2.0 Summary of findings

2.1 Relevance

2.1.1 What is the relationship between CTS and ETB and between these programs and other VAC programs in the continuum of supports for Veterans? Are these relationships appropriate/working effectively to meet Veterans’ needs?

Relationship between CTS and ETB

While there are separate policies for each of the programs, the two programs (CTS and ETB) are complementary and well-integrated. In terms of eligibility, Veterans may apply for CTS at the same time they apply for ETB, and they are encouraged to do so. This allows clients to take advantage of the education and training planning services offered through CTS. CTS clients can also receive guidance and assistance in completing their ETB-related forms.^{Footnote 14} In the ETB Business Process, the application process states “Applicants who are eligible for VAC’s Career Transition Services (CTS) program should be encouraged to contact the CTS national third-party service provider for personalized ETB assistance. They will work with the Veteran to help them complete the ETB application and Plan.”^{Footnote 15}

In practice, the Career Transition Plan identifies the services needed, including the identification of education and training needs.^{Footnote 16} Releasing CAF Members, Veterans, survivors and spouses/common-law partners are eligible to receive a formal individualized Educational Plan (in addition to a Career Transition Plan). These client types can also receive educational counselling, such as education requirements to achieve career goals, skills employers are looking for, what education and training is needed for specific jobs, etc.^{Footnote 17}, Departmental internal documents indicated^{Footnote 18} that “CTS should bookend the Veteran’s educational experience” meaning that CTS services can be accessed before and after their formal program (before in terms of planning and after in terms of helping clients find a job in a field related to their education, if employment is a goal).

This connection between the programs is reinforced in documentation aimed at the National Contact Centre as well as ETB applicants. Documentation available to the National Contact Centre Network (NCCN) indicates that “CTS complements the new Education and Training Benefit to help Veterans make informed choices about their career path.”^{Footnote 19} The Application Guide for ETB specifically mentions that help and advice about ETB is available through CTS including providing “personalized help in:

• Deciding which field of study is right for you
• planning your studies to suit your circumstances
• completing the ETB forms so you can access your funds when you need them
• finding a suitable job when your education and training is complete.”^{Footnote 20}

The Application Guide provides information on how to apply for CTS and ETB, but notes that it is not necessary to access CTS in order to qualify for ETB.

According to interviewees, it is expected that, based on the education and training needs identified in the Plan, CTS clients will apply to ETB. According to data from the third-party service provider, between 12% and 14% of file closures are due to clients moving on to ETB.

Figure 3: Percent of CTS files closed due to participation in ETB

Figure 3: Percent of CTS files closed due to participation in ETB

Year	Percent
2018-2019 (n=79)	13.2%
2019-2020 (n=105)	12.3%
2020-2021 (n=249)	14.3%

Source: Third-party service provider’s 3-Year Report

Interviewees noted that CTS and ETB services are well integrated, and that education planning is available while receiving CTS services. Moreover, Veterans are referred to ETB by the CTS third-party service provider, as well as through the various VAC systems. VAC frontline staff indicated that they have to help Veterans to apply for ETB more often than expected (e.g., to fill out forms). Likewise, some Veterans noted challenges in navigating the application process.

Suggestions to improve the integration of the two programs include:

• Having periodic (quarterly) calls between the CTS and ETB program areas to discuss ways in which the programs can coordinate services;
• Offering CTS to Veterans applying for ETB to ensure that planned education will fully meet their needs, for example, through a joint application process;
• Combining marketing efforts between the CTS and ETB programs;
• Encourage ETB applicants to apply for CTS services, especially for those whose ETB applications were declined.

Relationship between CTS, ETB and other VAC programs

In terms of interactions with other VAC programs, there was little documentation that indicating a relationship with other programs. According to those interviewed for the evaluation, CTS and ETB are seen to be largely independent since they are available to all Veterans. Interviewees noted that Veterans can get similar transition supports through the CAF and the VAC Rehabilitation Program, but these programs are viewed to operate independently.

The relationship between the Rehabilitation Program and ETB was seen by many interviewees to be complementary since ETB can be accessed once the Veteran has met the goal in their Rehabilitation Plan. No overlap was perceived by interviewees. The ETB can be accessed prior to participation in Rehabilitation, although one cannot access both concurrently. Depending on the scenario, it may be beneficial for a Veteran to participate in the Rehabilitation program and achieve their rehabilitation plan goals prior to accessing the ETB.

According to focus group participants, the Rehabilitation Program offers more and better services than CTS or ETB (such as case management), however eligibility is very different for the three programs. It was noted by focus group participants that the ETB is important for Veterans who have overcome, or do not have health issues or barriers to re-establishment.

2.1.2 To what extent are the eligibility criteria for CTS and ETB meeting Veterans’ needs?

Eligibility criteria for CTS

The evidence suggests that eligibility criteria is appropriate. Veterans are described as coming to CTS with a variety of needs and skill levels. The program is viewed as flexible and customizable to each client. Additionally, Veterans can come back to the program as many times as they wish, as long as they still meet the eligibility criteria, and this is considered beneficial since “transition to employment is a journey.”

Two areas that were identified as requiring additional communication for CTS included:

• The Canadian residency requirement that a Veteran, spouse, common-law partner, or survivor may only be absent from Canada for a total of 183 days or less in a calendar year may be problematic for Veterans and their spouses/common-law partners applying for CTS. Moreover, Veterans that have been outside of Canada for this period of time or longer are no longer eligible for CTS, but continue to be eligible for ETB. Thus, while they can access ETB, they cannot get help planning their education/ training.
• There is a lack of awareness among spouses/common-law partners regarding the fact that their eligibility will expire (since theirs is the only category that expires). It was suggested that the end-date for CTS eligibility should be better communicated and made available to the third-party service provider so clients will be aware of the end-date of services.

Interview respondents noted that there is a need to improve data collected to better understand who is accessing the program, particularly GBA+ factors such as whether the client is a visible minority, Indigenous, and the client’s gender identity, etc.

Eligibility criteria for ETB

The evidence from key informant interviews and focus group findings indicates that, overall, ETB is meeting the expectations of Veterans. The survey evidence indicates that eight-in-ten (80.5%) ETB clients report that the educational program/courses they accessed were beneficial, and over one-half agreed that ETB provided them with the knowledge and skills they needed to engage in activities that are important to them (57.5%). Likewise, the same proportion of clients also reported that ETB provided them with knowledge and skills they needed to engage in employment activities (57.5%), and to provide them with the training certification they needed to find a job (56%). The evaluation evidence also shows that ETB aids in the transition between CAF and civilian life for CAF members with over six years of service.

According to interview respondents familiar with program appeals, few cases are reviewed and only five (5) eligibility decisions have been overturned in the last three years. Reportedly, in most of those cases where a decision was overturned, it was because new information came to light. Review levels do not indicate that the eligibility criteria should be changed.

In close alignment with this finding, survey respondents indicate that the outcomes of most decisions brought forward for review are generally not resolved in their favour (i.e., the review upholds the first decision). Reasons for the review include requests for additional funding for expenses/books, courses that exceed the specified hours for formal program funding, and approval for professional programs that do not fit the criteria under short courses. In only two instances did Veterans report that a decision was overturned, for reasons related to additional expenses, and for being covered for a professional program.

Many of the internal VAC stakeholders that were consulted for this evaluation discussed their perception of the confusion, among Veterans, around eligibility for Reservists who have 6 “calendar years” of service, but not 6 “paid years” of service (since a reservist may not work 365 days/year). It was suggested that while the eligibility criteria are deemed reasonable, that Veterans (Reservists) should be better educated about how this eligibility is calculated.

Suggestions were provided about where additional communication would be useful, including:

• Providing clear explanations of how years of service are calculated, including calculations for reservists. It was suggested that eligibility be automated based on employment records and that eligibility status (whether someone has achieved the 6 years of service for ETB, for example) be made clear to Members, perhaps within the My VAC portal or via Transition Centres.
• Providing information about any changes to eligibility and ETB-related processes.

Accessibility

Generally speaking, the evidence suggests that both CTS and ETB are considered accessible by Veterans. CTS is available online (via the portal and virtual meetings) and via phone and this meets the needs of the vast majority of clients who come to the third-party service provider seeking services. According to program data from the third-party service provider, 90% of referrals to CTS set up a profile in the portal, while 10% have never accessed the portal, suggesting that the virtual nature of CTS services meet the needs of most clients. Moreover, while survey findings do not uncover significant challenges with access to CTS services, some Veterans suggest that VAC and the third-party service provider should better explain how the system works and increase awareness and access to services prior to discharge; offer more personalized services and more resources for job/education options; make the process more efficient; and provide an online gateway where applicants can view available jobs.

With respect to ETB, most Veterans did not encounter difficulties accessing the program. For example, it was found that only 22.5% believed the application to be confusing; 30.2% thought the information provided was not clear, 15.1% stated the education program was not offered by an institution on the ESDC designated list, and 21% indicated the response to inquiries were poor. Only a small proportion of Veterans offered open-ended comments about some of the challenges experienced, including issues with the system being difficult to navigate, processing time being too long, money coming in slowly after approval, ETB funding not being sufficient to cover expenses, and suggestions that more courses should be covered by the formal program.

In terms of GBA+ factors, the biggest area where ETB accessibility may vary is the rural/urban split. This type of access, whether rural or urban, was noted as particularly relevant for ETB clients since access to education was noted to be particularly challenging in rural locations. It should be noted that the location of education is outside the control of VAC and is subject to where educational institutions deliver their programs and veteran choices. Having to move to attend school is an added expense that is not covered by the program.

The mix of GBA+ factors among the clients is considered by most interview respondents to be positive. However, some GBA+ factors are not tracked and therefore not known (e.g., racialized minority, Indigenous, rural/urban). Section 2.2 discusses more findings pertaining to reach.

2.1.3 To what extent do Veterans have unmet needs for career transition and/or accessing education or training?

Unmet needs for career transition

Between about one-quarter and less than one-half of Veterans responding to the survey indicated that CTS helped them find a job (21.8%), increase their civilian skills (28%), receive the employment supports they needed (36.8%), gain a better understanding of their qualifications (44.8%), and helped them gain a better understanding of their post-service professional opportunities. This may indicate the client group has unmet needs.

Unmet expectations for accessing education and training

In terms of unmet expectations related to education and training, the $5,000 limit for short courses was noted by almost all interviewees and many in the focus groups to be insufficient, particularly for many professional development courses and certifications. This finding was substantiated in the Survey of Veterans. However, it should be noted that quantitative data or analysis was not reviewed with respect to the short course funding limit. In particular, the following observations were noted by Veterans:

• The $5,000 maximum limit for short courses provides limited options;
• Veterans who have degrees and wish to complete short courses should be able to have multiple courses pre-approved in one application;
• The short course limit should be increased to the $8,000 - $10,000 range;
• Some courses that do not qualify under the formal stream (e.g., Masters Certificate in Project Management, PROSCI, DEVOPS) should be covered under the short course stream through increased funds;
• The full amount ($80,000) should be available for anyone wishing to use the ETB program regardless of whether they are applying to a short-course or formal education program; and
• The requirement to receive prior authorization to take a course is unwieldy (e.g., having to wait to apply, shortened timeframes for course preparation, uncertainty).

It should be noted that some of these observations are based on misunderstandings of the benefit’s intent and reflect the need for increased communication with Veterans respecting what programs and courses qualify for the ETB. Despite these observations, more than 4 in 5 Veterans indicated in the survey that the ETB had met their expectations or needs. Unlike some VAC benefits, there is no needs-based assessment for the ETB. It is available to virtually all Veterans that meet the duration of service requirement.

With respect to formal programs, interview respondents observed that the list of designated institutions can also be problematic where many associations are not considered eligible, largely due to variations in educational/licensing across provincial/territorial jurisdictions in Canada. Real estate was one area where eligibility varies by province depending on whether training is offered by an association or by an institute (where the training and outcome are the same, but only one is eligible). Pilot licensing has been raised as another example lacking consistency. Apprenticeship training that qualified for Red Seal was also mentioned whereby some trades programs that are offered in colleges in most provinces are offered by high schools in Quebec but are not eligible under the program as provincial funding is available. Moreover, some Veterans (15.1%) did state challenges accessing education programs that are not offered by an institution on the ESDC list used by VAC (as noted previously, VAC may approve a program at an institution not on the list if the applicant submits documentation showing it is recognized by the relevant government authority as a post-secondary education institution).

In line with the survey findings, VAC employees also pointed out that courses that are more technical or skills-based did not meet the eligibility for a formal course (which must be at least 12 weeks long)., This was addressed in June 2021 (midway through data collection) when technical education became exempt from the minimum duration requirement. Participants in the focus groups noted that exceptions have been made, providing the example of well over $10K of training for heavy equipment operator being funded.

2.2 Performance/effectiveness

2.2.1 Are the programs achieving the expected/desired reach?

Veteran population demographics

In order to contextualize and better understand the reach of CTS and ETB based on participation figures, data regarding recently released Veterans^{Footnote 21} was attained. Table 1 outlines releases by age and gender, cumulative from 2018/2019 to 2021/2022.^{Footnote 22}

Table 1: Releases by gender and age group (2018 to 2021)

Age	Female Total	Female Percent*	Male Total	Male Percent*
<20	413	8.0%	2,117	8.4%
20-24	685	13.3%	4,502	17.8%
25-29	722	14.0%	3,980	15.7%
30-34	613	11.9%	3,058	12.1%
35-39	567	11.0%	2,266	8.9%
40-44	515	10.0%	1,990	7.9%
45-49	497	9.6%	1,942	7.7%
50-54	527	10.2%	2,159	8.5%
55-59	393	7.6%	2,108	8.3%
60+	234	4.5%	1,222	4.8%
Total	5,166	100%	25,344	100%

*Rounded to nearest tenth of a percent.

• A total of 30,510 releases occurred between 2018/2019 and 2021. Of these 16.9% were women and 83.1% were men.
• The mean (average age) of women released from service is 37.3, while the mean age for men is 36.0. Combined, the mean average age, for both genders, is 36.2.
• There are greater proportions of women and men released between the ages of less than 20 and 39 years of age (58.1% and 62.8%, respectively), than in the older age cohorts of 40 and greater than 60 years of age (41.9% women and 37.2% men).
• In analyzing both gender categories combined, it was found that there are higher proportions of released Veterans in the younger age cohorts (age <20 to 39) than in the older categories (age 40 to 60+): 62% in younger groups and 38% in older groups.

Veterans receiving CTS and ETB

The achievement of expected and desired reach is measured through several indicators including:

• Number of applications received for each program (CTS and ETB);
• The number of formal program plans and short courses developed;
• The number of favourable eligibility decisions for CTS for Veterans, spouses and survivors;
• Program utilization over time;
• Awareness of programs among front-line staff; and
• The process for which participants are made aware of the programs.

The following sections summarize the evaluation findings for many of the listed indicators.^{Footnote 23}

Number of applications received

A total of 8,661 individuals have applied to CTS, ETB (short courses and formal programs), or both as of March 31, 2021.

Of the 8,661 Veterans with applications, 7,749 individuals applied for ETB funding, and 4,189 applied for CTS.^{Footnote 24} Table 2 provides a further breakdown by program type (ETB short courses, formal courses, CTS, etc.).

The demographic characteristics of the applicants are further summarized below.^{Footnote 25}

Program and client types

The program data indicates that there is more interest in the ETB program than CTS. Over one-half (51.6%) of clients have either applied for an ETB formal plan only (14.1%), ETB short course only (5.5%), an ETB formal and ETB short course (4.2%), and ETB unknown^{Footnote 26} (27.8%). An additional 13.6% have applied for both ETB and CTS support. In comparison, only about one-third (34.8%) of clients have applied for CTS supports only.  

Table 2 – Program Type

Type of Program	Count	Percentage
ETB Formal Plan Only	1,221	14.1%
ETB Short Course Only	477	5.5%
ETB (Formal Plan and Short Course)	366	4.2%
ETB UnknownFootnote 27	2,408	27.8%
CTS Service Only	3,014	34.8%
ETB and CTS	1,175	13.6%
Total	8,661	100%

The remainder of this section summarizes applicant demographics by program type, where ETB is defined as Veteran applying for ETB formal plan only, ETB short course only, ETB formal and short course, and ETB unknown. CTS and ETB and CTS are also included in the findings below. Table 3 summarizes the findings for grouped ETB categories and will be used to guide the subsequent findings.

Table 3 – Program type (ETB combined, CTS, and ETB and CTS)

Program Type	Count	Percentage
All ETB	4,472	51.6%
CTS	3,014	34.8%
ETB and CTS	1,175	13.6%
Total	8,661	100%

The vast majority of total applicants are Veterans (98.6%), with very few spouses, survivors, or were coded in the data as other/unknown accessing either the ETB, CTS or both programs. Note that survivors and spouses are not eligible for ETB.

Moreover, all (100%) clients in receipt of both CTS and ETB services are Veterans, and nearly all ETB applicants are Veterans (99.3%), while about one percent of CTS applicants are spouses (1.1%), survivors (0.3%); and a little over one percent are designated as other/unknown (1.5%).

Table 4 – Program Type by Applicant Type

Client Type	Total	Percent*	ETB	Percent ETB*	CTS	Percent CTS*	CTS and ETB	Percent CTS and ETB*
Veteran	8,542	98.6%	4440	99.3%	2,927	97.1%	1175	100%
Spouse	32	0.4%	NA	0.0%	32	1.1%	0	0.0%
Survivor	10	0.1%	NA	0.0%	10	0.3%	0	0.0%
Unknown	77	0.9%	32	0.7%	45	1.5%	0	0.0%
Total	8,661	100%	4472	100%	3,014	100%	1,175	100%

*Rounded to nearest tenth of a percent.

Demographic characteristics

Gender

Analysis shows 82.9% of applicants are male, 16.9% are female, and 0.2% are unknown. Females have a slightly higher likelihood of applying for CTS benefits than ETB.

In comparison to VAC data on released Veterans (from 2018 to 2021), the proportions are very similar: there are 83.1% males and 16.9% females in that population, indicating that VAC is reaching very similar proportions of males and the exact proportions of females through ETB and CTS.

Table 5 – Program type by sex

Sex	Total	Percent*	ETB	Percent ETB*	CTS	Percent CTS*	CTS and ETB	Percent CTS and ETB*
Male	7,181	82.9%	3,728	83.4%	2,473	82.1%	980	83.4%
Female	1,466	16.9%	738	16.5%	535	17.8%	193	16.4%
Unknown	14	0.2%	6	0.1%	6	0.2%	2	0.2%
Total	8,661	100%	4,472	100%	3,014	100%	1,175	100%

*Rounded to nearest tenth of a percent.

Age

The CTS and ETB programs have similar proportions of applicants broken out by age, although slightly fewer CTS applicants are 40 years of age and older than ETB applicants (55.5% and 62.3%, respectively).

In comparison to the population of released Veterans, it was found that those in receipt of ETB and CTS services are slightly older than the general population of Veterans.

Specifically, in the program groups (CTS, ETB, and CTS/ETB) the mean age of all applicants is 43.9 years, with 59.5% aged 40 and greater. For the population of released Veterans, the mean age is 36.2, with 38% being 40 and older.  This would indicate that VAC is attracting an older age demographic to these programs than in the population of released Veterans.

Table 6 – Program type by age

Age	Total	Percent*	ETB	Percent ETB*	CTS	Percent CTS*	CTS and ETB	Percent CTS and ETB*
20-29	625	7.2%	228	5.1%	321	10.7%	76	6.5%
30-39	2,882	33.3%	1,460	32.6%	1,021	33.9%	401	34.1%
40-49	2,249	26.0%	1,157	25.9%	786	26.1%	306	26.0%
50-59	2,203	25.4%	1,180	26.4%	729	24.2%	294	25.0%
60+	702	8.1%	447	10.0%	157	5.2%	98	8.3%
Total	8,661	100%	4,472	100%	3,014	100%	1,175	100%

* Rounded to the nearest tenth of a percent.

Marital Status

Approximately three-in-four total applicants (both programs) are single, divorced, or separated (75.6%). This proportion is slightly smaller for ETB applicants (73.6%), and slightly higher for CTS (77.6%), and CTS/ETB applicants (78.6%). ETB clients (26%) are more likely to be married or common-law than CTS clients (21.7) and CTS/ETB clients (21.2%).

Table 7 – Program type by marital status

Status	Total	Percent*	ETB	Percent ETB*	CTS	Percent CTS*	CTS and ETB	Percent CTS and ETB*
Single/ Divorced/Separated	6,551	75.6%	3,290	73.6%	2,337	77.6%	924	78.6%
Married/ Common-Law	2,066	23.9%	1,163	26.0%	654	21.7%	249	21.2%
Widowed/Survivor	30	0.3%	13	0.3%	16	0.5%	1	0.1%
Unknown	14	0.2%	6	0.1%	7	0.2%	1	0.1%
Total	8,661	100%	4,472	100%	3,014	100%	1,175	100%

*Rounded to nearest tenth of a percent.

Province of applicant

Most applicants are from Ontario (36.8%), Alberta (14.5%), B.C. (13.1%), and Quebec (11.2%). The remaining applicants (24.4%) are from the other provinces and territories, the U.S., or unknown. Similar proportions are reported for ETB, CTS, and ETB/CTS clients.  

Table 8 – Program type by province (Prov.)

Prov.	Total	Percent*	ETB	Percent ETB*	CTS	Percent CTS*	CTS and ETB	Percent CTS and ETB*
NL	168	1.9%	87	1.9%	58	1.9%	23	2.0%
PE	71	0.8%	43	1.0%	24	0.8%	4	0.3%
NS	827	9.5%	386	8.6%	333	11.0%	108	9.2%
NB	410	4.7%	187	4.2%	168	5.6%	55	4.7%
QC	972	11.2%	540	12.1%	316	10.5%	116	9.9%
ON	3,184	36.8%	1,625	36.3%	1,148	38.1%	411	35.0%
MB	296	3.4%	139	3.1%	123	4.1%	34	2.9%
SK	141	1.6%	78	1.7%	48	1.6%	15	1.3%
AB	1,260	14.5%	650	14.5%	412	13.7%	198	16.9%
BC	1,133	13.1%	616	13.8%	329	10.9%	188	16.0%
NT	28	0.3%	14	0.3%	12	0.4%	2	0.2%
YT	10	0.1%	7	0.2%	3	0.1%	0	0.0%
NU	3	0.0%	0	0.0%	3	0.1%	0	0.0%
U.S.	77	0.9%	50	1.1%	21	0.7%	6	0.5%
N/A	81	0.9%	50	1.1%	16	0.5%	15	1.3%
Total	8,661	100%	4,472	100%	3,014	100%	1,175	100%

*Rounded to nearest tenth of a percent.

Favourable CTS eligibility decisions and program use over time

The number of referrals to the third party-service provider for CTS services, and eligibility decisions outlined in this section are reported from the third-party service provider’s Year 3 Report (March 31, 2021).^{Footnote 28} This section also outlines program utilization over time using data reported by the third-party service provider.

The third-party service provider’s services and supports to Veterans, spouses and survivors include:

• Confirmation of employment conditions
• Online resources and instruction
• Tailored resumes and cover letters
• Self-assessment to determine job goal
• Interest inventory
• Resume and cover letter
• Identification of employment barriers for resolution
• Develop an individualized ETB plan
• Referrals to other programs and services
• Support for military to civilian transition

It was reported that in Year 3 (2020-2021), the third-party service provider provided services to 1,290 clients who were still active from years one (2018-2019) and two (2019-2020), along with an additional 1,155 new referrals to the program, for a total of 2,445 served.

Referrals

The number of referrals to CTS has been decreasing yearly, with Year 3 (2020/2021) having only 1,155 referrals, in comparison to Year 1 (2018-2019) where there were 1,575 referrals.

It should be noted that the number of referrals is greater than number of active files for various reasons. Client files may be closed due to:

• VAC termination (candidates that are initially approved for CTS but are later found to be better served through VAC’s Rehabilitation program; or clients that are outside of Canada for 183 days or more in a 12-month period).
• Not able to contact.
• Registered with the program but did not participate.
• Client withdrew prior to engaging in service.

Table 9 – CTS referrals by month and year

Month	2018-19	2019-20	2020-21
April	233	51	61
May	236	N/A	84
June	172	82	76
July	110	156	94
Aug	130	207	81
Sept	96	102	81
Oct	120	121	125
Nov	77	110	94
Dec	114	85	89
Jan	122	116	118
Feb	109	119	132
Mar	56	90	120
April	233	51	61
Total	1,575	1,301	1,155

Awareness of programs

Awareness among front-line staff

Interviewed respondents report that front-line staff have a general level of awareness and knowledge of both ETB and CTS, but do not necessarily understand the intricacies of the eligibility requirements associated with the ETB program.

The evidence shows that Veterans Service Agents (VSA) and Case Managers (CMs) have the basic knowledge required to direct clients to the CTS and/or ETB programs. Their involvement centres around referring clients to these programs or sending inquiries to ETB/CTS program staff when clients have questions. That said, there is general agreement among front-line staff that VSAs have more familiarity with both programs than CMs because of the nature of their role. VSAs that work on a military base (or Transition Centre) are expected to be familiar with CTS and ETB because they conduct the transition interviews with and releasing members. Information on CTS and ETB is included in the initial VSA/CM training, however, if staff are not kept up to date with these programs and are not discussing them with clients, they may not be as familiar as they should be. Additionally, CMs that work on bases in transition centres deliver presentations on relevant VAC programs, including CTS and ETB and are more likely to encounter questions about the programs, in particular about CTS. CMs that work on bases appear to be more familiar with both programs compared to CMs that do not work on bases (e.g., CMs that work in area offices).

Awareness among clients

The survey findings indicate that clients are not aware of CTS supports or the ETB program until after they had been released from service. Moreover, members of the Supplementary Reserve are also not informed of the eligibility criteria associated with their time in service.

While many praise CTS as an excellent source of support, it is suggested that CTS services should be promoted while serving Members are in the military to prepare them for employment upon release.

“An absolute fantastic service ... however the failure of this service is [that] at the time I became aware, it was only marketed to myself by VAC during my out clearance and retirement. Especially the resume writing component should be a service that serving military leaders are actively aware and can counsel subordinates who are considering retiring. All serving Members should be made well aware of this service 5 years before they retire.” (Surveyed Veteran)

This lack of awareness of ETB and CTS programs amongst Veterans was further confirmed through the interviews and focus groups with VAC employees. It is noted that Veterans will typically not have knowledge of ETB unless they know other Veterans that have applied for benefits. It is also believed that while some promotion does exist, many populations and communities may not have the same level of awareness as others, particularly those who reside in remote locations.

VAC front-line employees indicate that ETB and CTS should be promoted in career development and resource centers, as well as transition centers, as a joint strategy of outreach to inform Veterans of the programs that are available. It is believed that while some Veterans may access ETB, they are not aware of CTS, and vice versa.

Moreover, it was suggested that CTS and ETB be more closely delivered. For example, applying for CTS could be more closely tied to the ETB application. To improve understanding, it was recommended that program information be clearer and more specific so that individuals understand what is offered by the CTS program, including examples of supports and services.

“The ETB program should be promoted in all career development centers and resource centers. ‘You are [a Veteran now]; this is what you should know.’” (Front-line employee)
“When both programs are not promoted together, they’re missing the mark.” (Interviewee)

2.2.2 Are there alternative program delivery approaches that could be considered that would increase outcomes for Veterans?

Feedback on CTS delivery

The survey of clients that accessed CTS and ETB services revealed that satisfaction with the third-party service provider and VAC is fairly low, with only a little over one-half (56.1%) of Veterans in receipt of either CTS or both CTS and ETB services reporting they are satisfied with services received from the third-party service provider. Likewise, a similar proportion (55.1%) of Veterans reported they are satisfied with services received from VAC pertaining to CTS (such as referrals and information).

It should be noted that the survey ratings include a fairly large proportion (20.4%) of Veterans reporting that they are neither satisfied or dissatisfied, which is somewhat higher for Veterans in receipt of both CTS and ETB services. This may be viewed as an opportunity to move those Veterans into higher levels of satisfaction through improvements to services, for example, by improving communications with Veterans about available services.

Table 10 – Satisfaction with services received from third-party service provider

Response	Respondents that used CTS	Percent that used CTS*	Respondents that used CTS and ETB	Percent that used CTS and ETB*	Total Count	Total Percent*
Very Dissatisfied	11	12.1%	11	10.5%	22	11.2%
Dissatisfied	12	13.2%	12	11.4%	24	12.2%
Neither	16	17.6%	24	22.9%	40	20.4%
Satisfied	26	28.6%	32	30.5%	58	29.6%
Very satisfied	26	28.6%	26	24.8%	52	26.5%
Total	91	100%	105	100%	196	100%

*Rounded to nearest tenth of a percent.

Further analysis of the detailed components of CTS services indicates that Veterans are least satisfied with services that focus on military to civilian employment transition support (45%); job search techniques and supports (36.6%), job finding and placement assistance (33.6%), interview skills and techniques (32%), labour market information and research techniques (31.3%), and self-marketing (30.8%).

In contrast, Veterans are most satisfied with services that focus on planning and information services, for example, career exploration, career transition, education planning (66.9%); online resources and instruction (61.8%); one-on-one career counselling (59.6); résumé and cover letter development (59.0%); and employment transition support including assessment of education, skills and experience (51.1%).

Suggestions for improvements include providing one point-of-contact (one-stop shopping) so that Veterans are not referred to several service agents along their journey. This was also aligned to suggestions for making the process more efficient at VAC and streamlining the process across the continuum of service. Veterans also suggested the need for more personalized services and more resources for employment and education options. As noted in earlier sections of the report, communication processes and information sharing were also seen as an area requiring improvement.

In comparison, reports from the third-party service provider are significantly more positive, indicating a disconnect, and suggesting that more should be learned about their data collection methods.^{Footnote 29} While the results may not be comparable given differing methodologies, third-party survey practices should be reviewed.

Findings^{Footnote 30} from the third-party service provider are outlined below:

• 73.6% are satisfied^{Footnote 31} with the CTS/ETB services made available;
• 90.6% are satisfied the support received from the Employment Coach; and
• 90.6% would strongly recommend this service to someone looking for similar services.

VAC employees consulted for the evaluation have the impression that the CTS program is underused, perhaps due to a lack of awareness and understanding of what it can offer (as noted above under Section 2.2).

A common theme heard in the evaluation was the need for additional clarification and clearer communication about the program, including that serving Members can access the program prior to release and that spouses are eligible for CTS. It was reported that CTS is underused among spouses and that information on this aspect of the program is unclear.

Increasing the profile of the CTS program eligibilities on VAC’s website and providing clearer examples of the program services may assist Veterans and their spouses.

Feedback on ETB Delivery

Only a small proportion of Veterans responding to the survey reported challenges with ETB. For example, less than one-third indicated that the information provided to them was not clear, and less than one-quarter believed that the application was confusing. Even fewer Veterans reported challenges while completing their programs such as distance to training, challenges with pre-requisites, and experiencing language barriers.

In open ended responses, survey respondents who were unhappy with the program delivery noted long processing times for funding, that funding was not adequate to cover expenses, the complexities related to navigating the ETB system and the lack of coverage of certain courses under the formal program.

A common issue with the delivery of the ETB program identified by focus group participants is specific to still-serving Members and concerns regarding the ETB approval process. Serving Members have a short timeframe to plan a release from service and cannot obtain approval for the ETB until they have a verified release date. However, they are often waiting for confirmation that their training program has been approved by VAC before committing to an education program, paying for their post-secondary education and identifying their release date. The approval process can create frustration and uncertainty among Veterans, confirmed by survey respondents who reported that the application processing time was too long.

Focus group participants had several suggestions for how ETB could better coordinate with universities/colleges to improve the experience for Veterans:

• Promote ETB among universities/colleges to raise awareness of the program
• Provide universities/colleges with a better understanding of military culture and Veteran students needs coming into this environment in order to better support them.
• Support Veteran friendly initiatives on campus to facilitate Veteran student success.
• Develop a “Veteran friendly campus toolkit” to enable pathways for access to physical and mental health services using existing networks such as operational stress clinics.
• Establish a navigator employment position that is knowledgeable of Veterans’ pathways and can work closely with VAC to provide information to Veterans.

2.2.3 How effectively have the programs supported Veterans to meet their personal and professional goals?

This section provides an overview of the degree to which CTS and ETB programs supported Veterans in meeting their personal and professional goals.

CTS

The ETB and CTS Survey of Veterans queried the extent to which CTS supports assisted Veterans in achieving their goals from their career transition plans; as well as what goals were achieved. The survey data indicates that six-in-ten (60.2%) Veterans reported achieving one or more goal from their transition plan. Goals achieved include:

• Obtaining employment (full-time or part-time employment);
• Determining vocations/careers of interest;
• Receiving employment services (resume writing, completion of assessments, etc.);
• Enrolling in educational programs;
• Completing certification courses or other educational programs; and
• Information acquisition of other programs, such as ETB.

However, less than half of Veterans surveyed agreed that CTS helped them achieve several program-related outcomes, as outlined in Figure 4. The evidence shows that just under half of the survey respondents report that CTS services helped them to better understand their qualifications and professional opportunities. However, fewer CTS clients said they got the employment supports they needed, they increased their civilian/career skills or that the supports they received helped them get a job.

Figure 4 – Outcomes of CTS services

Figure 4 – Outcomes of CTS services

Outcomes	Disagree	Neither	Agree
CTS helped me gain a better understanding of my post-service profressional opps	30%	23%	47%
CTS helped me gain a better understanding of my qualifications	29%	26%	45%
I received the employment supports I needed as a result of accessing CTS	30%	33%	37%
CTS has increased my civilian and/or career skills	38%	34%	28%
The employment supports I received from CTS helped me find a job	40%	38%	22%

Employment status at completion of CTS

In total, 61.8% of Veterans who received either CTS or CTS and ETB services reported being employed at the end of CTS, either in a full-time (45.4%), part-time (8.7%), public service (3.6%), or self-employed (4.1%) capacity.

Similarly, with respect to CTS only Veterans, 62.6% reported employment (full-time, part-time, public service and self-employed).

Employment outcome data from third-party service provider

Data from a report on outcomes achieved at closure^{Footnote 32} from the third-party service provider outlines the results of several outcome indicators. A total of 3,829 participants are included in the dataset, including Veterans, Members, Members Intent to Release, and partners/survivors. Employment is captured under several indicators including: employed at CAF, employed at CAF (re-enlisted or re-signed); employed in a suitable civilian occupation, employed in the civilian labour market; and employed in the public service.

The data from the third-party service provider finds that Members (n=1,332) are more likely to be employed at closure (59.2%), followed by MITR (n=595) at 40.1%, and Veterans (n=1,858) at 32.6%. The employment outcome data from the third-party service provider is generally reflective of results found through the survey for Members.^{Footnote 33} The data might suggest that early CTS intervention results in better employment outcomes, although additional research would be required to validate this theory.

ETB

Findings from the ETB and CTS Survey of Veterans indicates that nearly one-half (45.9%) of Veterans reported completing either an ETB or ETB/CTS program, with 40.3% reporting they were still enrolled in the program at the time of survey, and 6.6% had not completed the program.

Findings from the survey of Veterans that accessed ETB are generally positive. The survey found that 81% of Veterans reported that the program and/or courses they accessed met their needs (and only 7% said it did not; the balance did not know or chose not to answer). Less than 20% felt that the ETB did not provide them with the skills and knowledge they needed to engage in activities important to them (17%), find employment (17%) or the training they needed for a new job post-military (19%). See Figure 5.

Figure 5 – Outcomes of ETB

Figure 5 – Outcomes of ETB

Outcomes	Disagree	Neither	Agree
ETB provided me with the knowledge and skills I needed to engage in activities that are important to me	17%	26%	57%
ETB provided me with the knowledge and skills I needed to seek employment	17%	26%	57%
ETB provided me with the training and certification I needed for a new job post-military	19%	25%	56%

Those that elaborated on their ratings in the survey provided responses related to the following main themes:

• This program provided them with the opportunity to receive training/achieve a degree.
• The training equipped them with new qualifications to improve their job prospects.
• The degree/certificate they received helped them attain employment in the field they trained in.

Overall, a small proportion of Veterans reported they experienced challenges while completing the training program. Specifically, 17.9% of survey respondents struggled with distance to training, with 10.3% experiencing challenges with prerequisites, and 1.1% experiencing language barriers.

According to additional comments provided, travelling and staying onsite for the duration of an educational program is expensive to some Veterans. Veterans also reported they were experiencing financial constraints as they were enrolling in a full-time program and did not have other sources of income.

Employment status of ETB clients

The survey findings indicate that many Veterans who apply for ETB or ETB/CTS programs were, at the time of the survey, employed permanently in full-time positions. Below are the highlights from the findings.

• While greater than six in ten survey respondents (63.8%) are currently employed, 12.9% are retired and 10.7% are looking for employment.
• Among 429 Veterans who are currently employed, more than three quarters (76.5%) are working full-time, with 14.7% being in a public service position, and 9% being self-employed.
• The majority of employed survey respondents (78.3%) are employed in permanent positions.
• More than eight in ten survey respondents (82%) indicated their employment is very aligned (64.1%) or moderately aligned (17.9%) with their skills and qualifications.
• About two-thirds of survey respondent (67.2%) are very satisfied (30.8%) or satisfied (36.4%) with their current employment (48.7% for CTS only, 70.2% for ETB only, and 73.3 for both).

Domains of well-being

VAC’s Well-being Model describes the seven domains of well-being required for a successful transition to civil life. These are illustrated on the following page.

Figure 6: The seven domains of well-being

Figure 6: The seven domains of well-being

Health

A state of physical, mental, social and spiritual functioning, broader than the absence of disease

Purpose

The sense of meaning attained by participating in fulfulling activities, such as employment

Finances

Household income and financial security

Social integration

Involvement in mutually supportive relationships (friends, family and community)

Life skills

How personal health practices, coping skills and eductions—for example—enable management of life and contribute to resilience

Housing and physical environment

Includes the built environment (housing), and the natural environment (water and air quality)

Culture and social environment

The dominant values, beliefs and attitudes of society that immpact one's well-being

The majority of survey respondents (69.6%) described their overall health and wellbeing as “excellent” (10.1%), “very good” (26.5%), or “good” (33%). However, CTS only Veterans rated their overall health and wellbeing much lower than ETB only recipients (52.0% and 76.7%, respectively).

Veterans reported that they greatly valued economic stability for themselves and their families, access to health services, and the ability to buy sufficient food.

The findings are summarized below:

• More than nine in ten (93.3%) said economic stability for them and their family is very important.
• A vast majority of Veterans (92.2%) noted access to health services is very important.
• About nine in ten (90.3%) said ability to buy sufficient good food is very important.
• Just under nine in ten (89.7%) said having healthy lifestyle choices is very important.
• About nine in ten (87.8%) indicated that having greater control and choice in managing life's challenges is very important.
• More than eight in nine (84.8%) indicated quality of housing is very important.
• Coping with stress is very important for 78.9% of Veterans.
• Less than eight in ten (78.9%) said adapting to change is very important.
• Over three quarters (77.3%) noted household management is very important.
• Just over three quarters (77%) indicated driving a vehicle is very important.
• Similarly, about three quarters (74.5%) said having a stable job is very important and another 16.1% said it was of average importance.
• Having a well-paid job is very important for 71.4% of Veterans and of average importance for 19.3%.
• A majority of survey respondents said that having hobbies is very important (70.9%) or of average importance (22.4%).
• Less than two-thirds (64.4%) said career management is very important.
• About one-third (34.2%) indicated that volunteering is very important

With respect to adjustment to life after service, about two-thirds of survey respondents (65.1%) described their adjustment to life after service as “excellent” (15.8%), “very good” (24.4%), or “good” (24.9%). While 72.4% of ETB-only Veterans indicated their adjustment to life after service was good, only 41.1% of CTS only recipients said so.

Likewise, approximately three quarters of Veterans (75.1%) described their satisfaction with life as good (28.7%), very good (26.9%), or excellent (19.5%). ETB-only clients are more satisfied with life than CTS clients (78.5% and 65.9%, respectively).

2.2.4 Were there unexpected outcomes (positive or negative) as a result of receiving services/benefits, including unintended GBA+ related impacts that should be resolved?

Clients surveyed were asked whether the opportunity to access ETB funding impacted their decision to leave the CAF. Survey results found that more than nine in ten responding Veterans (93.2%) indicated that the ETB funding did not play a role in their decision to leave the CAF. Additional comments were provided by 53.6% of Veterans. Common responses given by those whose decision to leave the CAF was not impacted by ETB include:

• They left the CAF due to medical reasons.
• ETB came into effect after they had left the forces.
• They planned to retire after serving in the CAF for decades.

The third-party service provider for CTS noted that many ETB clients are not aware they have to pay back the funds if they withdraw from the course early without filing the appropriate paperwork (note that the repaid amount is then available to the Veteran as part of their ETB entitlement).

Finally, interviewees also reported some misunderstandings related to the availability of ETB funds including that Veterans think they can use the funds for any purpose, and Veterans using ETB funding and not completing their academic course or program.

2.3 Performance/efficiency

2.3.1 Are the available program data for CTS and ETB adequate to measure outcomes/impact?

The quality of data available for monitoring and oversight is important to measure success of the CTS and the ETB program. Program data entry processes should ensure all data is captured accurately and in a timely fashion. There is an opportunity for VAC to improve data capture when system changes are made to ensure all CTS and ETB data is housed in one place (both program data and financial data). Program data and program expenditures should be stored in such a way as to allow for the easy merging of ETB (both short course and formal course data) and CTS data for performance analysis.

2.3.2 Have the activities of the CTS and ETB been delivered in an efficient and economical manner?

CTS approved applications and expenditures

As Table 11 shows, CTS expenditures have risen over the past three years while yearly client intake has declined. Program expenditures are expected to increase as shown in Table 12.

Table 11 – CTS approved recipients and expenditures  

	2017-18	2018-19	2019-20	2020-21
CTS Approved Applications	N/AFootnote 34	1,559	1,236	1,018
Expenditures (in $ millions)	$1.7	$1.6	$1.8	$2.3

Source: VAC Facts and Figures Book March 2021 Edition

Table 12 – CTS forecast expenditures

	2021-22	2022-23	2023-24	2024-25	2025-26
Expenditures (in $ millions)	$2.8	$3.0	$3.3	$3.5	$3.7

Source: VAC Facts and Figures Book March 2021 Edition

2.3.3 ETB recipients and expenditures

The number of Veterans receiving ETB program funds is somewhat higher than those applying for CTS services, although the expenditures are 10 times that of CTS services and supports.

The number of ETB recipients increased in 2019-2020 and into 2020-2021. Forecasts indicate that the number of recipients will increase into the next few years, with a slight decrease expected in 2022-2023, and an increase expected in 2024-2025. Expenditures have been steadily increasing over the years and are expected to exceed over $35 million by 2025-26. See Tables 13 and 14.

Table 13 – ETB approved recipients* and expenditures

	2017-18	2018-19	2019-20	2020-21
Recipients (Veterans)	N/A	1,072	1,700	1,933
Expenditures (in $ millions)	N/A	$12.3	$20.6	$16.8

*Recipients refer to Veterans who have received a payment in the fiscal year.

Source: VAC Facts and Figures Book March 2021 Edition

Table 14 – ETB Forecast Expenditures

	2021-22	2022-23	2023-24	2024-25	2025-26
Recipients (Veterans)	2,230	1,950	2,210	2,560	2,560
Expenditures (in $ millions)	$28.8	$25.4	$29.4	$34.7	$35.5

Source: VAC Facts and Figures Book March 2021 Edition