of transfer payments are being delivered by departments according to their departmental legislative mandates.

In addition, other transfer payments expenses include many of the COVID-19 support measures, the most significant of which include:

• Nil for Canada Emergency Rent Subsidy ($3,702 million in 2022);
• $494 million for Tourism and Hospitality Recovery Program ($2,214 million in 2022);
• Nil for the One-time payment for older seniors ($1,679 million in 2022); and
• $441 million for the Canada Emergency Business Account loan incentive ($1,515 million in 2022). Refer to Note 19 for further details of the Canada Emergency Business Account.

Details can be found in Table 3.6 of Section 3 (unaudited) of this volume.

(g) Public debt charges

(h) Total expenses by segment

The government has defined segments as Ministries which groups the activities of departments, agencies and consolidated Crown corporations and other entities for which a Minister is responsible to Parliament. Additional segmented information is provided in Note 23. The following table presents the total expenses by segment after the elimination of internal transactions:

(i) Total expenses by type of resource used in operations

The following table presents the total expenses by main objects of expense:

6. Accumulated deficit

The accumulated deficit comprises accumulated operating deficit and accumulated remeasurement gains and losses.

Accumulated operating deficit

The accumulated operating deficit is equal to the net liabilities of the government less any accumulated remeasurement gains and losses. The government includes in its revenues and expenses certain accounts established for specified purposes. Legislation requires that revenues received for purposes specified in the legislation be credited to these accounts and that related payments be charged to these accounts. Any deficiency of revenues over payments must be met through future revenues or transfers credited to these accounts. The following table shows the balance of these consolidated accounts included in the accumulated operating deficit:

Accumulated remeasurement gains and losses

Remeasurement gains and losses are revenues and expenses recognized in the Consolidated Statement of Remeasurement Gains and Losses arising when financial instruments in the fair value category are remeasured. When a financial instrument is derecognized, previously reported remeasurement gains or losses are reclassified to the Consolidated Statement of Operations and Accumulated Operating Deficit. Other comprehensive income or loss of enterprise Crown corporations and other government business enterprises is also reported in accumulated remeasurement gains and losses.

The following table presents the components of accumulated remeasurement gains and losses:

7. Other accounts payable and accrued liabilities

Other accounts payable and accrued liabilities mainly consist of amounts owed to suppliers and employees that have been invoiced or accrued.

Other accounts payable and accrued liabilities include:

8. Provision for contingent liabilities

Contingent liabilities arise in the normal course of operations and their ultimate disposition is unknown. Contingent liabilities are potential liabilities which may become actual liabilities when one or more future events not wholly within the government’s control occur or fail to occur.

The following table presents the different components of the provision for contingent liabilities:

(a) Claims

Where the government has assessed a claim as likely and measurable, an estimated provision is determined using relevant historical experience, facts and circumstances. In situations where the estimate of loss is based on a range of amounts, the amount accrued within the range is management’s best estimate of the potential loss which may be at an amount lesser than the maximum of the range. Significant exposure to a liability could exist in excess of what has been accrued.

The government has claims for which the outcome is likely to result in a liability, but management cannot reasonably measure the amount at the financial statement date. These claims are continually reassessed as they progress through the legal process. Until more information becomes available which would allow for a reasonable estimate of the liability or the extent, no amount is accrued or disclosed.

Claims for which the outcome is not determinable and for which an amount has not been accrued are estimated at $3,375 million ($4,186 million in 2022). The resolution of these claims may result in a liability, if any, that differs from the estimated amount.

Pending and threatened litigation and other claims

There are thousands of pending and threatened litigation cases as well as claims outstanding against the government. These claims include items with pleading amounts and items where an amount is not specified. While the total amount claimed in these actions is significant, their outcomes are not known in all cases. As a result, provisions that are recorded are based on management’s best estimate of the potential loss.

Specific claims

Specific claims deal with the past grievances of First Nations related to Canada’s obligations under historic treaties or the way it managed First Nations’ funds or other assets. The past grievances may be proceeding via the legal system or via the specific claims program. The Government of Canada will pursue a settlement agreement with the First Nation when a claim demonstrates an outstanding lawful obligation. There are currently 698 (677 in 2022) specific claims under negotiation, accepted for negotiation or under review. A liability is estimated and recorded for claims that have progressed to a point where quantification is possible. This estimate also includes projections based on historical rates and costs of settlement for similar claims and includes an estimate for claims which have been filed but not yet assessed.

Comprehensive land claims

Comprehensive land claims arise in areas of the country where Aboriginal rights and title have not been resolved by treaty or by other legal means. There are currently 83 (84 in 2022) comprehensive land claims under negotiation, accepted for negotiation or under review. A liability is estimated and recorded for claims that have progressed to a point where quantification is possible. This estimate also includes projections based on historical rates and costs of settlement for similar claims.

(b) Guarantees provided by the government

Guarantees provided by the government include guarantees on the borrowings of enterprise Crown corporations and other government business enterprises, loan guarantees, insurance programs managed by the government or agent enterprise Crown corporations, and other explicit guarantees. At March 31, guarantees provided by the government include:

The authorized limit represents the aggregate total of various types of authorities of government bodies as stipulated in legislation, legal agreements or other documents that may be in force at any one time. The principal amount outstanding represents the total amount of guarantees provided as at the end of the fiscal year.

(c) Other

Assessed taxes under appeal

Contingent liabilities include previously assessed federal taxes where amounts are being appealed to the Tax Court of Canada, the Federal Court of Appeal, or the Supreme Court of Canada. As of March 31, 2023, an amount of $6,753 million ($5,634 million in 2022) was being appealed to the courts, for which the likelihood of an adverse outcome was not determinable or for which an amount could not be reasonably estimated. The government has recorded, in the amounts payable related to tax or in reduction of the amounts receivable from taxpayers, as applicable, the estimated amount of appeals that are considered likely to be lost and that can be reasonably estimated.

International organizations

The government has callable share capital whereby certain international organizations have the ability to require payments. As at March 31, 2023, the callable share capital amounts to $40,461 million ($37,522 million in 2022). No payments (nil in 2022) have been requested by international organizations or paid by the government in the year related to the callable share capital.

Insurance programs of agent enterprise Crown corporations

Four agent enterprise Crown corporations operate insurance programs for the government. In the event that the corporations have insufficient funds, the government will have to provide financing. The Canada Deposit Insurance Corporation operates the Deposit Insurance Fund which provides basic protection coverage to depositors for up to $100,000 of eligible deposits with each member bank, trust or loan company; the Canada Mortgage and Housing Corporation operates the Mortgage Insurance Fund which provides insurance for mortgage lending on Canadian housing by private institutions and the Mortgage-Backed Securities Guarantee Fund which guarantees the timely payment of the principal and interest for investors of securities based on the National Housing Act through the Mortgage-Backed Securities program and the bonds issued by the Canada Housing Trust through the Canada Mortgage Bond program; Export Development Canada provides export and foreign investment insurance to help with export trade; and Farm Credit Canada sells group creditor life and accident insurance to its customers through a program administered by a major insurance provider and Farm Credit Canada’s risk of the insurance program is limited. At March 31, 2023, total insurance in force amounts to $2,001,600 million ($1,912,891 million in 2022). The government expects that all four corporations will cover the cost of both current claims and possible future claims.

9. Environmental liabilities and asset retirement obligations

Environmental liabilities represent the amount required to remediate contaminated sites to current minimum environmental standards.

Asset retirement obligations represent the estimated amount required to retire for legally obligated costs for the asset retirement activities of tangible capital assets.

Environmental liabilities and asset retirement obligations include:

(a) Remediation of contaminated sites

The government’s “Federal Approach to Contaminated Sites” sets out a framework for management of contaminated sites using a risk-based approach. Under this approach the government has inventoried the contaminated sites identified on federal lands or on lands where the government has assumed responsibility for the clean-up, allowing them to be classified, managed and recorded in a consistent manner. This systematic approach aids in the identification of the high risk sites in order to allocate limited resources to those sites which pose the highest risk to human health and the environment.

The government has identified 6,138 sites (6,462 sites in 2022) where contamination may exist and assessment, remediation and monitoring may be required. Of these, the government has identified 2,476 sites (2,524 sites in 2022), where action is required and for which a liability of $9,868 million ($9,768 million in 2022) has been recorded. This liability estimate has been determined based on site assessments performed by environmental experts. In addition, a statistical model based upon a projection of the number of sites that will proceed to remediation and upon which current and historical costs are applied is used to estimate the liability for a group of unassessed sites.

This group includes 2,816 unassessed sites (3,079 sites in 2022), of which 1,212 sites (1,330 sites in 2022) are projected to proceed to remediation and for which an estimated liability of $250 million ($256 million in 2022) has been recorded. These two estimates combined, totalling $10,118 million ($10,024 million in 2022), represents management’s best estimate of the costs required to remediate sites to the current minimum environmental standard for its use prior to contamination, based on information available on March 31.

For the remaining 846 sites (859 sites in 2022), no liability for remediation has been recognized. Some of these sites are at various stages of testing and evaluation and, if remediation is required, liabilities will be reported as soon as a reasonable estimate can be determined. For other sites, the government does not expect to give up any future economic benefits (there is likely no significant environmental impact or human health threats). These sites will be re-examined and a liability for remediation will be recognized if future economic benefits will be given up.

When the liability estimate is based on a future cash requirement, the amount is adjusted for inflation using a forecast CPI rate of 2.0% (2.0% in 2022). Inflation is included in the undiscounted amount. The Government of Canada’s cost of borrowing by reference to the actual zero-coupon yield curve for Government of Canada bonds has been used to discount the estimated future expenditures. March 2023 discount rates range from 4.50% (1.88% in 2022) for a 1-year term to 3.01% (2.35% in 2022) for a 30 or greater year term.

Also, during the year, 628 sites (558 sites in 2022) were closed as they were either remediated or assessed to confirm that they no longer meet all the criteria required to record a liability for contaminated sites. Estimated recoveries related to environmental liabilities amounted to $26 million as at year end ($26 million in 2022) and are reported as other accounts receivable.

(b) Other environmental liabilities

The government has identified approximately 522 unexploded explosive ordnance (UXO) suspected sites (528 in 2022) for which clearance action may be necessary. Of these sites, 34 (29 in 2022) are confirmed UXO affected sites. Based on management’s best estimates, a liability of $136 million ($140 million in 2022) has been recorded for clearance action on 7 of the confirmed UXO sites (5 in 2022). Remediation has been completed on 22 sites during the year (11 in 2022). The remaining 493 suspect sites (512 in 2022) are currently in the assessment stage and a reasonable estimate cannot yet be determined. Of these sites, the obligation for clearance action is likely for 16 (17 in 2022), indeterminable for 36 (37 in 2022) and unlikely for the 441 remaining (458 in 2022).

(c) Asset retirement obligations

The government has recorded asset retirement obligations for the removal of asbestos and other hazardous materials in buildings, decommissioning of nuclear facilities, demilitarization or disarmament and other asset retirement obligations.

The changes in the asset retirement obligations during the year are as follows:

The undiscounted future expenditures, adjusted for inflation, for the planned projects comprising the liability are $23,514 million ($22,288 million at March 31, 2022). Estimated recoveries related to asset retirement obligations amounted to nil as at year end (nil in 2022).

Key assumptions used in determining the provision are as follows:

10. Unmatured debt

Unmatured debt consists of market debt, capital lease obligations and the obligation under public-private partnerships.

Unmatured debt includes:

(a) Market debt

The following table presents the future principal repayments at the contractual maturity date of debt issues, interest rates by currency and type of instrument (in Canadian dollars) and the weighted average annual interest rates as at March 31, 2023:

(b) Obligation related to capital leases

The total obligation related to capital leases as at March 31, 2023, is $2,546 million ($2,785 million in 2022). Interest on this obligation of $161 million ($163 million in 2022) is reported in the Consolidated Statement of Operations and Accumulated Operating Deficit as part of public debt charges. At March 31, future minimum lease payments are summarized as follows:

A significant number of leases have a duration from inception that falls within the range of 10 to 25 years.

11. Public sector pensions and other employee and veteran future benefits

The accrued benefit obligations in respect of public sector pensions and other employee and veteran future benefits are presented net of pension assets, unrecognized net actuarial gains or losses and valuation allowance, as well as contributions and benefits paid by some of the consolidated Crown corporations and other entities after their measurement date of December 31 up to March 31, in the Consolidated Statement of Financial Position.

(a) Overview of benefits

i. Pension benefits

The government sponsors a number of defined benefit pension plans covering substantially all the employees of the federal public service, as well as certain Public Service corporations as defined in the Public Service Superannuation Act, territorial governments, members of the Canadian Forces (including the Reserve Force), members of the Royal Canadian Mounted Police, federally appointed judges and Members of Parliament, including Senators. The public service, Canadian Forces - Regular Force and Royal Canadian Mounted Police pension plans represent the three main public sector pension plans sponsored by the government. In addition, some of the consolidated Crown corporations and other entities maintain their own defined benefit pension plans covering substantially all of their employees. In this note, the term “employees” is used in a general manner to apply to plan members of the different groups.

The defined benefit pension plans are designed to provide employees with a retirement income during their lifetime and, in the case of government-sponsored plans, are indexed to inflation. The indexation for Crown corporations and other entities pension plans varies depending on the specific plan. In the event of death, the pension plans also provide an income for a plan member’s eligible survivors and dependants.

Pension benefits generally accrue as follows:

For the three main public sector pension plans, pension benefits generally accrue based on a member’s average earnings during the best five consecutive years of earnings and years of pensionable service. Plan members can accrue up to a maximum of 35 years at a rate of 2% per year of pensionable service. Pension benefits are coordinated with the Canada and the Quebec Pension Plan benefits at age 65.

For the Canadian Forces - Reserve Force pension plan, pension benefits accrue at a rate of 1.5% per year up to a maximum of 35 years based on total pensionable service and pensionable earnings over the service period, and are coordinated with the Canada and the Quebec Pension Plan benefits at age 65.

For the Members of Parliament retiring allowance plan, basic allowances accrue at a rate of 3% per year of pensionable service multiplied by the average of the best five consecutive years of sessional indemnity and/or pensionable earnings up to a maximum of 75% of the plan member’s average sessional indemnity and/or pensionable earnings as applicable. For service after December 31, 2015, retiring allowance benefits are coordinated with the Canada and the Quebec Pension Plan benefits at age 60. Members of Parliament are entitled to benefits after they have contributed to the plan for at least six years.

For federally appointed judges, pension benefits do not have an explicit accrual rate. Instead, federally appointed judges may retire with a pension equivalent to two thirds of the salary annexed to their office once the member has completed 15 years of pensionable service and the sum of the member’s age and years of service equals 80 or more.

For the consolidated Crown corporations and other entities pension plans, pension benefits accrue depending on the terms of the plans; generally based on a combination of an accrual rate per year of pensionable service and pensionable earnings average as per plan terms. Some plans are closed to new entrants.

ii. Other future benefits

In addition to pension plans, the government and the consolidated Crown corporations and other entities sponsor different types of future benefit plans, with varying terms and conditions. The benefits are available to employees during or after employment or upon retirement. Other future benefits include disability and associated benefits available to war veterans, current and retired members of the Canadian Forces and the Royal Canadian Mounted Police, their survivors and dependants, health care and dental benefits available to retired employees and their dependants, accumulated sick leave entitlements, severance benefits and workers’ compensation benefits.

(b) Financing arrangements

The government has a statutory obligation to pay the pension benefits it sponsors. Pursuant to pension legislation, the transactions for funded and unfunded pension benefits are tracked in the pension accounts within the accounts of Canada. The details (unaudited) of the pension accounts can be found in Section 6 of this volume.

i. Funded pension benefits

Pension benefits are generally financed from employee and employer contributions, as well as investment earnings. Pension benefits funded by the government relate to post March 2000 service that falls within the Income Tax Act limits for the three main public sector pension plans and all service for the Canadian Forces—Reserve Force pension plan. An amount equal to contributions less benefit payments and other charges is invested by the PSPIB. Funded pension benefits also relate to consolidated Crown corporations and other entities where pension plans’ assets are held in external trusts that are legally separate from Crown corporations and other entities.

ii. Unfunded pension benefits

For unfunded pension benefits, separate invested funds are not maintained. These relate to all pre April 2000 service, and only to post March 2000 service that falls above the Income Tax Act limits for the three main public sector pension plans, all service periods for the pension plans of the federally appointed judges and Members of Parliament, and some of the consolidated Crown corporations and other entities’ pension plans. Employee and employer contributions for unfunded pension benefits sponsored by the government are part of general government funds. Contributions amounted to $1,456 million ($7,976 million in 2022) of which $164 million ($105 million in 2022) represents regular employer contributions, $1,220 million ($7,805 million in 2022) represents special employer contributions, and $72 million ($66 million in 2022) represents employee contributions.

iii. Other future benefits

Other employee and veteran future benefits sponsored by the government and almost all of the other employee future benefits sponsored by the consolidated Crown corporations and other entities are unfunded. The health care and dental plans for retired employees are contributory plans, whereby contributions by retired plan members are made to obtain coverage. These contributions amounted to $522 million ($507 million in 2022). The cost of benefits earned and benefits paid are presented net of these contributions. Additional details can be found in Section 6 (unaudited) of this volume.

(c) Actuarial valuations

i. For funding purposes

Pursuant to the Public Pensions Reporting Act, actuarial valuations of the pension plans sponsored by the government are performed at least every three years to determine the state of the pension plans, as well as to assist in making informed decisions regarding the financing of the government’s pension benefit obligations. The actuarial valuation report in respect of a pension plan must be filed with the Minister responsible for that pension plan within eighteen months of the valuation date. The Minister then has thirty sitting days to present the actuarial valuation to the Parliament. The actuarial assumptions underlying the valuations for funding purposes are based on the actuary’s best estimates.

The most recent triennial actuarial valuations were conducted as at March 31, 2019, for the Canadian Forces - Regular Force and Reserve Force, the Members of Parliament and the federally appointed judges pension plans; as at March 31, 2020, for the public service pension plan; and as at March 31, 2021, for the Royal Canadian Mounted Police pension plan.

Federally regulated private pension plans sponsored by consolidated Crown corporations and other entities are governed by the provisions of the Pension Benefits Standards Act, 1985 and are required to adhere to the directives of the Superintendent of Financial Institutions. The actuarial valuations are conducted at least every three years, or more often depending on the financial situation of the plan.

ii. For accounting purposes

Actuarial valuations of the public sector pensions and other employee and veteran future benefits are performed every year to measure and report the obligations and to attribute the costs of the benefits to the period. Actuarial valuations are conducted as at March 31, except for some of the consolidated Crown corporations and other entities for which the actuarial valuations are conducted as at December 31. The actuarial valuations are based on the most recent actuarial valuation for funding purposes, as applicable, in regards to the majority of the demographic assumptions. The other assumptions underlying the valuations are based on best estimates of the government or of the management of the consolidated Crown corporations and other entities.

(d) Change to benefits

In 2023, amendments were made to the Public Service Health Care Plan. These include the introduction of significant benefit enhancements offset by cost-containment measures to modernize and better align the plan with best practices in the employer-sponsored health care plan industry. These amendments resulted in a one-time past service cost reduction of $1,322 million.

In 2022, an amendment was made to introduce new mental health benefits providing immediate coverage to veterans for treatment of certain mental health conditions. The goal is to support veterans’ mental health while their disability benefits application is being processed. This amendment resulted in a one-time past service cost of $102 million.

(e) Net future benefit liabilities and assets

The net future benefit liabilities and assets are comprised of different components. The details are as follows:

i. Accrued benefit obligations

The changes in the accrued benefit obligations during the year are as follows:

ii. Pension and other future benefit assets

Pension and other future benefit assets include investments held by the PSPIB and external trusts of consolidated Crown corporations and other entities and contributions receivable from employees for past service buyback elections.

The changes in pension and other future benefit assets during the year are as follows:

As at March 31, the market value of the investments is $255,574 million ($243,814 million in 2022). The actual return on investments is $9,429 million ($23,286 million in 2022) and the actual net rate of return on investments, calculated on a time-weighted basis, is 3.9% (10.7% in 2022) for the year.

iii. Net future benefit liabilities and assets

A reconciliation of the accrued benefit obligations to the amounts of net future benefit liabilities and assets follows:

(f) Benefit and interest expenses

The components of public sector pension and other employee and veteran future benefit expenses are as follows:

Net actuarial losses of $9,627 million ($10,186 million in 2022) are presented in the Consolidated Statement of Operations and Accumulated Operating Deficit. The net actuarial losses are comprised of actuarial gains of $2,546 million ($1,587 million in 2022) on funded pension benefits, actuarial losses of $3,623 million ($4,667 million in 2022) on unfunded pension benefits and actuarial losses of $8,550 million ($7,106 million in 2022) on other future benefits.

(g) Actuarial assumptions

The assumptions used in the actuarial valuations for accounting purposes are based on the government’s or the consolidated Crown corporations and other entities management’s best estimates of expected long-term experience and short-term forecasts, as well as the majority of the demographic assumptions underlying the most recent actuarial valuations for funding purposes, as applicable. The assumptions include estimates of discount rates, future inflation, returns on investments, general wage increases, workforce composition, retirement rates and mortality rates.

The discount rates used to measure the present value of the accrued obligations for public sector pensions and other employee and veteran future benefits sponsored by the government are as follows:

• For funded pension benefits, the streamed expected rates of return on invested funds.
• For unfunded pension and other future benefits, the government's cost of borrowing derived from the yields on the actual zero-coupon yield curve for Government of Canada bonds which reflect the timing of expected future cash flows.

The principal actuarial assumptions used in measuring the accrued benefit obligations as at March 31 for government-sponsored benefits, as well as the related benefit and interest expenses for the year, are as follows:

The discount rates used to measure the significant classes of pensions and other employee future benefits sponsored by the consolidated Crown corporations and other entities are based on a variety of methodologies. To measure the present value of their accrued benefit obligations, these consolidated Crown corporations and other entities used expected rates of return on invested funds ranging from 5.2% to 6.3% (4.8% to 5.8% in 2022) for the funded pension benefits, discount rates ranging from 3.3% to 4.9% (1.7% to 4.0% in 2022) for the unfunded pension benefits and discount rates ranging from 3.3% to 4.9% (1.6% to 4.0% in 2022) for the other employee future benefits. The long-term general wage increase ranged from 2.5% to 4.0% (2.5% to 3.5% in 2022). The long-term inflation rate has remained consistent at 2.0% (2.0% in 2022).

The expected average remaining service life (EARSL) of the employees represent periods ranging from 4 to 23 years (4 to 23 years in 2022) according to the plan in question; more specifically, from 11 to 15 years (11 to 15 years in 2022) for the three main public sector pension plans. The average remaining life expectancy (ARLE) of the benefit recipients under wartime veteran plans represent periods ranging from 5 to 7 years (6 to 7 years in 2022).

(h) Sensitivity analysis

Changes in assumptions can result in significantly higher or lower estimates of the accrued benefit obligations. The table below illustrates the possible impact of a 1% change in the principal actuarial assumptions.

12. Derivatives

Derivatives are financial contracts whose value is derived from movements in one or more underlying assets, indexes, interest rates, currency exchange rates, or other market-based factors. The government uses derivatives for hedging purposes and in conjunction with its other risk management activities.

The following table presents derivatives at March 31:

i. Cross-currency swap agreements

The government has entered into individual cross-currency swap contracts with various counterparties to facilitate management of its debt structure. Terms and conditions associated with these outstanding contracts are established using International Swaps and Derivatives Association (ISDA) Master Agreements, which are in place with each counterparty. Cross-currency swaps are used primarily to fund foreign-denominated asset levels in the foreign exchange accounts. Using cross-currency swap agreements, Canadian dollar and other foreign currency debt has been converted into US dollars or other foreign currencies with either fixed interest rates or variable interest rates. As a normal practice, the government’s swap positions are held to maturity.

The fair value of cross-currency swaps as at March 31, 2023 in terms of maturity date, stated in Canadian dollars, are as follows:

ii. Foreign exchange forward agreements

The government’s lending arrangements with the International Monetary Fund (IMF), included in the foreign exchange accounts, are denominated in special drawing rights (SDR). However, the government funds some of these loans with US dollars, while other are made directly in SDRs. Consequently, since the value of the SDR is based upon a basket of key international currencies (US dollar, Euro, Japanese yen, British pound sterling and Chinese renminbi), a currency mismatch results, whereby fluctuations in the value of the loan asset are not equally offset by fluctuations in the value of the related funding liability. Therefore, the government enters into forward agreements to hedge this foreign exchange risk.

The notional principal amount of a foreign exchange forward agreement refers to the principal amount used to calculate contractual cash flows. Foreign exchange forward agreements outstanding at March 31, with notional principal amounts in Canadian dollars of $5,144 million ($4,665 million at March 31, 2022), mature during the next fiscal year.

13. Other Liabilities

Other liabilities include:

(a) Canada Pension Plan Accounts

As explained in Note 1, the financial activities of the Canada Pension Plan (CPP) are not included in these consolidated financial statements.

The CPP is a federal/provincial social insurance program established by an Act of Parliament. It is compulsory and in operation in all parts of Canada, except for the Province of Quebec. The objective of the program is to provide a measure of protection to workers and their families against the loss of earnings due to retirement, disability or death. The CPP is financed from employee, employer and self-employed worker contributions, as well as investment earnings. The CPP's investments are held and managed by the Canada Pension Plan Investment Board (CPPIB). As administrator of the CPP, the government’s authority to provide benefits is limited to the consolidated net assets of the CPP. As at March 31, the fair value of the CPP's consolidated net assets is $549,500 million ($534,480 million in 2022) for the CPP Account and $24,443 million ($13,598 million in 2022) for the Additional CPP Account.

Pursuant to the Canada Pension Plan Act, the transactions of the CPP are recorded in the Canada Pension Plan Accounts (the Accounts) within the accounts of Canada. The Accounts also record the amounts transferred to or received from the CPPIB. The $306 million ($101 million in 2022) balance in the Accounts represents the CPP's deposit with the Receiver General for Canada and, therefore, is reported as a liability. The CPP's deposit with the Receiver General for Canada is comprised of the CPP Account balance of $276 million ($78 million in 2022) and the Additional CPP Account balance of $30 million ($23 million in 2022).

(b) Others

Deposit and trust accounts are a group of liabilities representing the government’s financial obligations in its role as administrator of certain funds that it has received or collected for specified purposes and that it will pay out accordingly. The net liability of the government is presented after reducing applicable accounts for securities held in trust. Certain accounts earn interest which is charged to interest on the public debt. Some of the largest deposit and trust accounts are the swap collateral guarantee deposit account of $1,044 million ($1,771 million in 2022) and the Indian band funds account in the amount of $561 million ($506 million in 2022). These accounts were established to record cash received as credit support under a collateral agreement with financial institutions and to record funds belonging to Indian bands throughout Canada pursuant to the Indian Act.

Other specified purpose accounts are liability accounts that are used to record transactions made under authorities obtained from Parliament through either the Financial Administration Act or other specific legislation. Certain accounts earn interest which is charged to interest on the public debt. The largest other specified purpose account is the Public Service Death Benefit Account totalling $4,131 million ($4,063 million in 2022). This account was established under the Public Service Superannuation Act to provide life insurance to contributing members of the public service.

14. Cash and cash equivalents

Cash consists of public moneys on deposit and cash in transit less outstanding cheques and warrants. Cash equivalents consist mainly of term deposits usually not exceeding 31 days.

Cash and cash equivalents are as follows:

15. Taxes receivable

Taxes receivable include taxes, interest, penalties, and other revenues assessed or estimated but not yet collected as at March 31. They also include other receivables for amounts collectible through the tax system such as provincial and territorial taxes, Employment Insurance premiums and Canada Pension Plan contributions receivable from individuals and employers as applicable.

The details of the taxes receivable and other amounts collectible through the tax system and allowance for doubtful accounts are as follows:

16. Other accounts receivable

Other accounts receivable consist of billed or accrued financial claims arising from amounts owed to the government at year end, including COVID-19 benefit overpayments receivable, and cash collateral pledged to counterparties.

The details of the other receivable and allowance for doubtful accounts are as follows:

The following table provides an aging analysis of billed or accrued financial claims:

17. Foreign exchange accounts

Foreign exchange accounts represent financial assets and liabilities related to Canada’s official international reserves, primarily held in the Exchange Fund Account (EFA), and its membership in the International Monetary Fund (IMF).

The following table presents the balances of the foreign exchange accounts assets:

The following table presents the balances of the foreign exchange accounts liabilities:

(a) International reserves held in the Exchange Fund Account

Foreign exchange accounts assets

The purposes of the EFA, as specified in the Currency Act, are to aid in the control and protection of the external value of the Canadian dollar and to provide a source of liquidity for the government. The EFA holds the largest component of Canada’s official international reserves in a portfolio consisting of high-quality liquid foreign currency securities, deposits and IMF special drawing rights (SDR) holdings.

SDR holdings are interest-bearing international reserve assets created by the IMF. The SDR is not considered a currency, nor is it a direct claim on the IMF; rather, SDR holdings represent a potential claim on the freely usable currencies of other IMF members. The IMF allocates SDRs to its members who are also participants in its SDR department, such as Canada. In an SDR allocation by the IMF, a participant receives SDR holdings (assets) and assumes an equal amount of SDR allocations (liabilities). As a holder of SDRs, Canada has the right to exchange them for an equivalent amount of freely usable currency, or other reserve assets, with other IMF members. The exchange value of the SDR is determined by a weighted basket of major international currencies (US dollar, euro, Japanese yen, British pound sterling and Chinese renminbi). The SDR can also be used in a variety of transactions between the holder and other participants in the SDR department, the IMF, and other prescribed SDR holders. Also, the SDR serves as the unit of account for the IMF and certain other international organizations.

There were no impairments of the marketable securities held in the EFA in 2023 (nil in 2022).

(b) International Monetary Fund

Foreign exchange accounts assets

As an IMF member, Canada has subscribed to the capital of the IMF in an amount corresponding to its quota, which broadly reflects its relative position in the world economy. IMF quotas are denominated in SDRs. Canada’s subscription to the IMF, or its quota, is SDR 11,024 million, or $20,043 million, at March 31, 2023 (SDR 11,024 million, or $19,052 million, in 2022). Subscriptions to the IMF are also a key determinant of a member’s voting power in the IMF; a member’s share in new general SDR allocations; a member’s maximum amount of loans that can be obtained from the IMF under normal access; and the maximum amount of financial resources a member may be required to provide to the IMF.

Canada also lends funds to the IMF and certain IMF-established trusts, which are used by the IMF to provide financing to other members. Canada, along with certain other IMF-member countries, participates in lending arrangements with the IMF (New Arrangements to Borrow, or NAB, and Bilateral Borrowing Agreements, or BBAs) and with the IMF's Resilience and Sustainability Trust (RST), where the resulting loans are considered part of Canada’s official international reserves. The loans resulting from these arrangements are included in foreign exchange accounts assets. Collectively, the maximum direct lending under the NAB and BBAs is limited to no more than the equivalent of SDR 11,279 million, or $20,507 million, at March 31, 2023 (SDR 11,279 million, or $19,492 million, in 2022); and the lending committed to under the RST is limited to the equivalent of $2,000 million (nil in 2022).

Foreign exchange accounts liabilities

Canada is a participant in the IMF's SDR Department (participant), and as such it has received SDR allocations from the IMF. In an SDR allocation by the IMF, a participant assumes the obligations associated with its SDR allocations (liability) and receives an equal amount of SDR holdings (assets). SDR allocations represent an obligation to provide, on demand, freely usable currency to another participant(s) in exchange for an equivalent amount of SDRs, where that other participant(s) has a balance of payments or reserve position need. The SDR market generally functions on a voluntary basis and Voluntary Trading Arrangements (VTAs) are intermediated by the IMF, which handles most SDR transactions between a group of SDR participants who have agreed to exchange SDRs for specific currencies within set trading limits. Canada’s obligation to provide currency in exchange for an equivalent amount of SDRs is generally limited as Canada has a standing arrangement with the IMF which specifies the range of Canada’s SDR holdings and the maximum number of transactions per week. Canada’s SDR allocations are SDR 16,554 million, or $30,098 million, at March 31, 2023 (SDR 16,554 million, or $28,609 million, in 2022).

In partial consideration for its subscription to the capital of the IMF, Canada has issued promissory notes to the IMF which are non-interest bearing, payable on demand, and are subject to redemption or reissue, depending on the needs of the IMF for Canadian currency. These promissory notes have an outstanding amount of SDR 7,729 million, or $14,053 million, at March 31, 2023 (SDR 7,894 million, or $13,643 million, in 2022).

18. Enterprise Crown corporations and other government business enterprises

The net assets and liabilities of enterprise Crown corporations and other government business enterprises are recognized as an investment by the government. In addition, the government has loans and advances receivable from these entities.

(a) Enterprise Crown corporations and other government business enterprises

The following table presents the government’s recorded loans, investments and advances in significant enterprise Crown corporations and other government business enterprises:

The following table presents the summary financial position and results of enterprise Crown corporations and other government business enterprises:

(b) Non-public property

Non-public property (NPP), as defined under the National Defence Act, consists of money and property contributed to or by Canadian Forces members and is administered for their benefit and welfare by the Canadian Forces Morale and Welfare Services (CFMWS). The CFMWS is responsible for delivering selected morale and welfare programs, services and activities through three operational divisions, Canadian Forces Exchange System (CANEX), Personnel Support Programs and Service Income Security Insurance Plan (SISIP) Financial Services. Under the National Defence Act, NPP is explicitly excluded from the Financial Administration Act. The government provides some services related to NPP activities such as accommodation and security for which no amount is charged. The cost of providing these services is included in the consolidated financial statements of the Government of Canada. In 2023, CFMWS administered estimated revenues and expenses of $352 million ($402 million in 2022) and $372 million ($382 million in 2022) respectively and had net equity of $851 million at March 31, 2023 ($868 million at March 31, 2022). These amounts are excluded from the consolidated financial statements of the Government of Canada.

19. Other loans, investments and advances

Other loans, investments and advances are financial claims through debt instruments held by others that are owing to the government and ownership interests acquired through the use of parliamentary appropriations, excluding investments in enterprise Crown corporations and other government business enterprises.

The following table presents a summary of the balances of other loans, investments and advances by category:

The following table presents a summary of the balances of other loans, investments and advances by currency:

Portfolio investments include investments such as bonds, equity investments, money market funds and fixed income securities.

Capital subscriptions are composed of both paid-in and callable capital of international banks. These investments are treated as concessionary as they do not provide a return on investment, but are repayable on termination of the organization or withdrawal from it.

Loans under the CEBA program are provided interest free until December 31, 2023, with repayment incentives of a loan forgiveness of up to a maximum of $20,000 on loans of $60,000 where loan repayment has been made in full by December 31, 2023. Amounts eligible to be forgiven, if repaid by December 31, 2023, of $12,870 million ($13,778 million in 2022) are included in the valuation allowance, and associated expenses have been reported in other transfer payments expenses on the Consolidated Statement of Operations and Accumulated Operating Deficit. Loans not repaid by December 31, 2023, are subject to a one-time extension of two years and 5% interest per annum commencing on January 1, 2024. No principal repayments are required until December 31, 2025, at which time the entire loan and all accrued and unpaid interest becomes due and payable. There are no loans which are past due.

Loans under the Canada Student Financial Assistance Program are provided interest-free to students while they are studying and during the 6-month grace period after completing their studies or apprentice program. Afterwards, they bear interest at either prime rate or prime rate plus 2.0%. The repayment period is generally 10 years, with a maximum of 15 years. To further support borrowers during the COVID-19 pandemic, the Government of Canada extended the waiver of interest accrual on Canada Student Loans and Canada Apprentice Loans until March 31, 2023. Effective April 1, 2023, these loans will no longer bear interest. The following table provides an aging analysis of Canada Student Loans:

Unconditionally repayable contributions are administered under a transfer payment program to achieve objectives such as stimulating economic development and providing international assistance in support of sustainable development goals. The recipients are expected to repay all or part of the amounts advanced, as there is an expected financial return, they are in substance loans. Certain contributions are non-interest bearing and others bear interest at rates varying from 0.3% to 7.0%. Generally, unconditionally repayable contributions have concessional terms, with final instalments due within 1 to 30 years of initial disbursement. There are no loans which are past due.

Other loans and advances consist primarily of loans to international organizations and loans to national governments. Loans and advances to international organizations are primarily made to banks and associations that use these funds to make loans to developing countries at significantly concessionary terms. Loans to national governments consist mainly of loans to national governments to support economic resilience, development assistance, or development of export trade. Certain loans are non-interest bearing and others bear interest at rates varying from 0.5% to 10.3%. These loans are repayable over 1 to 55 years, with final instalments due in 2048.

20. Tangible capital assets and inventories

Tangible capital assets consist of acquired, built, developed or improved tangible assets whose useful lives extend beyond the fiscal year and which are intended to be used on an ongoing basis for producing goods or delivering services, including military activities. Tangible capital assets include land; buildings; works and infrastructure; machinery and equipment including computer hardware and software; vehicles including ships, aircraft and others; leasehold improvements; and assets under construction. Tangible capital assets also include assets under capital lease. Renewal options for assets under capital leases are typically for periods of 3 to 5 years and are exercisable at the discretion of the lessee. Detailed information on tangible capital assets is provided in Section 10 (unaudited) of this volume.

Inventories are comprised of spare parts and supplies held for future program delivery and are not primarily intended for resale.

Except for land, the cost of tangible capital assets used in government operations is generally amortized on a straight-line basis over the estimated useful life of the asset as follows:

The following table presents a summary of the transactions and balances for the main categories of tangible capital assets:

21. Financial instruments

The government uses various financial instruments to manage financial risks associated with its financial assets and liabilities. The government does not hold or use derivative instruments for trading or speculative purposes.

(a) Classification and risks overview

The government’s financial instruments, the classification, and the nature of certain risks to which they may be exposed are as set out in the following table:

(b) Credit risk

Credit risk refers to the risk that a counterparty will default on its contractual obligations resulting in financial loss.

Except for loan guarantees, the government’s maximum exposure to credit risk is the carrying amount of its financial assets. The maximum exposure to credit risk related to guarantees is the principal amount outstanding as outlined in Note 8(b).

Cash and cash equivalents

The government has deposited cash with the Bank of Canada, from which management believes the risk of loss to be remote. The prudential liquidity balance is held by the Bank of Canada.

Exchange Fund Account

As specified in the Statement of Investment Policy (SIP) for the Government of Canada that governs the Exchange Fund Account (EFA), to help achieve the objective of preserving capital value, an entity must be deemed to have a credit rating of A- or higher to be eligible for investment in the EFA. As of March 31, 2023, the majority of these investments were given a rating of AA+ or higher by external credit rating agencies. The external ratings are based on the second highest rating among those provided by Moody’s Investors Service, Standard & Poor’s, Fitch Ratings and Dominion Bond Rating Service.

Concentration of credit risk

Concentrations of credit risk occur when a significant proportion of the portfolio is invested in securities subject to credit risk with similar characteristics or subject to similar economic, political or other conditions. The EFA may hold fixed income securities of highly rated sovereigns, central banks, government-supported entities and supranational organizations. The SIP ensures that the EFA's asset portfolio is prudently diversified with respect to credit risk by placing limits on holdings by class of issuer (sovereign, agency, supranational, corporation or commercial financial institution), by individual issuer or counterparty, and by type of instrument. It also specifies the treatment of holdings that do not meet eligibility criteria or limits due to exceptional circumstances such as ratings downgrades. The following table provides the fair value of the investments held in the EFA as at March 31, 2023, by currency and class of issuer:

Other accounts receivable

There is no significant concentration of credit risk related to billed and accrued financial claims. An analysis of the age of these financial assets and the associated valuation allowances used to reflect these accounts at their net recoverable value is disclosed in Note 16.

Other accounts receivable also includes cash collateral pledged to counterparties on swap agreements. Credit risk related to these agreements is discussed with respect to derivative below.

Other loans, investments and advances

The government intentionally takes on counterparty risk related to other loans, investments and advances with concessionary terms in order to support various policy aims. Other loans are issued pursuant to legislation or based on the established criteria set out under various loan programs. These loans have been provided to different borrowers such as small businesses and not-for-profit organizations, students, national governments, and international organizations.

Loans under the CEBA program to small businesses and not-for-profit organizations were provided to help these entities navigate the COVID-19 pandemic and remain resilient. Loans to students under the Canada Student Financial Assistance Program are provided to help students pay for their post-secondary education. Other loans and unconditionally repayable contributions are provided to various recipients including international organizations, banks, associations and national governments under various acts or programs, these instruments can include concessionary terms. These instruments are not provided based on a credit risk assessment of the borrower, but based on individual program criteria. Under these programs, various levels of credit risk are assumed.

Valuation allowances are applied accordingly to reflect these accounts at their net recoverable amount. The valuation allowances take into consideration the borrower’s or group of borrowers’ credit risk rating, recent collection history, economic situation in the country or industry of operation and any other known circumstances impacting collectability. These accounts are described in detail in Note 19.

Derivatives

For cross currency swaps and foreign exchange forward contracts, the government manages its exposure to credit risk by dealing with counterparties having acceptable credit ratings.

The credit risk associated with cross-currency swaps is mitigated through netting provisions in the ISDA Master Agreements, which govern cross currency swaps entered into by the government and which give the government the right, upon default of a counterparty, to settle all contracts with that counterparty under the particular ISDA Master Agreement on a net basis. This reduces the maximum exposure to credit risk from cross-currency swaps in the event of a counterparty’s default, in that the government may offset the amounts due from that counterparty with the obligations due to that counterparty under all derivative contracts covered by the particular ISDA Master Agreement.

Credit risk is also managed through collateral provisions in swap and foreign exchange forward agreements. The government enters into two-way Credit Support Annex (CSA) agreements for cross-currency swaps with certain counterparties pursuant to ISDA Master Agreements. Under the terms of those agreements, the government may be required to pledge and/or receive eligible collateral. In the normal course of business, these pledged collateral amounts (which may include cash and/or securities) will be returned to the pledgor when there are no longer any outstanding obligations. Collateral held in securities from counterparties has not been recognized in the Consolidated Statement of Financial Position as the government does not obtain economic ownership unless the pledgor defaults. Collateral pledged by counterparties to the government may be liquidated in the event of default to mitigate credit losses.

Collateral pledged by counterparties under two-way CSA agreements as at March 31, 2023, is presented in the following table:

The collateral posted by counterparties is sufficient to cover the government’s entire net exposure to credit loss under derivative contracts. The government does not have a significant concentration of credit risk with any individual institution and does not anticipate any counterparty credit loss with respect to its swap and foreign exchange forward agreements.

The following table presents the contractual or notional principal amounts of the swap and foreign exchange forward agreements organized by credit ratings based on published Standard & Poor’s credit ratings and stand-alone credit profiles at year end:

(c) Liquidity risk

Liquidity risk is the risk that an entity will encounter difficulty in meeting its obligations associated with financial liabilities.

The fundamental objective of the government’s debt management strategy is to provide stable, low-cost funding to meet the government’s financial obligations and liquidity needs. The government has access to multiple active borrowing programs, including those in the domestic Canadian market and those in foreign currency markets. Through the Borrowing Authority Act (“BAA”) and the Financial Administration Act (“FAA”), parliament authorizes the Minister of Finance to borrow money on behalf of His Majesty in right of Canada. Details of these programs are provided in Note 3(c) Borrowing Authorities.

The government’s overall liquidity is maintained at a level sufficient to cover at least one month of net projected cash flows, including coupon payments and debt refinancing needs. The government holds liquid financial assets in the form of domestic cash deposits and foreign exchange reserves to safeguard its ability to meet payment obligations in situations where normal access to funding markets may be disrupted or delayed. Part of the government’s liquid financial assets includes $20 billion in cash designated by the government for its prudential liquidity plan.

Proceeds of the government’s foreign currency borrowings are held in the Exchange Fund Account to provide liquidity and provide funds needed to promote orderly conditions for the Canadian dollar in foreign exchange markets.

The following table details the contractual maturities for the government’s significant financial liabilities. The amounts represent undiscounted cash flows of financial liabilities based on the earliest date the government can be required to pay. The table includes both principal and interest cash flows:

(d) Market risk

Market risk is the risk that the fair value or future cash flows of a financial instrument will fluctuate because of changes in market prices. Market risk comprises three types of risk: currency risk, interest rate risk and other price risk.

i. Currency risk

Currency risk is the risk that the fair value or future cash flows of a financial instrument will fluctuate because of changes in foreign exchange rates. The government is exposed to currency risk through fluctuations in foreign-denominated future cash flows, namely those related to investments in the Exchange Fund Account, foreign debt, loans to international organizations and derivatives including collateral.

Exchange Fund Account

Currency risk is managed using a strategy of matching the currency and the duration of the Exchange Fund Account assets and the related foreign currency borrowings of the government. As at March 31, 2023, the impact of exchange rate changes affecting the Exchange Fund Account assets and the liabilities funding the assets naturally offset each other, resulting in no significant impacts to the government’s net debt.

The majority of the Exchange Fund Account foreign currency assets and liabilities are held in 4 currency portfolios: US dollar, Euro, British pound sterling, and Japanese yen. The following table presents the net impact to the Exchange Fund Account, and the related foreign-denominated debt, cross-currency swaps and foreign exchange forward contracts of a 1% appreciation in the Canadian dollar as at March 31, as compared to the US dollar, euro, British pound sterling and the Japanese yen.

The net foreign exchange gain included in net foreign exchange revenues, other revenues and other expenses on the Consolidated Statement of Operations and Accumulated Operating Deficit amounts to $414 million (net foreign exchange loss of $12 million in 2022).

ii. Interest rate risk

Interest rate risk is the risk that the fair value or future cash flows of a financial instrument will fluctuate because of changes in market interest rates.

The government’s exposure to interest rate risk principally arises from possible fluctuations in the future cash flows related to variable-rate cross-currency swaps due to changes in market interest rates.

The table below shows the sensitivity analysis of the possible net impact of an increase in interest rates of 100 basis points as at March 31 on cross currency swaps.

Interest rate risk for the Exchange Fund Account is managed using a strategy of matching the duration of the assets with the related borrowings of the government, the foreign debt and cross currency swaps, under the asset-liability matching strategy. By matching the duration of the assets with that of the liabilities, a change in interest rates has a similar effect on the fair value of both assets and liabilities.

The government’s domestic debt, cash equivalents and certain other loans, investments and advances generally bear fixed interest rates. Although subject to interest rate risk because the fair value of these instruments will be affected by changes in market interest rates, there is no impact on the consolidated financial statements as these financial instruments are measured at cost or amortized cost.

iii. Other price risk

Other price risk is the risk that the fair value or future cash flows of a financial instrument will fluctuate because of changes in market prices, other than those arising from interest rate risk or currency risk, whether those changes are caused by factors specific to the individual financial instrument or its issuer, or factors affecting all similar financial instruments traded in the market.

In 2022, the government stopped issuing new real-return bonds. However, the government is exposed to inflation risk through its existing real return bonds, as interest and principal payments are adjusted for changes in the consumer price index (CPI). If the CPI applicable to real return bonds were to increase by 5% at March 31, 2023, the carrying amount of the bonds as at that date would increase by $3,671 million, with the adjustment recognized immediately as an expense charge. Such a change would also increase annual interest expense by $76 million. A decrease in the CPI would have the opposite effect, by decreasing the carrying amount of the bonds, with the adjustment recognized immediately as income, and by decreasing annual interest expense.

Other than inflation risk, the government is not exposed to significant other price risk.

22. Contractual obligations and contractual rights

(a) Contractual obligations

The nature of government activities results in large multi-year contracts and agreements, including international treaties, protocols and agreements of various size and importance. Detailed information on contractual obligations is provided in Section 11 (unaudited) of this volume.

Major contractual obligations that will generate expenditures in future years and that can be reasonably estimated are summarized as follows:

(b) Contractual rights

The activities of government sometimes involve the negotiation of contracts or agreements with outside parties that result in the government having rights to both assets and revenues in the future. They principally involve sales of goods and services, leases of property, and royalties and revenue/profit-sharing arrangements while all other contractual rights are combined for reporting purposes. The government has agreements that provide contractual rights to future revenue based on a percentage of revenue or profits of the other party to the agreement or based on receiving an amount for each unit of goods sold. The terms of these contracts or agreements may not allow for a reasonable estimate of future revenues.

Where the terms of contracts and agreements allow for a reasonable estimate, the major contractual rights are summarized in the table presented below. Detailed information on contractual rights is provided in Section 11 (unaudited) of this volume.

23. Segmented information

The government segmented information is based on the ministry structure, which groups the activities of departments, agencies and consolidated Crown corporations and other entities for which a Minister is responsible, and the enterprise Crown corporations and other government business enterprises as described in Note 1 and Note 18.

In the table below, the five main ministries are reported separately, and the Other ministries column includes amounts for all other ministries as well as the provision for valuation and other items. The following tables present the segmented information by Ministry and enterprise Crown corporations and other government business enterprises before the elimination of internal transactions that are eliminated in the adjustments column before arriving at the total for the year ended March 31:

Public Accounts of Canada 2023 Volume I—Bottom of the page Navigation

• Previous page: Auditor General of Canada—Independent Auditor's Report
• Section 2: Table of contents: Section 2: Consolidated financial statements of the Government of Canada and report of the Auditor General of Canada