A. OVERVIEW
Charities that carry out activities abroad must ensure
that they adhere to CRA’s requirements for charities engaged in foreign
activities. Failure to adhere to those requirements may lead to dire consequences
such as the revocation of the charity’s status as a registered charity
accompanied by the directors and officers of the corporation becoming “ineligible
persons.” This bulletin reviews CRA’s requirements on charities engaged in
foreign activities, as well as discusses the pro-active steps that such
charities may take in order to prepare for a CRA audit.
B. CRA’S BASIC REQUIREMENTS WHEN CARRYING ON FOREIGN ACTIVITIES
The applicable requirements imposed on charities carrying
on foreign activities are outlined in CRA Guidance CG-002, Canadian
Registered Charities Carrying Out Activities Outside Canada (“Guidance”),
available online at http://www.cra-arc.gc.ca/chrts-gvng/chrts/plcy/cgd/tsd-cnd-eng.html.
According to the Guidance, a Canadian registered charity may only use its
charitable resources in the following two ways: (a) to make gifts to qualified
donees, as defined under the Income Tax Act (ITA), which includes other Canadian registered charities, prescribed
universities outside Canada, the United Nations, etc.; and (b) to carry on its
own programs and activities.
In “carrying on its own activities”, it is meant that all
of the activities of a Canadian registered charity are directly under its own
control and supervision and that it can account for any and all funds expended
on the said activities. In order to be considered to be carrying on its own
activities, a Canadian registered charity must be actively involved in
all programs and projects carried out utilizing its charitable funds, with the
said programs and projects intended to achieve its own charitable purposes.
This is most usually done by the Canadian charity using its charitable
resources to directly fund its own employees and volunteers in carrying
out the programs and activities in question. It is not permissible for a
Canadian registered charity to simply give or transfer its monies or other
charitable resources to another organization which is not a qualified donee
under the ITA.
That said, CRA does permit a Canadian registered charity
to carry out its programs and activities by transferring charitable resources
to, and working with, third party intermediaries that are not qualified donees
under the ITA, (i.e. organizations or individuals located either inside or
outside of Canada). However, when working through an intermediary, a charity
must direct and control the use of its resources.
The question then becomes how a Canadian registered
charity evidences its direction and control over its charitable resources,
particularly when it is involved in working through an intermediary. The
starting point for evidencing direction and control is for the Canadian charity
to ensure that it has prepared and entered into proper written agreements with
all of its intermediaries setting out the terms of the “structured arrangement”
between them. Although it is not a legal requirement to have a written
agreement, CRA recommends the creation of a written agreement and
implementation of its terms and provisions. However, where the Canadian charity spends $1,000 or less on a one-time
activity, other forms of communication may be used to demonstrate direction and
control over the use of resources of intermediaries.
As well, other measures recommended by CRA for maintaining
direction and control of a charity’s resources include:
- Communicate a clear, complete,
and detailed description of the activity to the intermediary;
- Monitor and supervise the
activity;
- Provide clear, complete, and
detailed instructions to the intermediary on an ongoing basis;
- Segregate funds, as well as books
and records, for agency relationships; and
- Make periodic transfers of
resources, based on demonstrated performance.
In addition to these measures, the Canadian charity’s
board of directors must exercise initial oversight in carefully reviewing and
determining which of its charitable programs and activities (i.e. those which
fulfill its charitable objects approved by CRA) it wishes to carry out through
intermediaries and which intermediaries are the most appropriate ones to
utilize in carrying out the said programs and activities.
Thereafter, the Canadian charity, with the ultimate
responsibility being in the hands of its board of directors, must ensure that
it is exercising ongoing supervision of the programs and activities being
carried out on its behalf by intermediaries, and that all monies spent by the
Canadian charity on these programs and activities (i.e. being transferred to
the intermediaries in question) are properly utilized and accounted for. In
this regard, the board of directors of the Canadian charity cannot simply
“rubber stamp” foreign activities proposals that are submitted to them by
intermediaries and then transfer charitable resources to such intermediaries.
Instead, charities must have proper written agreements in place in accordance
with CRA requirements and, thereafter, take steps to ensure that the
transferred charitable resources are, in fact, used for the intended programs
and activities. This may require obtaining evidence of the same from the
intermediaries. Failing to supervise the programs and services and to ensure the
charitable resources are spent properly can pose significant risks to the
charity’s ongoing charitable registration.
C. TYPES OF INTERMEDIARIES
There are four common types of intermediaries that
Canadian charities can utilize to carry on its programs and activities outside
of Canada. The applicability, but more importantly the suitability, of these
intermediary options will depend on a charity’s particular circumstances and
the nature of the foreign activities to be engaged in through its
intermediary(ies). A brief description of each type of intermediary is provided
below.
The first type of intermediary is an agent that agrees to
carry out specific activities on the Canadian charity’s behalf. An agent is
used when the Canadian charity is unable to send its own staff into the field
to carry out its activities. While agents can be helpful in achieving a charity’s objectives, CRA warns
charities to consider how they structure their agency arrangements because the
existence of an agency relationship could expose them to vicarious liability
for the acts of their agents. Vicarious liability can expose a Canadian charity
to significant liability, both civil and criminal (e.g. anti-terrorism
legislation). Even where a formal agency agreement is not in place, a court may
still assign liability to the Canadian charity if the circumstances indicate
that an implied agency relationship existed.
Canadian charities considering the use of an agent should
note that some insurers may be concerned about the vicarious liability risks
that are associated with agency relationships. Unless these risks are disclosed
to the insurer, they may not be covered by insurance policies. As such, a
Canadian charity should advise its insurer in writing of the nature and extent
of its agency relationships and obtain a written response from the insurer to
avoid any surprises.
A second type of intermediary is a joint venture
participant, which is an organization that works with a Canadian charity to
carry out a charitable activity. Pursuant to a joint venture agreement, the
Canadian charity and the joint venture participant(s) combine their resources
to accomplish their mutually agreed upon goals. The Canadian charity does not
rely entirely on the joint venture participant(s) to carry out activities for
the charity. A charity can work with non-qualified donees as long as the
charity is exercising control over the activities proportionate to the
resources it is providing and it can demonstrate this fact.
A third type of intermediary is a cooperative participant,
which is an organization that works side-by-side with the Canadian charity. A
cooperative participant is only responsible for certain parts of a project that
it is working on with the charity, and therefore does not share responsibility
with the charity.
Finally, the fourth type of intermediary is a contractor
for services, which is the most commonly used these days. A contractor for
services is an organization or individual that is hired by the Canadian charity
to provide goods and/or services. Contractors can be organizations or individuals
and do not need to be either qualified donees under the ITA or recognized charities
in their own countries. Direction and control is typically exercised by the
Canadian charity through its agreement with the contractor. The registered charity must give specific instructions to its contractors.
The contractor for services is the most commonly used
intermediary because there are a number of advantages to the Canadian charity
through the use of this type of intermediary. The main advantage is reduced
liability exposure for the Canadian charity for the actions undertaken by the
intermediary, as compared to potential vicarious liability exposure that arises
from the principal-agent arrangement more commonly utilized in the past.
Other advantages in utilizing a contractor for services include
the lack of any requirements to segregate funds or to reflect assets already
transferred to the agent in the financial statements of the charity. As well,
once assets have been transferred to a third party contractor under a contract
of service, such assets are treated as having been expended for the purpose of
the Canadian charity’s 3.5% disbursement quota. For disbursement quota
purposes, the time at which monies are paid by a Canadian charity to a
contractor under a contract of services would be the time of the expenditure
and not when the contractor fulfills the terms of the contract. Another
advantage is that the absence of vicarious liability may make a contract of
service more attractive to an insurer as compared to an agency relationship.
D. GETTING READY FOR A FUTURE CRA AUDIT
In general, where a charity is engaged in foreign
activities and uses intermediaries to carry out such activities, it is more
likely to be audited by CRA. Given this reality, it is important that a charity
take steps on a contemporaneous basis to ensure that it is carrying out foreign
activities through intermediaries in strict compliance with CRA requirements,
including ensuring that proper books and records are kept in relation to all
such activities. Such practices will serve the charity well if and when it is audited
by CRA.
Failing such contemporaneous best practices regarding
proper books and records being in place by the charity in relation to its
foreign activities, it is important that the charity take steps to prepare for
any pending CRA audit. In this regard, it is generally recommended that
charities consider carrying out a “pre-audit” in order to determine if it is in
compliance with CRA requirements.
The purpose of such a pre-audit compliance review is to:
- Identify all foreign
activities/projects of the charity (past, present and future
contemplated);
- Review whether there has been
compliance with CRA requirements for each activity/project;
- Compile all key documents for
each activity/project; and/or
- Engage in remedial steps, as
necessary.
Although CRA can audit any fiscal year of a Canadian
charity, it generally will focus on the last five years of the charity’s
operations. Accordingly, these years should be the focus of the pre-audit,
starting with the earliest financial year and working forward. It is highly
recommended that the charity’s own legal counsel be involved in the pre-audit
in order to establish solicitor-client privilege and an accountant be retained
as well.
The first step in a pre-audit is the identification of any
foreign activities or projects that the Canadian charity is engaged in. This
step involves a review of the charity’s annual general ledger for the last five
years. When reviewing the general ledger, the charity will need to identify
every single transaction which involved the transfer of charitable property
(e.g. cash or gifts in kind) to a non-qualified donee. For every transaction,
the charity will need to identify the following:
· Who the
non-qualified donee recipient of the charity’s property is;
· The nature of
the relationship with the non-qualified donee, e.g. agency, contract for
services;
· Whether the
non-qualified donee has utilized another organization to do the project in
question, e.g. sub-agent or sub-contractor;
· The nature of
activity/project for which charitable property was used;
· Whether this
was a one-time transaction or one of many involving the non-qualified donee;
· The nature of
the charitable property transferred; and
· What, if any,
written documentation regarding the transfer(s) is immediately accessible.
As part of this process, it will be necessary to prepare a
summary of the transactions of potential concern, group them together as
necessary, and preliminarily identify issues to be reviewed further with legal
counsel (and the accountant).
The second step of the pre-audit is to determine if the
Canadian charity's foreign activities have been conducted in compliance with
CRA’s requirements. This step involves gathering all supporting documentation
that demonstrates “direction and control” by the charity over its foreign
activities. A convenient and efficient way of organizing the documentation is
to create separate project folders for each foreign activity or project. A
compliance checklist that outlines all of the steps/documentation that is
required by CRA should be attached to the inside cover of each project folder. Each
project folder should be numbered and then cross-referenced to the applicable
transactions on the general ledger. This type of cross-referencing system will
facilitate easy access to the applicable project folder in the event that an
actual CRA audit occurs and questions are raised about a particular project or
transaction listed on the general ledger.
The compliance checklist for each project folder should
generally include the following:
· The date that
the pre-audit was completed for the project;
· The assigned
project program number;
· The project’s
name;
· Identification
of the project type (eg. if it falls within one of the charity’s main project
areas);
· The name of
the non-qualified donee (eg. contractor, agent, etc.);
· The name of any
additional third parties involved in the project (eg. sub-contractor, sub-agents),
if applicable;
· The total
funds transferred, together with interim fund transfers, if applicable,
including dollar amounts and dates; and
· Required
Documents – Indicate if the following required documents have been located,
date completed and if any additional steps need to be taken:
o Original project proposal;
o Board approval of project
(include copy of applicable board minutes);
o Written agreement;
o Project designations(s) for
contractor/agent (for initial and any interim fund transfers);
o Wire transfer and letter;
o Any sub-agreement with
sub-contractor/sub-agent, if applicable;
o Sub-project designation(s) (for
initial and any interim fund transfers);
o Interim project reports and, if
applicable, sub-project reports;
o Final project reports and, if
applicable, sub-project reports;
o Board acceptance of all project
reports (include copy of board minutes);
o Photographs,
brochures and other evidence that the project took place;
o Any correspondence between the
charity and contractor showing charity’s supervision and involvement in the
project;
o On-site
reports by charity’s directors, staff and/or volunteers;
o Receipts/vouchers
or audit letter in lieu of receipts/vouchers; and
o Additional
notes, as required.
The charity must complete the checklist for each project
folder, and in doing so, identify which steps have (or have not) been taken by
the charity and which documentation is (or is not) readily available.
The third step in the pre-audit is to compile all key
documents for each activity or project. Having identified the outstanding
documentation that needs to be in place for a project, such documentation
should be located and inserted into the applicable project folder. Once this
process is complete, the charity should meet with its legal counsel to review
the current state of the project folders and the next steps that need to be
taken by the charity. It may be necessary to contact the intermediary and
explain the documents that the charity is looking to obtain and following up to
ensure that said documents are provided to the charity.
The fourth step is to take remedial action, if necessary.
The exercise of locating documentation in the previous step may have resulted
in the discovery that certain required documentation was never prepared and
must now be created. Other remedial action may be necessary, depending on the
charity's particular circumstances. Whatever the case, the charity should
consult legal counsel prior to preparing remedial documents. Possible remedial action
could include the following:
- Preparation of any missing
reports from contractors and/or subcontractors, or preparation of more
fulsome reports if initial ones are unsatisfactory;
- Translation of reports, if not
done to date, into English and/or French;
- Obtaining any supporting
documents in relation to the project, e.g. photographs, news articles,
onsite visit reports by charity representatives, project related
correspondence to or from the charity, etc.; and
- Obtaining receipts/vouchers or an
audit report in lieu thereof.
As a result of carrying out a pre-audit, there are other
related issues that the charity may become aware of and take steps to address
before engaging in any further foreign activities through intermediaries. For
example, the charity may wish to create an instruction manual for use in any
future foreign activities. Alternatively, changes to the written agreement and
the type of intermediary used (e.g. possibly switching from an agency agreement
to a contract for service) may be considered by the charity. Further, in order
to reduce the size of compliance requirements, the charity may wish to
streamline the number of intermediaries that it charity works with in carrying
out foreign activities. As well, the charity may wish to review whether its
charitable work could be done through another Canadian registered charity,
thereby eliminating or reducing its need to meet CRA compliance requirements
related to foreign activities.
E. CONCLUSION
Canadian charities that engage in foreign activities
should conduct a pre-audit in order to gauge their compliance with the CRA’s
requirements. This proactive step will flag any requirements that have not been
met in the past and will allow charities to remediate these issues prior to an
actual CRA audit. This process will also facilitate charities putting proper
compliance measures in place now in order to properly carry out foreign
activities through intermediaries in the future.