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Section II – Analysis of Program Activities by Strategic Outcome

Strategic Outcome #1:

Eligible Veterans and other clients achieve their optimum level of well-being through programs and services that support their care, treatment, independence, and re-establishment.

Program Activity 1.1:
Pensions, Awards, Allowances for Disability and Death; and Financial Support

2008-09 Financial Resources ($ millions)			2008-09 Human Resources (FTEs)
Planned Spending	Total Authorities	Actual Spending	Planned	Actual	Difference
2,166.6	2,223.8	2,165.4	1,353	1,437	(84)

Expected Results	Performance Indicators	Targets	Performance Status	Performance Summary
Eligible clients of Disability Pensions, Financial Support, Awards and Allowances Programs are appropriately compensated to contribute to their well-being	Percentage of clients that feel that the programs and services which they have received address their basic needs (measured every three years)	85 percent	Mostly met (Actual performance of 68 percent per 2007 survey)	VAC's 2007 National Client Satisfaction Survey reported that 68 percent of clients feel that the programs and services which they received meet their needs. There were differences in the results of the individual client groups (War Service Veterans; modern day Canadian Force Veterans and members; Survivors; and Still-serving and retired RCMP members) included in the survey. Specifically, the vast majority (80 percent) of VAC's War Service Veterans reported that VAC programs and services meet their needs. For RCMP and Canadian Forces clients, results were somewhat lower at 71 percent and 68 percent respectively. For survivors, 51 percent reported that VAC programs and services met their needs. The disparity of these results may be due to differences in eligibility to VAC programs and services, particularly those relating to the comprehensive suite of health care benefits linked to disability and income support programming. Over the past six years, VAC has made progress in better meeting the needs of modern day Canadian Forces clients in particular. The proportion of Canadian Forces clients who felt the programs and services they receive from Veterans Affairs Canada meets their needs has risen to 68 percent in 2007 from 59 percent in 2001.

Veterans Affairs provides, upon eligibility, pensions or awards for disability or death and financial support as compensation for hardships arising from disabilities and lost economic opportunities. Veterans Affairs has a comprehensive and integrated range of compensation and wellness programs to support its clients. These clients include: Veterans of the First World War, the Second World War, and the Korean War, Merchant Navy Veterans, Canadian Forces Veterans, Canadian Forces members, spouses, common-law partners, certain civilians, and survivors and dependants of military and civilian personnel. Veterans Affairs also administers disability pensions for the Royal Canadian Mounted Police under a Memorandum of Understanding.

Performance Analysis:

Appropriately compensating Veterans and their families is a high priority of Veterans Affairs Canada. In terms of pensions, awards and allowances for disability and death, the Department monitors both the timeliness of program decisions to ensure program accessibility as well as the appropriateness of program decisions. In 2008, VAC refined the way it calculates its service standards from reporting on average turn around times to percent completed within and outside of the service standard. The target of 90 percent had been set based upon the previous calculations and has been revised to reflect a more realistic goal of 80 percent. In 2008-09, VAC completed decisions on 78 percent of its first applications within its published 24 week service standard. The Department also conducted a quality assurance review of its first application process to measure overall compliance with relevant legislation, regulation, policy and business process. Results indicated a national compliance rate with appropriate legislation, policies and business processes of 91 percent, exceeding the target of 90 percent. With respect to benefit adjudication and payment process, the compliance scores were higher at 96 percent and 98.5 percent respectively, well above their target of 90 percent.

In terms of the financial support sub-activity, VAC also monitors the timeliness of decisions to ensure an appropriate level of program accessibility so that eligible clients receive the financial support they need in a timely manner. In 2008-09, we processed 87 percent of our War Veterans Allowance applications in 30 days, falling just short of our 90 percent target.

On October 1, 2008, VAC launched the "Advocates without Borders" initiative to improve client access to the services of the Bureau of Pensions Advocates (BPA) offices across Canada. As a result of this initiative, turnaround times were dramatically reduced from an average of 166 days in April 2008 to 94 days by March 2009. As well, 96 percent of BPA's clients indicated that they were satisfied or very satisfied overall with the Bureau's services.

Lessons Learned:

The department recognizes the linkages between its disability compensation and income support programs and the health and well-being of its clients. Through the year it has made it a priority to further develop its capacity to measure these linkages through performance measurement and increasing its focus on program effectiveness. Also, the Department implemented "plain language" communication with its clients, starting with decision letters for disability benefits. We learned that achieving plain writing is a complicated process requiring a great deal of dialogue between subject experts, legal experts and plain writing experts to ensure that letters be written with the sole objective of having the client understand the content of the letter without including legal or bureaucratic terms. Communicating in plain language will help clients better understand the rationale behind decisions made by the Department, the rules that guide these decisions and client rights with respect to review and appeal.

Benefits for Canadians:

Providing disability pensions, financial support and awards and allowances allows Canadians to compensate and recognize Veterans and their families for disabilities they have endured in their service to Canada. The provision of financial support helps Veterans and their families be economically self sufficient and maintain the dignity they so deserve as a result of the sacrifices they have made for the nation.

Program Activity 1.2:
Health Care and Re-establishment Benefits and Services

2008-09 Financial Resources ($ millions)			2008-09 Human Resources (FTEs)
Planned Spending	Total Authorities	Actual Spending	Planned	Actual	Difference
1,160.9	1,168.4	1,121.1	2,199	2,282	(83)

Expected Results	Performance Indicators	Targets	Performance Status	Performance Summary
VAC contributes to the well-being of clients through the provision of health benefits and rehabilitation services	Percentage of clients who were assessed in the last year who report a positive impact on their health status as a result of Veterans Affairs Canada health care and re-establishment benefits and services	85 percent	Mostly met (Actual performance measured indirectly in 2008-09)	VAC's 2007 National Client Satisfaction Survey reported that 79 percent of clients receiving treatment benefits felt the program met their needs. The response differed between the client groups surveyed, with 83 percent of War Service Veterans reporting the program met their needs, followed by 69 percent of Canadian Force clients. This disparity may be due to the fact that War Service Veterans generally have access to the full range of treatment benefits whereas program access for the majority of modern day Veterans is restricted to treatment benefits related to their pensioned conditions. According to the 2007 survey, 74 percent of clients receiving the Veterans Independence Program felt that the program met their needs. There were significant differences between individual client groups with the vast majority (87 percent) of War Service Veterans reporting that VIP services met their needs. For Canadian Force clients, the results were slightly lower at 83 percent. Survivors, at 52 percent, were much less likely to feel that the VIP meets their needs. The disparity of these results, particularly for survivors, may be due to eligibility restrictions to certain VIP elements within the program. For example, survivors have access to housekeeping and grounds maintenance services to meet their needs, but do not have access to personal care, nursing home intermediate care or home adaptations. VAC's Long Term Care Client Satisfaction Survey found that 97 percent of Long Term Care Program clients in non-departmental facilities were satisfied with the specialized care services received.

Veterans Affairs provides health benefits, a Veterans Independence Program, long-term care, and rehabilitation and re-establishment support to eligible Veterans and others. The Health Care Program is designed to enhance the quality of life of Veterans Affairs' clients, promote independence, and assist in keeping clients at home and in their own communities by providing a continuum of care.

Performance Analysis:

The health and re-establishment programs offered by VAC are targeted to reduce the vulnerability of Canadian Veterans and other clients by meeting their health care needs and fostering rehabilitation to the extent possible. Despite the poor health status of many of our clients, survey and administrative data suggest that Departmental programs are having a positive impact on their health and well-being.

Through the Long-Term and Nursing Home Care sub-activity, VAC provides funding for specialized care for more than 10,000 Veterans in facilities across Canada.

The Department's Home Care and Other Veterans Independence Program Services assist Veterans to remain in their own homes for as long as possible. VAC provides home care and support services to over one hundred thousand clients, 79 percent of whom are over 80 years of age. In 2008-09, only 2 percent (1,269) of Veterans participating in the VIP program entered a long term care institution. Their average age was more than 86 years.

VAC has been providing access to medical, psycho-social and vocational rehabilitation services to Canadian Forces Veterans as part of the New Veterans Charter since April 2006. As of March 31, 2009, 2,586 clients were participating in rehabilitation services and 250 clients had completed the program. A preliminary survey was implemented by VAC in 2007 to measure program outcomes within the domains of health status; economic security; participation in employment; community integration; and perceived recognition for military service. Although data is not yet available for clients who have completed the program, data in relation to client intake during the 2007-08 fiscal year suggests a high level of disability among program participants. Compared to the general population, VAC clients participating in the rehabilitation program have poorer mental and physical health (96 percent of the general population have better physical and mental health) and are more at risk for depression (62 percent compared to 20 percent). Also, 69 percent of these clients report low levels of belonging to their local community. These findings have significant implications for the Department in terms of the degree and duration of support necessary to assist these clients to successfully re-establish into civilian life.

Lessons Learned:

As part of its Mental Health Strategy, VAC developed a network of Operational Stress Injury (OSI) Clinics to provide specialized mental health services to Veterans and their families. An October 2008 evaluation found that the Department needed to clarify its OSI clinic governance structure, strengthen its accountability relationships with service providers and build a more robust financial framework for the network. Responding to the recommendations, VAC has updated clinical and administrative guidelines and has clarified roles and responsibilities of the OSI partners and developed discipline-specific templates to standardize reporting. The OSI clinic network is a key element in assisting VAC to contribute to the well-being of clients. In the 2008-09 fiscal year, over 75 percent of OSI clinic clients reported an improvement in their condition as a result of network services.

Benefits for Canadians:

The Department offers programs and services that support the health and wellness of the men and women who served and continue to serve Canada in time of war, conflict and peace, contributing to the national identity of Canadians. Assisting Veterans and their families to transition successfully from military to civilian life maximizes the ability of these committed people to continue their valuable contributions within their local communities and to the nation.

Strategic Outcome #2:

Canadians remember and demonstrate their recognition of all those who served in Canada's efforts during war, military conflict and peace.

Program Activity 2.1:
Remembrance Programming

2008-09 Financial Resources ($ millions)			2008-09 Human Resources (FTEs)
Planned Spending	Total Authorities	Actual Spending	Planned	Actual	Difference
50.6	53.6	45.6	157	152	5

Expected Results	Performance Indicators	Targets	Performance Status	Performance Summary
A Canadian public that is informed of military history and engaged in honouring the contributions of Veterans and those who gave their lives in the cause of peace and freedom	Percentage of Canadians who are aware of the contributions and sacrifices of Canadian Veterans (measured every two years)	60 percent	Exceeded (Actual performance of 84 percent)	An Omnibus survey conducted for Veterans Week 2008 reported that 84 percent of Canadians are aware of the contributions and sacrifices of Canadian Veterans and feel these contributions are of major importance to the development of our country. High proportions (92 percent) continue to agree that Veterans should be recognized and that they are proud and knowledgeable of the roles Canada's military has played in conflict and peace. These results are similar to previous surveys. While 79 percent of Canadians agree that they are very proud of the role of the Canadian military, fewer (71 percent) feel that they are knowledgeable about the role Canada's military has played in conflicts such as the First and Second World Wars, the Korean War and the war in Afghanistan.

Remembrance Programming keeps alive the achievements and sacrifices made by those who served Canada in times of war, military conflict and peace; engages communities in remembrance of these achievements and sacrifices; and, promotes an understanding of their significance in Canadian life as we know it today.

Performance Analysis:

The performance rating of this Program Activity is very high. The Canadian public is aware of remembrance programming and is eager to learn more, as shown by 2.3 million visits to the Canada Remembers' section of the VAC Web site, 337,000 visits to the Youth and Educators section of the Web site, and the distribution of 2.4 million learning and public information materials and promotional products. In the last year, the Department marked a number of significant milestones, including the 90^th anniversary of the end of the First World War, the 55^th anniversary of the Korean War Armistice, the 65^th anniversary of the Battle of the Atlantic and the first National Peacekeepers' Day. Internationally, VAC maintains 14 memorials in Europe, including the newly acquired Canada Memorial in Green Park, London, England.

VAC's leadership and partnerships in remembrance programming helps many Canadians, including youth, engage in community-based remembrance activities by providing learning information and opportunities, leading remembrance events in-Canada and overseas, and supporting Canadians in their own remembrance activities. To reach our youth, VAC is using electronic and Web-based sources such as social networking tools and the Internet. VAC began to tap into these resources by posting the Veterans' Week 2008 vignette on YouTube and creating a virtual scrapbook of remembrance photos and graphics that youth can download to social networking pages and blogs. New materials added to the VAC Web site are also useful to youth. The need for a comprehensive youth leadership strategy was identified and is being developed.

In 2008-09, the Department worked to expand all types of partnerships to reach more Canadians and increase awareness of remembrance. For example, a Corporate Engagement partnership pilot project, with the Canadian Football League (CFL) during the 2008 CFL semi-final games, prominently displayed remembrance messages to 60,000 fans in the stadiums and an additional 1.7 million television viewers, provided remembrance information in the souvenir program and was featured on the CFL Web site. In another example, VAC supported Canada's National History Society's 1914-1918 Vigil Project.

From November 4^th to 11^th, the names of each of the over 68,000 Canadian men and women killed in service during the First World War were projected onto the National War Memorial in Ottawa and Canada House in London, England, as well as in many provincial capitals in Canada.

Lessons Learned:

Generally, remembrance programming is meeting the needs of our traditional Veteran clients. However, modern day Veterans are less satisfied and 29 percent do not see themselves as Veterans. To ensure their efforts are recognized and honoured, we are actively seeking ways to engage our modern day Veterans in remembrance.

Based on program evaluations of the Partnership Contribution Program and the Funeral and Burial Program, we identified processes which were too lengthy and complex and are implementing changes to ensure efficiency and streamlining of the programs.

VAC's Youth Learning Journey for the 90^th Anniversary overseas event was a tremendous learning experience for 13 Canadian youth. However, an evaluation found that results in terms of reach are not balanced with resources expended, and that youth educational tours offered by private organizations appear to have a broader reach and client base. We are exploring ways to assist external organizations to facilitate youth travel overseas.

Benefits for Canadians:

The benefits of remembrance programming to Canadians are two-fold. For Veterans, it provides the recognition and appreciation they so richly deserve. VAC's remembrance programming also assists Canadians, especially youth, to become more aware of the accomplishments and sacrifices of all Canadian Veterans and gain an appreciation of their efforts. This appreciation contributes to the realization of the strategic outcome.

Strategic Outcome #3:

Fair and effective resolution of disability pension, disability award, and War Veterans Allowance appeals from Canada's war Veterans, eligible Canadian Forces Veterans and still-serving members, RCMP clients, qualified civilians and their families.

Program Activity 3.1:
Veterans Review and Appeal Board redress process for disability pensions and awards

2008-09 Financial Resources ($ millions)			2008-09 Human Resources (FTEs)
Planned Spending	Total Authorities	Actual Spending	Planned	Actual	Difference
13.8	16.9	16.6	147	135	12

Expected Results	Performance Indicators	Targets	Performance Status	Performance Summary
Fairness in the Disability Pension, Disability Award and War Veterans Allowance Program	Percentage of Federal Court decisions that uphold Veterans Review and Appeal Board decisions	50 percent	Mostly met (Actual performance of 44 percent)	When all Board redress avenues have been exhausted, applicants may apply to the Federal Court for a Judicial Review. In 2008-09, 16 appellants filed an application with the Federal Court (less than 0.6 percent of the Board's 2,871 appeal and reconsideration decisions). The Federal Court issued nine rulings - four upheld the decision of the Board while five were returned to be reheard. Two decisions were returned to the Board pursuant to a Consent Order and one application was discontinued.

Provides Canada's war Veterans, eligible Canadian Forces Veterans and still-serving members, Royal Canadian Mounted Police clients, qualified civilians and their families with full opportunity to request review and appeal hearings to ensure a fair adjudicative process for disability pension, disability award, and War Veterans Allowance claims.

Performance Analysis:

In 2008-09 the Veterans Review and Appeal Board established goals to maximize its schedule to hear applicants' claims and to finalize 7,000 decisions. These goals were exceeded through increased hearings and working with the representatives to identify and schedule hearings for the oldest claims. The Board focussed on reducing time frames for applicants and made improvements in the time lines within its control. From registration with the Board to decision issued, the average time for review hearing claims was reduced from 180 days in 2007-08 to 174 days in 2008-09. This includes the time period, shared by the Board and the applicants' representatives, when the claim is waiting to be scheduled but depends upon applicant readiness and hearing schedule availability. The average time for appeal hearing claims was reduced from 114 days in 2007-08 to 65 days in 2008-09. The Board decreased its hearing caseload to less than 2,000 pending claims, of which 1,200 are ready to be heard, a manageable workload.

On average, 65.4 percent of the finalized review decisions and 45.2 percent of the finalized appeal decisions varied a previous ruling. Ninety percent of review decisions were finalized in an average of 31.9 days, with 90 percent of appeal decisions finalized in an average of 27.3 days.

Lessons Learned:

Because the choice to appeal a decision rests with the applicant, the Board has no control over the volume of applications it receives or the time that representatives require to prepare cases to be heard. With this ongoing challenge, and in the context of financial restraint and a demand for shorter time frames for applicants to have their hearings, the Board is identifying adjustments to the hearing schedule and offering technology to respond to these challenges.

The Board implemented electronic document sharing and storage methods. While this has been successful in providing timely access to claim information, the Board will continue to identify and discuss ways to improve the process with the Bureau of Pensions Advocates, The Royal Canadian Legion and VAC.

The volume of complex claims has been increasing and additional procedures have been added to the processing of claims. VRAB will review its service standard to ensure it is current, practical and meaningful for applicants awaiting their decisions and for Board members and staff who are expected to meet the commitments.

VRAB recognizes that communicating with applicants and representatives is essential to their understanding of the Board's program and processes. The Board will continue to increase its efforts to meet the information needs of interested parties, using its Web site and other communications tools.

Benefits for Canadians:

The Board continues to uphold the Government of Canada's commitment to provide a fair and independent appeal process. In order to provide applicants with the opportunity to give oral testimony in support of their disability claims, the Board travelled to more than 30 cities to hold in-person review hearings in 2008-09. More than 7,100 claims from Canada's war Veterans, Canadian Forces Veterans and members and Royal Canadian Mounted Police clients were finalized. The Board reduced its caseload of pending claims and had the capacity to hear the claims ready to be scheduled.

Strategic Outcome #4:

Ombudsman recommendations advance Veterans Affairs' fair and equitable treatment of eligible clients.

Program Activity 4.1:
Office of the Veterans Ombudsman independent review and recommendations on individual complaints and systemic issues

2008-09 Financial Resources ($ millions)			2008-09 Human Resources (FTEs)
Planned Spending	Total Authorities	Actual Spending	Planned	Actual	Difference
5.8	6.0	4.6	40	33	7

Expected Results	Performance Indicators	Targets	Performance Status	Performance Summary
Individual client complaints are effectively dealt with in a timely manner Reports on recommendations on complex systemic and emerging issues Veterans Affairs Canada's programs and services address client needs	Turn-around times from the time a complaint is received by the Ombudsman's office until the review/ investigation has been completed Number of recommendations made to the organization Number of cases resolved through informal resolution	To be determined	N/A	2008-09 was the first full year of operation. Efforts were concentrated on bench marking for both early intervention and research and investigation business lines. Turn-around times will be refined. The Office submitted a series of specific enquiries, observations, discussion papers and one Administrative Report on the Departmental Funeral & Burial Program. OVO actioned 707 cases during the year. Of these, 493 (70 percent) were resolved through informal resolution with 214 cases referred for further investigation as having possible systemic implications.

Provides War-service Veterans, Veterans and serving members of the Canadian Forces (Regular and Reserve), members and former members of the Royal Canadian Mounted Police, spouses, common-law partners, survivors and primary caregivers, other eligible dependants and family members, other eligible clients and representatives of the afore-mentioned groups with the opportunity to request independent reviews of their complaints by an impartial individual who was not part of the original decision-making process. The Veterans Ombudsman has the mandate to: review and address complaints by clients and their representatives arising from the application of the provisions of the Veterans Bill of Rights; identify and review emerging and systemic issues related to programs and services provided or administered by the Department or by third parties on the Department's behalf that impact negatively on clients; review and address complaints by clients and their representatives related to programs and services provided or administered by the Department or by third parties on the Department's behalf, including individual decisions related to the programs and services for which there is no right of appeal to the Board; review systemic issues related to the Board; and facilitate access by clients to programs and services by providing them with information and referrals.

Performance Analysis:

2008-09 was the first full year of operations for the Office of the Veterans Ombudsman. Following his appointment in November 2007, the Veterans Ombudsman proceeded to build a staff and had filled all but seven positions by March 2009.

The Ombudsman established an Advisory Committee of 19 individuals who are reflective of the Veterans' community. The committee met in June and November 2008 and proved to be an effective sounding board.

In June 2008, the Ombudsman launched his national Leave Nobody Behind campaign, aimed at drawing attention to those individuals who might be falling through the cracks. This initiative was announced at the first of a series of "town halls" in Charlottetown, Calgary, Cold Lake, Halifax, and Prince Albert. The Ombudsman took up the cause of homeless Veterans and engaged the Department in defining the extent of the problem and reaching out and helping homeless Veterans. He also met with Veterans groups and individual Veterans to hear their concerns and to engage them on how the government should best respond to their needs.

The Office established business procedures and processes during 2008-09 such as: early intervention guidelines; OVO/VAC interface guidelines; standards for preparing early intervention case summaries; compelling case guidelines; walk-in procedures for visits by stakeholders; bench marking time lines for outputs; the process used to issue enquiries, observations and administrative and investigative reports; and service standards for primary stakeholder contact, including telephone, email, surface mail and internet communications.

To address systemic issues which came to light during the first year of operation, the Office issued four observations, three discussion papers and one administrative report containing seven recommendations.

Lessons Learned:

The financial and human resources established for the Office were based on similar agencies and notional business volumes. After a full year of operations, there is a need to review the resource base required to maintain effective program activity.

Starting operations with a minimum workforce presented challenges in "staffing up" while responding to stakeholder requests and expectations, and dealing with a sizeable backlog of requests. OVO concentrated on processing the backlog and stakeholders were cautioned to expect delays in official responses.

While OVO chose to use the existing VAC correspondence management software and adapt it to their needs, case management software with built in statistical and reporting capacity might have proved a better choice.

Channelling stakeholder complaints to a departmental central support unit did not garner the expected results and it was found that the Office must liaise directly with staff of the appropriate departmental organizational unit.

Benefits for Canadians:

The Veterans Ombudsman is an independent officer reporting directly to the Minister. The office was established to safeguard the Veterans Bill of Rights and ensure fairness and consistency in the delivery of the government's programs and services to Canada's Veterans and other client groups. OVO uses the findings from impartial and factual research to highlight program delivery issues. The Veterans Ombudsman provides a highly-visible presence within the community and increases the awareness of the Canadian public to the serious issues affecting Canada's Veterans..

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