Audit of Canadian Armed Forces Relocation Services

December 2024

1259-3-0096 (ADM(RS))

Reviewed by ADM(RS) in accordance with the Access to Information Act. Information UNCLASSIFIED.

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Background

The CAF relocates its members within Canada and abroad to meet operational and development needs. CAF members are relocated for: 

• promotions; 
• training and development opportunities; 
• to fill high-priority vacancies; or 
• when entitled to return to their place of enrollment or intended place of retirement. 

Relocations can present CAF members with major changes and stresses to their professional and personal lives. The CAF Relocation Program manages the relocation process and supports CAF members and their families as they move to a new location. The program aims to make CAF member relocations easier without placing too much strain on members. As each member’s relocation is unique, it is essential to design and deliver the Relocation Program to support members and their relocation needs.

In 2016, the Department of National Defence (DND) started a competitive procurement process and chose Brookfield Global Relocation Services (BGRS) as the contracted relocation service provider. BGRS coordinates over 12,000 relocations annually. BGRS provides support services to CAF members and their families, primarily through an online self-service system. BGRS works with CAF members, various contracted service providers and other stakeholders in support of the CAF Relocation Program (as detailed in the following table). 

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Key Findings

The relocation process is complex and involves multiple stakeholders working to deliver relocation services (Annex C). BGRS provides relocation services through a self-service system, which requires CAF members to manage their own relocations. The length and complexity of the process can lead to errors and delays, causing inefficiencies. The complexity of the process further impacts the quality and consistency of information provided by BGRS and DND/CAF in support of relocations.

An analysis of the relocation process shows that 60 percent of activities are reviews and transfers resulting in delays. ^{Footnote 1} These inefficiencies create a long and demanding process that CAF members find difficult to navigate. This leads to frustration among CAF members and an increased use of time, resources and money to complete relocations.

Opportunities to improve efficiencies include:

• reducing the number of consultations required to clarify directives;
• ensuring personal information is frequently updated in the system of record;
• improving timeliness to escalate questions and issues by administration staff; and
• reducing transfer delays between stakeholders and coordination of third-party services.

Inconsistent interpretation of policy by stakeholders contributes to these inefficiencies and challenges. CAFRD is the central reference point and policy for CAF member consultation. It is supplemented by more than a dozen departmental and third-party resources and reference documents. Sixty-one percent^{Footnote 2} of sampled CAF members find that CAFRD and other guidance are unclear and difficult to navigate (as demonstrated in Figure 1). Relocation policies are detailed, but they are not always clear or communicated. CAF members must consult and gather information from multiple documents, websites and tools to navigate the process, which affects productivity and morale as a result.

Relocation training and support are occurring at the departmental level. During posting season, CMP offers virtual relocation information sessions for relocating CAF members in support of CAFRD. Support on bases/wings varies depending on the availability and experience of relocation coordinators. These forms of training can reduce redundancies and confusion but are not well known or used by CAF members who seek more direction and clarity for their relocations. CMP is developing and revising formal support sessions for CAF members to aid in the experience and efficiency of the relocation process.

Management Response

CMP will ensure information on its websites is consolidated, current and available to relocating CAF members to ensure there is a single internal source of relevant relocation information and the details are communicated formally to new and relocating CAF members.

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The CAF Relocation Program is successfully relocating CAF members, but members are experiencing high levels of stress and time managing their moves, taking time away from operational or personal activities. Of the sampled CAF members, 54 percent feel that relocation services do not meet their needs due to unclear direction and a lengthy and difficult process, and 58 percent^{Footnote 3} overall feel that the program is not meeting their needs. This has a negative impact on CAF morale (as shown in Figure 2).

The relocation process is not flexible in accommodating members’ unique situations and needs. Gender-based Analysis Plus and accessibility analysis would allow the program to consider the unique factors of each member’s relocation and needs. Existing analysis and consideration of accessibility in practice does not meet the needs of some CAF members. 

There are gaps in the accessibility of the Relocation Program and online services. CAF members may be unable to fully access the BGRS system in certain circumstances beyond their control; for example, CAF members with injuries or disabilities may not have the ability to use the BGRS software or a computer. In these cases, a representative often needs to manage their relocations and finances; however, these representatives face challenges because they do not have access to the member’s accounts and/or the BGRS services. They need support from CAF administrative officers. 

These relocations can place a significant burden on administrative staff, members and families due to high levels of effort and inconvenience involved.

Subsequent Events:

As of August 2024, CMP has two new initiatives to improve members’ experiences in the CAF Relocation Program. CMP has conducted additional accessibility analysis to inform future contract requirements. CMP has also initiated an internal review of the CAF relocation experience to determine how the member experience and process may be improved from a user needs perspective. These initiatives will help address some of the findings in the audit report and provide an opportunity to re-examine existing service standards, needs and solutions.

Management Response

CMP will conduct an internal review of the relocation experience with a view to identifying areas for improvement.

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Relocation Program monitoring supports decision making through performance management and issue identification. CMP monitors through briefings, reimbursement reviews and anonymous surveys sent to CAF members. When CMP identifies an issue or a trend, bases/wings are required to conduct more detailed tracking. For example, reliability challenges related to the shipping of furniture and effects by contracted movers arose during the 2020 COVID-19 pandemic. As a result, more detailed tracking and mitigation efforts, such as detailed reporting and use of base storage solutions, were adapted until issues were resolved. CMP also receives data and reporting from BGRS. This data and feedback are used to amend policy and contracts in areas requiring support for CAF members and to inform future service requirements. 

The CAF Relocation Program contract is actively managed and contains mechanisms, such as key performance indicators, a member satisfaction survey, and transaction review, to identify and resolve contract issues. The contract is updated as needed to incorporate modifications that address issues related to the relocation process. 

The procurement process for a new contracted relocation service provider had begun prior to the completion of this audit. It is important that CMP prioritizes service quality, accessibility, clarity and timeliness. CMP is proactively addressing these concerns through the use of existing performance indicators to support decision making and inclusion of further metrics into future contracts. These mechanisms aim to ensure that the contracted relocation service provider continues to respect contract terms. 

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Conclusion

Relocations promote professional development and serve operational requirements, but they are also a highly demanding time in CAF members’ lives with potential impacts to morale, retention and productivity. CAF members are receiving required relocation services, but by addressing opportunities to improve the program’s efficiency and clarity, there would be significant positive impacts on members’ satisfaction and further on the CAF’s operational readiness. 

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Annex A: Management Action Plan

Management Action

CMP accepts this recommendation. CMP will ensure information on its websites is consolidated, current and available to relocating CAF members to ensure there is a single internal source of relevant relocation information and the details are communicated formally to new and relocating CAF members.

This Management Action Plan will be considered closed when there is a single internal source of information updated regularly that is readily available to members to support their understanding and use of relocation services.
 

Management Action

CMP accepts this recommendation. CMP will conduct an internal review of the relocation experience with a view to identifying areas for improvement.

This Management Action Plan will be considered closed when review mechanisms are in place to identify evolving member needs and accessibility requirements and to inform future updates to the Relocation Program and contract.
 

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Annex B: About the Engagement

This engagement conforms with the Internal Auditing Standards for the Government of Canada, as supported by the results of the Quality Assurance and Improvement Program.

Objective

The objective of this audit was to provide assurance that DND/CAF relocation services are effectively governed and delivered to support CAF members across the bases and wings.

Scope and Approach

The audit scope included a review of policies and directives; contract management; monitoring; and service delivery. Scope exclusions included resourcing and staffing; financial transactions and/or files; outside Canada postings; and adjudications/grievances.

A questionnaire was distributed to 246 CAF members, across eight bases and wings, who had recently completed a domestic relocation. There was a response rate of 37 percent for a total of 92 responses, which inform the statistics in this report denoted by a “sampled group.” These statistics are a non-representative sample of the population of relocating CAF members.

A process map was developed from a review of key relocation documentation and consultation with CAF members and relocation coordinators. It was then formalized in a 215-step process map. This process map and review were completed using a lean process mapping and efficiency analysis. Lean is a production-based, continuous improvement methodology focused on maximizing productivity and value while simultaneously minimizing waste within a process. Annex C contains the streamlined version of this process map.

Period Covered

The engagement covered the period from April 2020 to October 2023. This is the period to which the engagement conclusion applies as audit work was conducted from November 2023 to May 2024.

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Annex C: Process Map – Canadian Armed Forces Relocations

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