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Evaluation of the Canada Remembers Program

Evaluation of the Canada Remembers Program

Audit and Evaluation Division – Veterans Affairs Canada – June 2022

Evaluation results

Relevance

The evaluation team confirmed through interviews, analysis of public opinion research, educator feedback evaluations and program intake that the Canada Remembers Program continues to address a need, with opportunities to evolve to reach more Veterans and Canadians. The program aligns with Government of Canada goals and priorities and also with Veterans Affairs Canada’s mandate to “promote recognition and remembrance of the achievements and sacrifices of those who served Canada in times of war, military conflict, and peace”.

To support the evolution of the Canada Remembers Program a costed operational plan connected to the strategic vision needs to be developed. The plan should clearly identify key priorities (e.g., 3 to 5), roles and responsibilities, resources required, and oversight and monitoring needs to be developed. Designating initiatives as departmental projects would allow for project management oversight and support.

Effectiveness

Performance measures in the Performance Information Profile for the program are being collected and key measures are publicly reported in the annual Departmental Results Report. Although progress towards outcomes is measured and overall is being achieved the Performance Information Profile needs updating to better reflect the program and its evolution. For example, the program can incorporate Gender Based Analysis plus and align measures to the future direction of commemorative programming. Additionally, there is overlap in the program’s outcomes and some indicators and targets should be updated to align to strategic commemoration planning documents. Commemoration should track and measure the impact of the overseas memorials separately from the overall Canada Remembers Program.

Efficiency and Economy

Veterans Affairs Canada’s 2018 Overarching Commemoration Evaluation stated there is a need for “stable long-term funding to allow for efficient planning and implementation . . . to ensure the ongoing commemorative integrity of the Canadian National Vimy Memorial and the Beaumont-Hamel Newfoundland Memorial.” The evaluation team learned from key informant interviews that ongoing stable funding remains a challenge as noted in the last departmental evaluation. Capital investments are needed to conserve the memorials and support infrastructure.

The Commemoration Division relies heavily on operating funds to deliver core elements of the Canada Remembers Program, including European Operations. This presents a risk that core programming could be affected if departmental operating funds are reduced. Also, since operating funds are requested through annual internal integrated business planning, funding levels to meet conservation and visitor experience objectives could be re-allocated based on other departmental needs. This could also assist European Operations enhance its departmental profile and obtain long-term, stable funding.

Work is underway to move the Commemorative Partnerships Program online. This is expected to improve efficiency for applicants and reduce manual processing. The evaluation team noted that the Canada Remembers Division should consider further leveraging the use of technology to reach more Canadians.

Recommendation Management Response and Action Plan

The Assistant Deputy Minister, Commemoration and Public Affairs Branch:

  1. Develop a costed operational plan that clearly identifies resources and technical tools/enhancements required to support the delivery of initiatives within the Commemoration strategic plan or vision. The plan should include European Operations requirements for conservation and visitor experience.

  2. Implement the operational plan and where required, pursue:

    1. increasing physical and technical capacity to better manage and deliver projects and initiatives; and
    2. securing stable long-term funding to efficiently plan and implement day-to-day work in Canada Remembers including European Operations.

The Commemoration Division will develop a costed 3-year operational plan for the Canada Remembers Program to be implemented for the period 2023-26. This plan will align with the Government of Canada’s priorities, the expectations of Canada, and the continued needs of the program. The plan will consider both day-to-day operations and special projects that deliver recognition programming, adequate stewardship to conserve (preserve) memorials and expand capacity to deliver modern commemorative experiences nationally and overseas at the National Historic Sites, including Vimy and Beaumont-Hamel. On 25 July 2022, the Government of Canada secured longer term funding and announced on 1 March, 2023 that $11.7 million will be invested over six years and almost $300,000 annually to maintain, modernize and enhance visitors’ experience at Canada’s overseas memorial sites.

The Director General, Commemoration Division review and revise the Canada Remembers Program Performance Information Profile (including the logic model) to ensure:

  1. Activities, outcomes, targets, tools and data sources are updated, and align to the strategic vision for Commemoration;
  2. Outcomes and performance indicators are developed specific to overseas memorial sites (National Historic Sites), including cultural integrity, conservation and visitor experience; and
  3. Performance indicators measure the program’s success in supporting reconciliation efforts and incorporate Gender Based Analysis plus.

Commemoration Division will update the Canada Remembers’ performance information profile (PIPs) and/or create separate PIPs to ensure performance outcomes align to and measure the full mandate of the program. This will include recognition programming, conservation of memorials (National Historic Sites), and modern commemorative experiences that engage key audiences with an aim to fully integrate GBA plus intersections per TBS requirements.

The Director General, Commemoration Division strengthen internal partnerships (Real Property, Procurement, Information Technology, and Policy) to establish clear roles, responsibilities and accountabilities to better support the Commemoration Division, including the European Operations Directorate

The Commemoration Division will review the structure of the Division and develop clear responsibilities and accountabilities to better support the work of the Commemoration Division, including the European Operations Directorate. This review will also identify inter-departmental supports required (Policy, Information Technology, Procurement and Real Property) and ensure Commemoration receives the same supports provided to other areas within the department.

Program Description

  • Veterans Affairs Canada’s Commemoration Division pays tribute to the achievements and sacrifices made by those who served Canada and promotes an understanding of the significance of these efforts in Canadian life as we know it today. The Canada Remembers Program achieves this through the presentation and perpetual care of memorials, cemeteries and grave markers, providing funding for community led commemorative initiatives, leading and supporting ceremonies and events, and the presentation of honours and awards.
  • The Commemorative Partnership Program provides grants and contributions to support community and third-party organizations as they carry out remembrance initiatives. Funding is available to non-profit and for profit organizations, in Canada or abroad. The program typically funds more than 200 projects a year with a budget of $2.2 million.
  • Commemorative ceremonies and events are held in person and virtually throughout the year in Canada and internationally. In 2019-20, there were 82 international events and 356 events in Canada.
  • Learning and public information goal is to engage school aged children, youth, educators, and the general public by providing learning and public information resources. Print material and online content is available.
  • Memorials in Europe consist of 14 battlefield memorials that commemorate the sacrifices and achievements of Canadians and Newfoundlanders from the First and Second World Wars. These sites are overseen by the European Operations directorate of the Commemoration Division. Veterans Affairs Canada is also responsible for updating and maintaining the Books of Remembrance (located in the Peace Tower in Ottawa) and the Canadian Virtual War Memorial (an online searchable version of the Books of Remembrance providing the ability to access or contribute information about each person).

About the Evaluation

Scope and Methodology

  • Conducted in accordance with the directive and standards specified in Treasury Board of Canada’s 2016 Policy on Results.
  • Covers the time frame from April 2017 to June 2021.
  • Conducted between April 2021 and March 2022.
  • Multiple lines of evidence were used including document reviews, data analysis, site visits (virtual and in-person), and key informant interviews.
  • Purpose of the evaluation was to ensure the programs are relevant and meeting needs, while determining if there are opportunities to improve effectiveness or efficiency. It is anticipated that evaluation results will support the Commemoration Division in managing the programs and future decision making.
  • Areas out of scope included: Métis Veterans Recognition Payment, and Cemetery and Grave Marker Maintenance Program, Honours and Awards Program, and Overseas Cemeteries/Graves (covered in another evaluation completed in March 2022).

Constraints and Limitations

  • In spring 2021 the House of Commons Standing Committee on Veterans held meetings and consultations on Commemoration. This committee will be providing guidance and direction to Veterans Affairs Canada through studies, reports and government responses. As of spring 2022 there has not been a report issued. Any recommendations will require consideration by VAC.
  • Restrictions due to the COVID-19 pandemic limited the evaluation team’s ability to conduct in person interviews and observations including site visits to memorial as in the last evaluation.

Evaluation Report

Evaluation of the Canada Remembers Program - June 2022

 
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