4.1 Conclusions
The following conclusions regarding the effectiveness, efficiency and relevance of the OVO are based on the findings of the evaluation and inform the recommendations outlined in section 4.2.
4.1.1 Effectiveness
The OVO has been effective by providing information/referrals; resolving complaints within its mandate; and treating Veterans fairly and respectfully. However, some concerns remain over the timeliness and level communication with Veterans/clients regarding their complaints. As well, more could be done to increase Veterans’/clients’ awareness of the OVO and of its role.
The OVO has had a significant impact through systemic investigations and advice to Parliamentarians (with support of other stakeholder groups) which has enhanced benefits and improved outcomes for thousands of Veterans and other clients. This is seen as a central role for the OVO.
4.1.2 Efficiency
The OVO made process improvements and these are ongoing to enhance efficiency in operations, particularly in relation to providing timely responses to Veterans’ complaints and in reducing its turnaround time. The OVO’s governance structure is clear and stable, and the performance framework has been updated and is robust. The OVO could gain further efficiencies through more staff training and specialization, by expediting simple complaints and with enhanced abilities for the OVO to mediate.
Based on the input from federal Ombuds offices and others in VAC and the OVO, greater efficiencies may also result by integrating federal Ombuds offices (e.g., either in a limited fashion by merging the OVO with the DND Ombuds office, or in a more comprehensive fashion by grouping all federal Ombuds offices into one entity with specialized sections). However, it was out of the scope of this evaluation to examine this in depth and further study would be needed to assess the cost-benefit of such a proposition.
4.1.3 Relevance
There is an ongoing need for the OVO to meet the needs and expectations of Veterans and other clients despite the OVO’s limited mandate. Most stakeholders (e.g., interviews with Veterans), the comparative study, and the Venice Principles supported two areas of change to the OVO mandate to ensure it can act, and is perceived as acting, in the best interest of Veterans, including: (1) greater independence, and (2) enhanced powers (e.g., power to compel evidence, as well to mediate/undertake alternative dispute resolution). The evaluation also concluded that the review/appeal system for Veterans is complex and burdensome, with multiple organizations involved and many levels to navigate. This contributes to confusion for Veterans and undermines the OVO’s credibility in terms of the ability to address Veterans’ individual complaints.
4.2 Recommendations
Based on the findings of the evaluation, the evaluation team makes one recommendation to the Veterans Affairs Canada and three recommendations to the Office of the Veterans Ombudsman:
To Veterans Affairs Canada:
- It is recommended that Veterans Affairs Canada conduct an assessment of the effectiveness and efficiency of VAC’s review/appeal and complaint resolution streams and processes.
This recommendation responds to findings that Veterans expect the OVO to be independent and have the authority to investigate any complaint or issue related to Veterans services. The current limits of authority within which the OVO can investigate Veterans’ issues were noted as key barriers to its overall effectiveness. A review of the overall Veterans review system would be able to best determine the appropriate mandate, level of independence and powers for the OVO relative to other parties (e.g., VAC, VRAB).
This recommendation responds to the evaluation findings that indicate efficiencies may be enhanced with OVO abilities to mediate complaints. Key informants and other jurisdictions have indicated that alternative dispute resolution can lead to the resolution of issues more rapidly, efficiently, and constructively.
This recommendation responds to the evaluation findings that Veterans find the Government of Canada’s review/appeal system complicated, burdensome and slow, with multiple levels of appeal and multiple players involved (VAC, VRAB/BPA, OVO, Defence Ombudsman). Veterans expressed frustration regarding VAC’s appeal/review system, which they consider deeply flawed. As well, this recommendation could address the findings that there may be more efficient alternatives to the current structure (e.g. merging Ombuds offices), as further study is warranted to examine the best options and such a study should consider the entire Veterans review/appeal system in Canada.
Management Response:
Veterans Affairs Canada agrees with this recommendation.
| Corrective Actions to be taken | Office of Primary Interest (OPI) | Target Completion Date |
|---|---|---|
| In response to this recommendation, VAC’s Audit and Evaluation Division will conduct an evaluation, the evaluation will include: | ||
| a) Consultation with the Office of the Veterans Ombudsman, the Veterans Review and Appeal Board, the Bureau of Pensions Advocates, and VAC’s 1st/2nd level appeal units to determine the scope and specific questions, criteria and indicators that will be used for the assessment. Deliverable = Evaluation/Engagement Plan. |
A/Director General, Audit and Evaluation | October 30, 2020 |
b) Multiple methods of evidence, such as:
Deliverable = Conclusion of Fieldwork/Examination Phase of Evaluation (including a Summary of Findings) |
A/Director General, Audit and Evaluation | March 31, 2021 |
| c) Formal recommendations, opportunities for improvement, best practices, and management responses and action plans. Deliverable = Formal Evaluation Report approved by VAC Deputy Minister. |
A/Director General, Audit and Evaluation | June 30, 2021 |
To the Office of the Veterans Ombudsman:
- In considering the evolution of the OVO as VAC services continue to improve and address Veterans’ needs, it is recommended that the OVO routinely, through strategic planning, review and ensure its resources are applied to efforts that can have the greatest impact in ensuring fair outcomes for Veterans/clients.
This recommendation responds to the evaluation findings that indicate the OVO is having a large positive impact through its systemic investigations and advice to Parliamentarians, yet is limited by mandate in its ability to affect outcomes based on Veterans’ individual complaints. As Veterans’ issues are evolving and becoming more complex, and as VAC programs are also improving to respond to current needs, the time is appropriate to examine the relative level of effort within the OVO to ensure it can be impactful and cost-effective moving forward.
Management Response:
The Office of the Veterans Ombudsman agrees with this recommendation.
| Corrective Actions to be taken | Office of Primary Interest (OPI) | Target Completion Date |
|---|---|---|
| a) As part of the Annual Strategic Planning exercise, assess previous years activities to reallocate resources if needed. | OVO Director Corporate Service & Intervention Unit | Annually, with mid-year review, beginning Spring 2020 |
| b) Assess effectiveness of Micro-investigations and implement recommendations | OVO Director SRA & Legal Council | Fall 2021 |
- It is recommended that the OVO optimize its outreach and engagement to continue to enhance its effectiveness in engaging key audiences and to increase awareness about the Office and what it can (and cannot) do for its clients.
This recommendation responds to the evaluation findings that indicate many Veterans/clients are not aware of the OVO or familiar with its role, particularly what can and cannot be implemented and why. As such, Veterans may not be benefitting from the services offered by the OVO. As well, Veterans who do access the OVO may have unrealistic expectations of what can be accomplished based on the OVO’s mandate and powers and, if disappointed, may develop negative views of the value and credibility of the OVO.
This recommendation may also help the OVO manage its workflow as currently about 20% of the complaints received are outside mandate – if Veterans better understand what falls within and outside of the OVO’s mandate, these complaints may be reduced.
In addition, this recommendation responds to the findings that the way that Veterans wish to engage with the OVO is evolving and it is timely to examine the most effective approaches for engagement moving forward.
Management Response:
The Office of the Veterans Ombudsman (OVO) agrees with this recommendation.
| Corrective Actions to be taken | Office of Primary Interest (OPI) | Target Completion Date |
|---|---|---|
| a) Engagement plan developed | OVO Director, Communications Operations | Summer 2020 |
| b) Pilot new approaches to revitalize engagement strategy and diversify channels | OVO Director, Communications Operations | March 2020, ongoing |
| c) Rollout of quarterly online newsletter | OVO Director, Communications Operations | April 1, 2020, quarterly |
| d) Increase awareness of the OVO within the Veterans’ community using social media campaign and measure effectiveness | OVO Director, Communications Operations | Fall 2020 |
- It is recommended that the OVO continue to improve its client service approach for individual complaints by:
- Continuing to improve on providing timely and clear (written) responses to complaints;
- Ensuring training so that frontline staff members have knowledge of current issues and Veterans’ experiences; and
- Assessing the need for staff specialization.
This recommendation responds to the evaluation findings that the OVO could be timelier and more transparent in its communications with Veterans. It is recognized that the OVO has and continues to take steps to improve its timeliness.
This recommendation responds to the evaluation findings that indicate that, while frontline efficiency is being addressed, further efficiencies could be possible with staff specializations in key emerging areas (e.g., marijuana, mental health issues) and with staff having greater experience with Veterans’ lives and issues in general. As well, continued training can help frontline officers deal with the stressful situations that emerge in their job, and potentially reduce turnover.
Management Response:
The Office of the Veterans Ombudsman agrees with this recommendation.
| Corrective Actions to be taken | Office of Primary Interest (OPI) | Target Completion Date |
|---|---|---|
| a) To address the timely response and clear written response to complaints: | ||
| a1) New service measurement matrix (monthly) developed and implemented. | OVO Director Corporate Service & Intervention Unit | October 2020 |
| a2) New processes to support written responses to complaints updated and implemented | October 2020 | |
| a3) New templates, Client letters, developed to reflect fairness triangle. | November 2020 | |
| b) Ensure frontline have knowledge of current issues and experiences of Veterans: | ||
| b1) A training package developed addressing the skills required to effectively fulfil the intake and intervention roles | OVO Director Corporate Service & Intervention Unit | June 2020 |
| b2) Sessions to increase awareness re military life | September 2020, quarterly | |
| c) To address the need for staff specialization: | ||
| c1) Pilot project initiated to assess effectiveness of specialization | OVO Director Corporate Service & Intervention Unit | September 2020 |
| c2) Pilot project assessment and development of recommendations | March 2021 | |
| c3) Institute a monthly training schedule for VAC SME to brief frontline staff on programs | September 2021 | |