4.1 Planning
As stated in the Government of Canada Remembrance Policy, VAC has the responsibility to “Prepare ongoing strategic plans for remembrance” and to “Provide leadership among federal government departments in the remembrance of the service of Canadians in the cause of international peace and freedom”.
The evaluation confirmed through interviews and a documentation review that VAC requires a long-term strategic plan for remembrance.Footnote 3 However, a documentation review identified that various studies and reports have been completed pertaining to commemoration activities at VAC, including:
- A Renewed Approach to Commemoration – Commemorating Post-Korea (June 2015);
- Commemoration in the 21st Century – Report of the Standing Committee on Veterans Affairs (December 2011);
- A Review of the Government of Canada Remembrance Policy (March 2008);
- Commemoration in the 21st Century Review Project (November 2001).
Based on these studies, VAC’s recent program evaluations, observations and feedback from key informant interviews, the evaluation team concludes that the following themes should be considered during the development of a strategic plan for remembrance:
- Continued importance of youth education and engagement;
- Increased focus on recognizing the sacrifices, achievements and legacy of Canadian Armed Forces Veterans;
- Accessible and timely information for Canadians to support awareness and involvement;
- Specific efforts aimed at female Veterans, families, Indigenous Veterans, and new Canadians;
- Effective partnerships across Government of Canada departments and external organizations;
- Future expectations for international events (types of events, size, locations, public participation, etc.);
- Consideration of alternative approaches to event planning and logistics for international events;
- Reducing the backlog of Veterans graves requiring maintenance; and
- Preserving the commemorative integrity of VAC’s national historic sites and ensuring the ongoing maintenance and preservation of VACs commemorative real property in Europe.
To fulfill its responsibilities assigned within the Government of Canada Remembrance Policy, VAC must create a strategic plan for remembrance. The plan should include the key themes listed above, be communicated and socialized effectively across all sections of VAC, and be shared with relevant federal departments and partner organizations. Please see recommendation 1 in section 4.2.1 Program Funding.
4.2 Commemoration Funding
Interviews conducted during the commemorative program evaluations highlighted challenges with respect to program funding for the Canada Remembers Program and the departmental integrated business planning process. It was identified that the absence of stable long-term funding is impacting the efficient planning and implementation of commemorative initiatives. Funding pressures were also identified in the following areas:
- major ceremonies and eventsFootnote 4; and
- capital expenditure projects and ongoing operations and maintenance associated with VACs commemorative real property in Europe.
In order to understand these challenges, the evaluation examined program funding and current/recent funding pressures.
4.2.1 Program Funding
A breakdown of Canada Remembers 2016-17 funding by program/initiative and funding source is provided below:
| Grants and Contributions | Government Advertising Costs | Salary/Employee Benefit Plans | Operating and Maintenance Costs | Total Costs | |
|---|---|---|---|---|---|
| Commemorative Partnership Program | $8,383,699 | - | $869,228 | $220,504 | $9,473,430 |
| Maintenance of War Dead Graves | $11,086,868 | - | - | - | $11,086,868 |
| Funeral and Burial Program | $9,098,755 | - | $587,110 | $20,199 | $9,706,064 |
| United Nations Memorial Cemetery in Korea | $22,327 | - | - | - | $22,327 |
| Canadian Veterans Association of the UK | $5,000 | - | - | - | $5,000 |
| Public Recognition and Awareness (includes Ceremonies and Events, Learning and Public Information) | - | $2,499,999 | $5,085,744 | $9,136,605 | $16,722,348 |
| Maintenance of Memorials, Veteran Graves, Departmental Cemeteries | - | - | $1,082,722 | $7,455,052 | $8,537,774 |
| Total | $28,596,649 | $2,499,999 | $7,624,803 | $16,832,360 | $55,553,811 |
| Percentage of Total Program Costs | 51.5% | 4.5% | 13.7% | 30.3% | 100% |
Source: VAC Finance Division
The Commemoration Division relies heavily on operating funds to deliver core elements of the Canada Remembers Program (e.g., ceremonies and events, learning and public information). This results in substantially higher operating and maintenance costs compared to the VAC departmental average (30.3% for Commemoration programs vs. 2.0% for VAC). It also presents a risk that core programming could be affected if departmental operating funds are reduced.
Reliance on operating funds presents the Commemoration Division with another challenge. Since operating funds are requested through annual internal integrated business planning, funding levels for core programming such as Veteran grave maintenance, memorial maintenance, ceremonies and events, and learning and public information (especially Veterans’ Week) could be re-allocated based on other departmental needs. In contrast, the majority of VAC programs outside of Commemoration are delivered through grants and contributions and special purpose allotments. Non-operating funds (program expenditures) for these programs are secured through a regular funding submission processes, rather than annual internal requests.
The evaluation team finds that the Canada Remembers Program, including elements such as ceremonies and events, Veteran grave maintenance, memorial maintenance and learning and public information is a core responsibility of the department (as referenced in Appendix C). To ensure that planning and implementation of commemorative initiatives is not impacted by the timing and stability of funding, stable long-term funding must be established.
Recommendation 1
It is recommended that the Director General, Commemoration, develop a long-term strategic plan for all initiatives falling under the core responsibility of Commemoration and pursue stable long-term funding to allow for efficient planning and implementation.
Management Response:
Management agrees with this recommendation.
| Corrective Action to be Taken | Office of Primary Interest (OPI) | Target Date |
|---|---|---|
| The Director General, Commemoration, will develop costed strategic plans to guide regular commemorative activities over ten-year periods (starting with the 2019-20/2028-29 period). To ensure that these plans can be implemented, long-term budget confirmations will be sought. Should new projects require resourcing, the Director General, Commemoration, will build a case for additional resources through the Department’s annual Integrated Business Plan process. | Director General, Commemoration | January 2019 |
4.2.2 Funding Pressures
The evaluation team learned through key-informant interviews, observation, and a documentation review that formal processes are not in place for funding major capital projects related to the restoration, maintenance, and/or preservation of commemorative real property assets (buildings, tunnels, forests, etc.). The Director, European Operations, is currently responsible for pursuing/justifying funds in support of these projects. The evaluation finds that a more fulsome risk analysis and priority setting exercise is required for funding and managing capital projects. A more collaborative approach should be taken, capitalizing on the expertise of internal and external partners, such as Parks Canada, VAC’s Real Property directorate, and other relevant partners/stakeholders as needed.
As identified through a documentation review, no recent formal site management plans or costings have been conducted for VAC’s national historic sites. In 2007, a site management plan was completed for the Canadian National Vimy Memorial, however many items within that plan require reassessment and further consideration based on updated information.
In addition to funding pressures associated with capital projects, interviews highlighted that European Operations has been challenged to maintain regular operations and maintenance in support of the overseas memorial sites (Appendix D).Footnote 5 Impacts from the European-Canadian exchange rate, inflation, and incremental costs of suppliers have not been reflected in the annual funding allocation.
Recommendation 2
It is recommended that the Director General, Commemoration, conduct a comprehensive cost analysis of operations, maintenance, and preservation requirements associated with the 14 overseas memorial sites and identify medium- to long-term investments that may be required.
Management Response:
Management agrees with this recommendation.
| Corrective Action to be Taken | Office of Primary Interest (OPI) | Target Date |
|---|---|---|
| Expert advice will be sought to develop detailed costings for actions required to appropriately operate, maintain and preserve the 14 overseas sites for future generations. | Director General, Commemoration | April 2020 |
Observations
The evaluation team has learned that, unlike other VAC divisions, the Commemoration Division is responsible for covering costs related to accommodations and utilities at its memorial sites in France. Fluctuations in the foreign exchange rate pose a challenge to European Operations as increases in the value of the Euro result in higher than expected operating and maintenance costs.Footnote 6 VAC should explore the possibility of developing a contingency for potential foreign exchange rate increases. This would allow the Division to pursue its work within its allocated resources without making adjustments to its commemorative activities in order to pay for basic accommodations and utilities.
Through interviews with other federal government organizations, the evaluation team was informed that funding opportunities often exist through Government of Canada capital expenditure initiatives/programs. VAC should explore whether alternative funding is available through these programs for capital projects at VAC’s overseas national historic sites.