Evaluation of the Transportation Adaptation and Resilience Initiatives

Evaluation report outlining results of the assessment of the Rail Safety Improvement Program.

On this page

• Executive summary
• Introduction
• Findings
• Conclusions and recommendations
• Appendix A: Management response and action plan
• Appendix B: Endnotes

Executive summary

The evaluation of Transport Canada's Transportation Adaptation and Resilience Initiatives (TARI) assessed the relevance, results, and design and delivery of both the Northern Transportation Adaptation Initiative (NTAI) and the Transportation Assets Risk Assessment Initiative (TARA). This evaluation was conducted through document and literature reviews, key informant interviews, program database analysis, and project file review.

Overall, evaluation findings indicate that both the NTAI and TARA address ongoing needs for climate change adaptation in the transportation sector. These initiatives are aligned with departmental and government roles and priorities, complementing other federal efforts in climate change adaptation.

These initiatives aim to increase knowledge and awareness of climate change risks. Evidence indicates that NTAI- and TARA-funded projects have contributed to this outcome. The NTAI has continued to fund projects that increase available knowledge and data on topics such as permafrost sensitivity and marine conditions, both for specific locations and across the North. The NTAI has made research findings available through network activities and online publication. TARA has increased proponents' knowledge of climate risks and impacts to their transportation assets through risk assessments and related studies. These will inform future planning and decision-making. Barriers and gaps include the lower involvement of non-academic stakeholders in the NTAI network, limitations in the dissemination of research findings from NTAI transfer payment projects, and challenges for TARA recipients in locating region- and factor-specific data.

After knowledge and awareness is increased, it is expected that stakeholders will take action. The NTAI has made progress in supporting applied research and testing, and TARA recipients noted that funded risk assessments and studies will enable future decision-making. Stakeholders identified the need for further support and guidance from the federal government to implement adaptation measures. This includes capital support for large-scale adaptation measures, and specific guidance and standards on design and implementation to build upon risk assessments.

While the NTAI and TARA meet specific adaptation needs, the evaluation found that there is the opportunity to consider the roles and delivery of these initiatives. The NTAI operates in a Northern context, and may benefit from a longer-term funding horizon, flexibility in application and funding processes, and increased engagement with local communities. The collaborative approach to stakeholders is important for program effectiveness, and there may be additional practices to adopt from other federal programs. For TARA, its scope is limited in terms of eligible assets and activities. However, the activities and assets outside of the initiative's scope have an impact on its long-term results. Intermediary steps in adaptation, such as planning and design work, are important for enabling action. Similarly, non-federal transportation assets experience similar climate change impacts and may affect the resiliency of the broader transportation system.

During the evaluation, the initiatives were seeking renewal but were ultimately not renewed through Budget 2021. The following recommendations were developed prior to that budget decision. The evaluators decided to keep them in the report as they can be useful lessons learned for future programming:

1 Introduction

The evaluation of the Transportation Adaptation and Resilience Initiatives (TARI) addresses commitments made in Transport Canada's annual five-year evaluation plan and the requirements outlined in Treasury Board's Policy on Results (2016). These initiatives were seeking renewal during the evaluation, and were ultimately not renewed through Budget 2021. The evaluation findings were intended to inform this renewal process and future planning for Transport Canada's climate change adaptation programming.

1.1 Context and program profile

The 2019 Canada's Changing Climate Report outlines the current and anticipated impacts of climate change for Canada: an average annual temperature that has increased at twice the global rate, changes in precipitation and freshwater availability, increases in the severity of weather extremes and the risk of natural disasters, and changes to landscapes and marine areas.  Through these effects, climate change will impact the health and wellbeing of Canadians, their daily lives and livelihoods, and the natural environment. In addressing climate change, there is a need for both mitigation – interventions to reduce greenhouse gas emissions and the rate of climate change – and adaptation – actions to adjust to actual and anticipated effects.

In order to address adaptation needs in relation to transportation, Transport Canada received funding for TARI, beginning in 2017-18. TARI consists of the Northern Transportation Adaptation Initiative (NTAI) and the Transportation Assets Risk Assessment initiative (TARA), which fund adaptation projects through grants and contributions, as well as other operating cost (OOC) funding^{Footnote 1}. These initiatives fall under the adaptation pillar of the Pan-Canadian Framework on Clean Growth and Climate Change.

NTAI provides funding for research, development, and collaborative activities intended to advance the capacity of Northerners to adapt their transportation systems to climate change. Eligible recipients for grants and contributions include provinces and territories, municipalities, Indigenous governments, public sector organizations, not-for-profit private sector organizations, academia, and individuals. OOC-funded projects include those led by other government departments or projects which directly meet an information need for Transport Canada. Overall, NTAI funding supports projects that enhance knowledge of climate change impacts on northern transportation infrastructure and operations, develop and test tools, technologies, and strategies to address these impacts, and provide education and training. Specific activities may include baseline research, socio-economic studies, site investigations and impact studies, testing and installation of technologies^{Footnote 2}, and capacity-building activities such as training. The NTAI also supports a network of academics, federal and territorial government representatives, and other stakeholders to facilitate communication and encourage collaboration. This initiative began in 2011 and received further funding through Budgets 2016 and 2017, until 2020-21.

TARA provides funding for projects that increase awareness and understanding of climate risks to and vulnerabilities of transportation assets owned by Transport Canada and other federal departments and agencies, and of potential solutions that could be employed. This includes risk and vulnerability assessments and related studies, as well as the purchase of data, equipment, technology, or training to understand climate impacts on specific assets. As projects must focus on a federally-owned asset, recipients are often federal departments and agencies, funded through OOC. However, projects may also be led by stakeholders such as Canada Port Authorities, National Airport Systems Airport Authorities, provinces and territories, Crown corporations, not-for-profit and for-profit private sector organizations, and academia, funded through grants and contributions. The initiative was announced in 2017, with funding through fiscal year 2021-22.

Program delivery

Because NTAI and TARA support activities for a variety of stakeholder types, different funding mechanisms may be used, namely transfer payments (i.e., grants and contributions) and contracts or memoranda of understanding (i.e., OOC funding). Thus, Transport Canada's Environmental Policy and Programs groups both manage these initiatives through separate processes. The Policy teams are responsible for policy planning and direction, as well as overseeing the OOC funding for research and projects. The Programs teams are responsible for delivering the grants and contributions.

To deliver funding through transfer payments, the Programs team launches calls for proposals. A committee, consisting of the specific Programs team and representatives from Policy, reviews the applications. The review considers factors such as the applicant's experience, project relevance, proposal quality, and cost-effectiveness, as well as merit considerations such as the need for the project, contributions to the efficiency and reliability of the transportation system, and advancement of knowledge transfer. The committee jointly scores proposals and creates a list of recommended projects. Once approved, the Programs team prepares the necessary agreements with recipients. Funding agreements establish reporting requirements. For contributions, this typically includes invoices and financial claims as well as progress updates and final reports on the project's activities and outcomes. Similarly, for grants, reporting includes a grant payment request and final report on performance.

The Policy team funds projects through OOC for both NTAI and TARA. This process is more flexible, and generally involves dialogue between the Policy team and stakeholders. For the NTAI, OOC projects are developed based on knowledge gaps and priorities. Contracts and Memoranda of Understanding may be defined following conversations with network members or other stakeholders, such as federal partners, on key information needs. For TARA, OOC is used to support studies undertaken by other federal departments and organizations. Project proposals often follow outreach and presentations to stakeholders by Transport Canada. Proponents submit project proposals to the Policy team. OOC projects, once approved, are formalized through a memorandum of understanding with the partner organization.

1.2 Evaluation approach

In accordance with the Treasury Board Policy on Results (2016), this evaluation considers the relevance, design, delivery, and results of TARI. The two initiatives are at different stages of maturity and have different focuses within climate change adaptation. As such, for NTAI, which was previously evaluated in 2015, particular consideration is given to the achievement of expected results. The analysis covers the previous five fiscal years, from 2015-16 to 2019-20. For TARA, the focus is preliminary results and program structure, covering the period between its launch in 2017-18 until 2019-20.

A variety of evaluation methods were used to explore these issues. Data collection included a document/literature review, project file review, program database review, and key informant interviews.

Document and literature review. Internal and external documents were reviewed to inform evaluation needs and findings. This included government reports, policy documents, program foundational and planning documents, and academic literature.

Project file review. A sample of applications, agreements, and reports from NTAI and TARA projects were consulted to explore project objectives and results.

Program database review. Performance and financial data tracked by the NTAI and TARA teams provided information on key outputs, project types and distribution, and program demand and efficiency.

Interviews. Interviews were conducted with internal Transport Canada staff (e.g., Environmental Policy staff, Programs staff), NTAI and TARA funding recipients and members of the NTAI Network, and representatives from territorial governments and other federal departments. A total of 44 interviews were conducted between August 2020 and October 2020.

2 Findings

2.1 Relevance

Finding 1. NTAI and TARA support departmental and federal government priorities.

Within Canada, there are various domestic frameworks and policies that drive climate change adaptation efforts, including the Pan-Canadian Framework on Clean Growth and Climate Change, the Federal Sustainable Development Strategy, the Federal Adaptation Policy Framework, and the Greening Government Strategy. These policies and frameworks cover greenhouse gas reductions, infrastructure and community resiliency, knowledge generation, and related actions. Recent Budgets and Speeches from the Throne have also articulated a commitment to responding to climate change, in relation to topics such as community wellbeing, economic growth, and emissions reduction.

In December 2020, Canada's new climate plan, A Healthy Environment and a Healthy Economy, was announced. As part of this plan, the federal government intends to develop a National Adaptation Strategy, working with provincial, territorial, and municipal governments, Indigenous peoples, and other partners. New ministerial mandate letters in January 2021 outlined an expectation that all ministers support work related to climate change adaptation.

The Government of Canada is also party to multiple international agreements, frameworks, and partnerships related to environmental protection and climate change. This includes the United Nations 2030 Agenda for Sustainable Development and the 2015 Paris Agreement. The 2030 Agenda is an initiative to collectively address global inequity and environmental degradation. It includes seventeen sustainable development goals with specific targets, including specific action on climate change. The Paris Agreement, adopted in 2015, has commitments on emissions reduction, adaptation efforts, and international cooperation and transparency.

Transport Canada has identified A Green and Innovative Transportation System as a core responsibility. Strategic departmental documents, including Transportation 2030, the Departmental Plan, and the Ministerial mandate letter, highlight an environmentally sustainable and resilient transportation system as a central objective.

In this context, NTAI and TARA are key contributors to Transport Canada's adaptation work, and contribute to federal climate change commitments as part of the Pan-Canadian Framework on Clean Growth and Climate Change.

Finding 2. NTAI and TARA are uniquely situated in federal adaptation efforts. There are efforts to ensure complementarity without significant overlap.

There is a broad range of federal initiatives that support climate change adaptation. The federal government's role, as identified in the Federal Adaptation Policy Framework, includes knowledge generation and sharing, building capacity and enabling action, and integrating or ‘mainstreaming' adaptation into planning and decision-making. These priorities, and the various federal programs which aim to support them, can be visualized as a process or continuum of adaptation:^{Footnote 3}

Federal initiatives along an adaptation continuum

1. Awareness and knowledge generation
   • Northern Transportation Adaptation Initiative
   • Transportation Assets Risk Assessment Initiative
   • Canadian Centre for Climate Services
   • Climate Change and Health Research Initiative
   • Aquatic Climate Change Adaptation Services Program
   • Indigenous Community-Based Climate Monitoring Program
2. Capacity building and preparation
   • Northern Transportation Adaptation Initiative
   • Transportation Assets Risk Assessment Initiative
   • Building Regional Adaptation Capacity and Expertise
   • Climate Change and Health Adaptation Capacity Building Program
   • Climate Change and Health Adaptation Program
   • First Nations Adapt
   • Municipal Asset Management Program
   • National Disaster Mitigation Program
3. Taking action
   • Climate Change Preparedness in the North
   • First Nations Adapt
   • Disaster Mitigation and Adaptation Fund
   • Investing in Canada Infrastructure Program
   • Municipalities for Climate Change Innovation Program
   • National Disaster Mitigation Program
   • National Trade Corridors Fund

Mainstreaming

The intention is for climate change adaptation to be integrated into decision-making and planning at the federal level, within Transport Canada, and within other organizations. Various initiatives aim to support this objective, including:

• Greening Government Strategy
• Standards to Support Climate Resilience in Infrastructure
• Transportation Assets Risk Assessment Initiative
• Northern Transportation Adaptation Initiative

Northern Transportation Adaptation Initiative

NTAI and TARA contribute to both knowledge generation and capacity building. While there are several northern initiatives that support community wellbeing, development, and adaptation, NTAI is uniquely focused on transportation needs. Other initiatives in the North focus on other adaptation needs such as health (e.g., Indigenous Services Canada's Climate Change and Health Adaptation Program North), or on adaptation in general (e.g., Crown-Indigenous Relations and Northern Affairs Canada's Climate Change Preparedness in the North Program). Several external interview participants stated that NTAI fills a niche need, elaborating that other funding sources are broader with limited resources for climate science specifically, or are intended for large-scale projects.

TARA, with its focus on risk assessments and similar studies for federally-owned transportation assets, is the only federal program that provides this specific support. This initiative complements the Greening Government Strategy in particular, which aims to reduce greenhouse gas emissions and increase the resiliency of federal assets, services, and operations. With no other sources of central funding available, TARA can support owners and operators of federal transportation assets in meeting these commitments.

Interview participants highlighted that the coordination of federal adaptation efforts could be improved. Currently, interdepartmental coordination occurs through venues such as the Director Adaptation Resilience Task Team and Director General Adaptation and Resilience Committee. Some interviewees stated that although this communication occurs, adaptation activities appear to happen in silos and could be better coordinated to ensure a coherent approach for stakeholders. However, interview evidence also indicates that informal interdepartmental communication occurs at the working levels to increase awareness and avoid duplication. For instance, the NTAI will refer applications to other departments when a project would be a better fit for another program. Similarly, they consult with partner departments such as Crown-Indigenous Relations and Northern Affairs Canada (CIRNAC), Natural Resources Canada (NRCan), and Environment and Climate Change Canada (ECCC) to share information, inform them of projects, and request expert advice.

Finding 3. NTAI and TARA address ongoing needs related to climate change.

Climate change is anticipated to have wide-ranging impacts, and many areas are already experiencing effects. Changes to temperatures, precipitation, weather patterns, seasonal water and ice patterns, and ocean acidification have major implications for areas such as food security, community health, infrastructure, transportation, and the economy as a whole. The transportation sector plays a critical role in the economy and the wellbeing of Canadians through the movement of goods and people, and is vulnerable to the changing climate. Northern, coastal, and remote areas experience amplified effects, and ageing infrastructure compounds the issues.

NTAI

The NTAI is able to contribute to addressing key issues in the North by funding relevant research, the development and testing of tools and strategies, and training. NTAI projects cover a variety of topics, from permafrost and related landscape changes to sea ice and weather models to specific infrastructure vulnerabilities, as well as projects that test adaptation measures and technologies. In this way, the initiative is able to address information needs in the North related to transportation systems. For instance, roads, airport runways, and other infrastructure are underlain by permafrost, which is highly sensitive to climate. Increasing temperatures lead to permafrost degradation, which results in surface instability and hydrological changes. Permafrost thaw thus introduces new hazards and shifts topography. Surface transportation and buildings are also vulnerable to flooding and coastal erosion. Changing temperatures and lengths of operating seasons affect winter roads.^{Endnote 1} Marine transport is affected by changing sea ice patterns, water levels, wind and precipitation patterns, and temperatures, as well as ageing port infrastructure. These changes can impact navigation, safety, and supply routes.^{Endnote 2} Conversely, changing ice and weather presents the opportunity for increased shipping and traffic, though this may require regulatory and infrastructure updates. The NTAI supports projects that explore these issues and provide a knowledge base for decision-makers.

Interviews with recipients, NTAI network members, and government representatives highlighted these impacts, as well as the general need for funding support in the North. Northern stakeholders have limited financial and human resources to undertake climate change adaptation projects. In addition, due to the logistics of northern locations (e.g., remote, limited access), it can be more costly than in the south to acquire equipment and materials for research and construction activities. NTAI funding can enable northern stakeholders to carry out projects that otherwise may not be financially possible.

In addition, given that transportation networks and usage varies by area, the NTAI can support different regional adaptation needs. For instance, projects in the Yukon may focus on its relatively well-developed road network, while work in Nunavut, which has no all-weather roads connecting communities, may instead focus on air and marine transportation.^{Endnote 3} The Northwest Territories may have a broad range of priorities, as this region relies on a mixture of all-season and winter roads, air transport, and ferries, supply barges, and private vessels.

The degree to which the program can allocate available funding dollars can also be indicative of need. A comparison of available budget and the amount of funding committed each year is one indicator of the level of demand. (Figure 1). In 2015-16 and 2016-17, the available grants and contributions budget was fully committed, suggesting full subscription of the program. In 2017-18, a small proportion of the budget was not committed. In 2018-19, the full budget was not committed. Records indicate that three new contribution agreements were approved late in 2018-19, and did not have sufficient time to commence work that year. Funding was re-profiled for use in the next fiscal year. In 2019-20, the funding commitment again aligns with the available budget.

As noted, the NTAI OOC funding process has flexibility in order to address program objectives. OOC funding may be used to fund research through contracts and memoranda of understanding, as well as to fund other activities such as network meetings, workshops, training, conference attendance and travel. The available OOC budget is for various operating expenditures, including projects, and is not driven by stakeholder proposals. The Policy team allocates OOC funds as needed and so forecasts for OOC-funded research projects may change throughout the fiscal year as, for example, participation in stakeholder meetings and workshops and related costs are confirmed. In place of comparing budget to forecasts for OOC research, a comparison of the total available OOC budget and actual OOC expenditures provides a limited indication of allocation and demand. Data suggests that the initiative is generally able to utilize the available budget for all OOC activities (Figure 2). The exception is 2016-17, where financial documents note that this funding was released due to contracting issues. However, given these data include all OOC activities, not solely projects, a statement specific to OOC project funding cannot be made.

At the time of writing, recent program documents indicate that the majority of the remaining NTAI funding has been committed. Given that the impacts of climate change are currently being felt in the North, demand for this type of funding may increase over time.

TARA

TARA funding enables the identification of location-specific climate risks to transportation assets. Subsequently, recipients can account for these risks in asset management and decision-making in order to adapt to the changing climate. As in the North, climate change poses current and anticipated risks to transportation assets across the country. The potential impacts vary by region and mode, but overall it is clear that both infrastructure and operations are vulnerable to extreme weather, changing temperature and precipitation patterns, flooding, and sea level rise.^{Endnote 4} For instance, depending on their location, roads and bridges may experience flooding, coastal erosion, and other damage. Airport runways may be damaged by floods or freeze-thaw cycles, while terminals and aircraft may be vulnerable to high winds and extreme precipitation.^{Endnote 5} Storms, rising sea levels, and changes to shipping seasons may affect marine transportation. Ageing infrastructure is especially vulnerable.  By funding risk assessments and related studies, TARA is able to support stakeholders in the first steps of adaptation.

As noted, the level of subscription of a program can suggest need. However, it can also be indicative of awareness and program maturity. Upon program approval, TARA actively sought proposals for OOC projects and was underutilized in the first year. As with NTAI, in considering demand, analysis of available TARA OOC financial data focuses on the total available OOC budget in comparison to actual OOC expenditures (Figure 3). In comparing the available budget to disbursed funding, it appears that the initiative has been able to allocate more funding in the two recent fiscal years. In its first year, program documents indicate budget surplus was due in part to the lower than expected number of OOC proposals that could move forward in that fiscal year, staff shortages, and confirmation of funding approval midway through the year.

The first call for proposals for TARA grants and contributions occurred in 2018-19. In 2019-20, the initiative substantially increased its funding commitments through grants and contributions, though did not allocate the entirety of the available budget (Figure 4). Unused funding was re-profiled for allocation and use in the subsequent fiscal years.

2.2 Design and delivery

As part of the Government of Canada's climate change adaptation programming, the NTAI and TARA are intended to increase awareness and understanding of the effects of climate change on transportation and of potential adaptation measures in order to support decision-making and planning. Each initiative is designed to support a variety of stakeholder types, including provincial and territorial governments, academia, and not-for-profit private organizations in undertaking eligible activities. As noted, projects may be funded through transfer payments or through other operating cost (OOC) funding.

Financial data provides insight into the delivery of TARI grants and contributions. For NTAI, the committed funding is generally disbursed (Figure 5). The full commitment was not disbursed in 2019-20: program records indicate this was due to project delays, a project cancellation, final claims to be paid out the subsequent fiscal year, and a small amount of lapsed grant funding.

For its two years of transfer payment delivery, TARA has disbursed the funding amounts as committed (Figure 6).

As noted previously, for NTAI and TARA OOC projects, a consideration of overall available OOC budgets in comparison to the actual expenditures shows that, in general, the available budgets are fully allocated and disbursed.

Overall, feedback from recipients indicated that application and funding processes were clear and interactions with Policy and Programs staff were positive. However, some interviewees noted challenges with the timing of approvals and confusion regarding reporting requirements and eligibility. In addition, more broadly, recipients commented on the roles of the initiatives and potential areas for improvement.

In examining the design and delivery of these initiatives, key considerations are the collaborative and northern operating context of NTAI and the scope and role of TARA.

Finding 4. Flexibility in program delivery is particularly important in a Northern context. The NTAI has been aware of and responsive to the needs of recipients, but there are opportunities for improvement.

Interview evidence indicates that NTAI staff are aware of the various challenges northern stakeholders and researchers experience, and are flexible where possible, for instance, to accommodate project delays. As highlighted in Canada's Arctic and Northern Policy Framework, Northerners face issues ranging from income and health inequalities to insufficient infrastructure to the social and environmental impacts of climate change.^{Endnote 6} NTAI interview participants noted specific challenges for delivering projects, such as:

• ageing infrastructure and maintenance costs;
• capacity issues and turnover rates in territorial governments;
• the expenses (e.g., accessing/transporting the necessary equipment) and potential delays (e.g., weather factors) associated with conducting research in a northern environment; and
• competing priorities and interests.

In this context, there are several opportunities for the NTAI to better meet the needs of northern stakeholders. These include:

1. A longer term funding horizon

   A long-term funding horizon would support effective project conduct, particularly in the context of delays, and could enable more forward-thinking work, longitudinal studies, and strategic investments. This echoes the findings of the Arctic and Northern Policy Framework, which notes that "stable and accessible funding for federal programming" is necessary for progress.^{Endnote 7}

   This would also allow for continuity of relationships and enhanced program awareness.

2. Simplifying or increasing the flexibility of transfer payment application and funding processes
   Feedback from interviewees on the transfer payments application and funding process was mixed: while some felt it is accessible and straightforward, others suggested it is too bureaucratic and lacks the flexibility needed for the northern context. Challenges identified included approval timelines and lack of capacity amongst stakeholders to submit proposals and manage transfer payments. With limited capacity and numerous priorities, territorial governments in particular find the process cumbersome.

   Additional support and flexibility in application format and deadlines, as well as funding agreements and processes, would be beneficial for lower capacity stakeholders.

3. Improved engagement with local and Indigenous stakeholders

   Some interviewees perceived the NTAI Network as heavily academic. Territorial governments are also involved in identifying issues, discussing research needs, and knowledge sharing in the network. Additional engagement with local and Indigenous stakeholders could be beneficial for defining adaptation needs and ensuring new knowledge through funded projects is applicable.

   This may also include broadening the understanding of what transportation means in the North to fully account for local definitions and usage of transportation networks, and considering how transportation adaptation may overlap or intersect with other climate change adaptation priorities (e.g., community health) for a more holistic approach to adaptation.

   However, a clear understanding of roles is key. Territorial governments and federal departments such as CIRNAC may be the focal point for ensuring local and Indigenous participation and partnerships. For instance, interview participants from the territorial governments highlighted consultations and partnerships with Inuit and First Nations communities with respect to infrastructure projects. Local needs and knowledge frequently inform the project plans. However, direct engagement with local and Indigenous communities may enhance the effectiveness of NTAI project selection and activities. NTAI could consider further coordination of engagement efforts with federal partners also working in the North, such as CIRNAC, ISC, and ECCC.

Finding 5. For the NTAI, collaborative relationships with stakeholders are central to program effectiveness. The Policy and Programs teams strive to balance this with the requirements of the Policy on Transfer Payments. Within this context, there is an opportunity to learn from approaches taken by other federal partners, to ensure region- and community-specific transportation adaptation needs are met.

The Policy on Transfer Payments delineates the roles of programs and recipients, and defines the appropriate application of these funding instruments. Specifically, the Policy states that transfer payments (i.e., grants and contributions) further policy objectives and priorities, are delivered in a transparent and fair manner, and do not result in direct benefit to the Government of Canada.^{Endnote 8} Through transfer payments, external stakeholders carry out activities that contribute to key outcomes. OOC funding, on the other hand, can be used to fund contracts or memoranda of understanding to meet the needs of federal departments as well.

The NTAI, in addition to funding projects, provides a forum to discuss specific stakeholder needs and build collaborative relationships. These interactions have been central to the effectiveness of the NTAI, as they identify key issues, and contribute to the development of new projects. In order to select projects, in the initial years of the NTAI, network members were part of the proposal review process. Some external stakeholders indicated there was value in this approach, as network members were able to provide direct input on the merit of the proposed projects. As described above, currently the selection of transfer payment projects is done through a committee consisting of Transport Canada staff from Environmental Policy and Programs. Some interviewees noted that this shift eliminates the real or perceived conflict of interest of network members being involved in project selection.

Interviewed TC staff outlined discussions and consultations with various parties to ensure that, given the collaborative nature of stakeholder engagement, requirements under the Policy were observed. There is an understanding of the roles of and challenges faced by the NTAI Policy and Programs teams with respect to collaborative relationships with stakeholders. However, a lack of flexibility in funding processes and stakeholder engagement practices may hinder knowledge-sharing efforts and community involvement. Other federal programs operate in similar contexts, and from these there are examples of collaborative approaches to meeting the needs of Northerners. There is an opportunity to learn from these approaches.

For instance, similar to the NTAI's current approach to identifying key issues through network activities, the National Research Council Canada (NRC) is taking a collaborative approach to identifying project priorities and research needs for their Arctic Program. This has involved consultations with stakeholders to discuss, select, and co-develop potential research areas in advance of launching a call for proposals for grants and contributions.

Some programs at CIRNAC have taken a flexible and community-driven approach to their programming. Notably, the Climate Change Preparedness in the North Program^{Endnote 9} funds adaptation projects in Yukon, Northwest Territories, Nunavut, Nunavik, and Nunatsiavut led by territorial and regional governments, Indigenous communities and organizations, and academic institutions. This program, in partnership with Indigenous Services Canada (ISC)'s Climate Change Health Adaptation Program, has implemented regional committees with local stakeholders and rightholders involved in reviewing and providing feedback on proposals, as well as regional liaisons who serve as clear points-of-contact to support applicants. This approach is intended to better enable communities to apply for federal funding, and to ensure selected projects meet local needs and priorities.

Finding 6. The scope of TARA is limited to risk assessments and related studies for federally-owned/managed assets. Other transportation assets and intermediary activities following risk assessments do not have access to similarly focused federal support.

Activities and assets just outside of TARA's scope can impact TARA's long-term outcome of an increasingly resilient transportation system, but appear to have significantly less support in building this resilience. TARA solely funds projects that focus on federally-owned or federally-managed transportation assets. In addition, the scope of TARA is narrow in terms of the eligible activities, focusing on risk assessments and vulnerability studies. Transportation assets such as privately-owned railways and provincially-owned bridges and roads are not eligible for TARA funding, along with other planning activities such as design work in preparation for implementing adaptation measures. Transport Canada could consider the role of TARA in addressing these gaps, whether through enhanced coordination with other programs and communication with stakeholders, or through reviewing the initiative's current scope.

While studies funded through TARA are a key first step in adaptation for federal assets, when discussing the challenges with implementing adaptation measures, two recipients suggested that a broader scope or flexibility in eligible activities would better enable future action. This may include the intermediary steps, such as design and other planning activities, required for implementing changes.

"…there's a point fairly quickly in the adaptation process where you start moving from risk assessment to planning and implementation. If the goal is to improve resiliency of assets and infrastructure, the scope needs to be broadened to allow applicants to come forward and go beyond assessments…"

Similarly, non-federal transportation assets have limited funding available for risk assessments like those done through TARA. Potential funding sources for similar projects for non-federal assets are fairly broad, also covering a variety of infrastructure and community needs beyond transportation. As a result, asset owners may be less likely to be selected for additional funding and may not be able to complete the type of projects funded through TARA. For instance, at the federal level there are programs such as the Municipalities for Climate Innovation Program (Infrastructure Canada and the Federation of Canadian Municipalities) that could support non-federal transportation assets, but this program supports a broad range of municipal needs, including energy management, water management, transit, and building upgrades. Similarly, at the provincial levels, a high-level scan found a variety of broad climate change programs that support energy efficiency, emissions reduction, and community planning and development projects.

Two external interviewees suggested that slightly broadening of scope for TARA to include other assets would be useful for enhancing system-level resiliency, while still maintaining the necessary focus on transportation. They noted the interconnectivity between various assets and infrastructure, beyond those that are federally owned. While most interview participants focused on risks to their individual assets, one highlighted the value of considering the interconnectivity of the system. Considering the climate change impacts not only on a specific asset but on supply chains and other modes of transportation can allow for more effective planning. In considering this broader system, TARA may be well-positioned to support information-sharing and coordination of assessment and adaptation efforts between various transportation asset owners and operators.

2.3 Results

The Transportation Adaptation and Resilience Initiatives are intended to contribute to the outcome of an increasingly resilient transportation system. NTAI and TARA aim to support this through increasing knowledge and capacity amongst stakeholders to enable action. This section considers the progress that NTAI and TARA have made toward these intended results.

Expected outcomes for Transport Canada's adaptation initiatives

Source: Program's performance information profile

Long-term: A transportation system is increasingly resilient to the changing climate.

Medium-term: Transportation sector takes action to reduce the risks associated with climate change.

Short-term: Projects are effectively implemented. Increased capacity among Northerners to understand how to adapt transportation infrastructure to a changing climate. Transportation sector is increasingly aware of the risks associated with climate change and of potential adaptation measures.

Short-term results

NTAI and TARA are at different stages in terms of program maturity and stakeholder awareness, given that NTAI began in 2011 and TARA launched more recently, in 2017. Both aim to increase knowledge and awareness of climate change, its risks, and potential adaptation measures. NTAI also intends to increase capacity among Northerners specifically. Since 2015-16, there have been 26 NTAI projects completed. A further 21 are currently ongoing. Of 33 TARA-funded projects, 18 have been completed to date. Following project completion, progress toward expected outcomes can begin to be evaluated.

Finding 7. Both the NTAI and TARA have had success in increasing knowledge and awareness of climate change risks. While knowledge-sharing through workshops and other means has been effective, there are barriers and gaps related to knowledge dissemination and data availability.

NTAI

The previous evaluation of NTAI highlighted effective knowledge transfer as a key issue: "ensuring that the information produced by the networks is accessible and easily understood by potential users was a frequently identified priority for the future."^{Endnote 10} The evaluation recommended the development of a knowledge transfer plan in collaboration with network members. In response, the program engaged with network members to create a plan and took steps to disseminate reports, host and participate in presentations, and promote the initiative at external events.

Since that time, the NTAI has continued to fund a wide range of projects that have increased the available knowledge and data. A review of project files demonstrated coverage of an array of topics, such as sea ice modelling, ship biofouling in the Arctic, permafrost sensitivity and thaw impacts, and infrastructure vulnerability. Interview participants outlined their project outcomes, such as a clearer understanding of permafrost behaviour and terrain relations, collection of baseline data, and building on previous marine studies.

To enhance knowledge-sharing, the NTAI Network undertakes activities such as annual meetings and workshops. The network's membership includes over 100 representatives from federal, provincial, and territorial governments, academic institutions, and industry. The majority of stakeholder interviewees indicated that the network is valuable for knowledge-sharing. It is intended as a forum for discussing key issues, sharing information, and building relationships.

"[Meetings] have been useful. It gives us a chance to see what other stakeholders are facing and what issues they have. It opens the door to other types of collaborations that might have not happened otherwise."

The NTAI makes research findings available to stakeholders through the network and related engagement activities as well as through Transport Canada's Open Science Portal^{Endnote 11}. The NTAI has hosted, participated in, or sponsored participation in 23 events since 2017/18.^{Endnote 12} Project proponents also report on information dissemination: since 2015, a total of 47 information products came from 23 projects, and proponents noted 33 occasions for further dissemination (e.g., through conferences, peer-reviewed publications, etc.). In addition, some NTAI-funded projects have specifically supported information-sharing, such as the Permafrost Information Network, which aims to increase public availability of permafrost data.

However, while evidence indicates that knowledge-sharing through the network and other means has been effective, a number of challenges remain:

1. Not all NTAI funding recipients are involved in the network, which means they may not share their findings in that forum or benefit from those connections and collaborations.
2. As noted, a few interviewees perceived the network as heavily academic in recent years and indicated that there is a need for greater involvement from industry and end users, specifically local Northern stakeholders, to ensure the integration of these perspectives and needs. This may be achieved in part through hosting more workshops in northern locations to better enable local participation. However, for both industry and northerners, barriers to direct participation include cost and time, and travel within the North is expensive. One interviewee also pointed out the challenge and importance of knowledge translation and making scientific research understandable and accessible to local communities.
3. Intellectual property and limitations in reporting requirements can also be a barrier to NTAI's ability to disseminate knowledge generated through projects. For grants and contributions specifically, control over research and findings remains with the proponents, and reports required for claims focus on progress and project status, rather than research findings. Thus, dissemination of these projects relies on proponents to take action.

The NTAI also intends to share expertise within Transport Canada. For instance, the NTAI's policy team supported the development of evaluation criteria for the National Trade Corridors Fund (NTCF) and participated in proposal evaluations. NTAI also communicates with Transport Canada's Strategic Policy and the Prairie and Northern Region to discuss needs and priorities that could be addressed with OOC-funded research, and has facilitated a connection between Marine Safety and Security and a project proponent on sea-ice risks to shipping. One interview participant indicated that this role could be enhanced, with further internal dissemination on key issues.

TARA

Overall, the evaluation found that TARA-funded projects have increased proponents' understanding of specific risks and anticipated impacts for their individual assets. Between 2017-18 and 2019-20, TARA has disbursed $2.36 million and committed a further $4.32 million in funding for a total of 33 projects across the country.^{Endnote 13} Funding has been allocated to Transport Canada and other federal departments, port and airport authorities, and academic institutions (Figure 7). Funded projects have yielded, for instance, storm surge models, flooding risk assessment criteria, and site-specific climate projections, to inform future decision-making for individual federal transportation assets such as ferry terminals, airports, and highways.

TARA has also brought together recipients to share findings. A workshop in January 2020 was well-received by participants. Several interviewees stated that the workshop was valuable for learning about other work being done and different approaches being taken, as well as for networking with other asset owners and operators.

However, stakeholders would benefit from further availability and sharing of risk assessment approaches, best practices, and data sources. Lack of region-specific data and data on certain factors has been a challenge for some proponents, and in some cases a lot of effort goes toward finding appropriate data sources in existing literature. There may be duplication in efforts to find information, as stakeholders search for relevant data in parallel. TARA could explore how best to support these information needs. For instance, TARA could continue to facilitate sharing amongst proponents through workshops or similar means, and provide stakeholders with opportunities for interaction on a regular basis. Two interviewees suggested a centralized compilation of studies conducted through TARA would serve as a useful reference. However, in this case, there may be commercial sensitivities to consider. Promoting key information sources, such as the Canadian Centre for Climate Services which could serve as a starting point for guidance and accessing datasets, would also be valuable.

Finding 8. NTAI has bolstered capacity in territorial governments and academia to address climate change adaptation. Differences in capacity amongst stakeholders remains a key consideration.

The NTAI also intends to increase capacity amongst Northerners to understand how to adapt to climate change. Evidence suggests that NTAI has been effective in supporting training and skills development, increasing available knowledge, and enabling stakeholders to undertake projects that could not be funded internally.

Program data indicates that the majority of funding has been committed to projects led by territorial governments and academia (Figure 8) and approximately 48% of funding supports projects dedicated to developing technical capacity^{Footnote 4} (Figure 9).

Interview evidence included positive feedback regarding the NTAI's receptivity to capacity-building, and confirms that NTAI funding has enabled territorial governments to undertake projects that they otherwise could not pursue due to constrained budgets. For example, the Government of Yukon has undertaken a project to implement and test thermosyphons on a portion of the Alaska Highway to mitigate permafrost thaw:

"That project is the culmination of eleven years of work with NTAI. … We are now in a much better position to make decisions on climate change adaptation. … In eleven years, we have gone from understanding the permafrost to applying these adaptation techniques and testing them in the field. We made a lot of progress, even though we had limited funds and resources.

NTAI funding has also supported growth and training for territorial and academic stakeholders, supporting conference attendance by students and training for staff, for example. In an academic context specifically, program data shows that six NTAI projects involved 23 graduate students between 2015-16 and 2019-20. Several interviewees confirmed that NTAI has been valuable for student development, offering practical experience in an adaptation context and developing connections in the North. In addition, NTAI staff highlighted efforts to include young female researchers specifically, to support diversity in a typically male-dominated field.

As noted, NTAI network meetings facilitate relationship-building and stakeholder connections. For instance, several academic interviewees highlighted the value of building direct connections with northern governments and operational staff through the network. These connections and collaborations are particularly valuable for new researchers, to develop knowledge and skills, as well as for networking. One industry stakeholder noted that these workshops can informally enable recruiting. Some interview participants specifically stated that the network has fostered collaboration on projects with different organizations. One interview participant highlighted that through these relationships, the capacity of territorial governments is increased, as it better enables them to address adaptation challenges and brings together multiple perspectives and knowledge bases.

Although NTAI is contributing to increased capacity in the North overall, differences in capacity amongst stakeholders remains a challenge. Interview evidence indicates that while financial and human resources are limited across the North, Nunavut is particularly strained. The Governments of Yukon and Northwest Territories typically have more capacity to engage, partner with academia, develop proposals, and carry out projects. The majority of NTAI funding since 2015-16 has gone to projects in Yukon (10 projects, 42% of funding), in the Northwest Territories (3 projects, 20% of funding), or with a pan-Northern focus (13 projects, 19% of funding) (Figure 10). Projects in Nunavut, in Quebec, or focused on Arctic or Northern Waters have each accounted for 5% of funding, respectively. To a lesser extent, NTAI has engaged with northern regions of provinces, such as Nunavik and Northern Labrador. There is internal and external awareness of the differences between regions, and discussions surrounding how best to support various needs.

Finding 9. TARA has enabled recipients to take the first steps in assessing and planning for climate risks.

The assessments and studies funded through TARA represent the first steps in climate change adaptation for asset owners/operators, as they provide key information to be used for decision-making, planning, and implementation of adaptation measures. As noted, TARA projects have produced relevant baseline data, models, and projections for individual assets and highlighted key risks and vulnerabilities.

"We're still trying to communicate across the organization to understand how to address the risks. But prior to TARA, there was speculation but not a clear picture. We think precipitation is a risk but we don't really know. To sit down and do the analysis has helped us distill which risks are important and which are not as vital."

This information is needed for planning purposes, and interviewees stated that TARA project results will be considered for future plans and designs. Stakeholders highlighted that their projects will inform upcoming infrastructure upgrades and potential operational or procedure changes, and will be used to identify areas that require further attention. Some proponents do not plan to implement infrastructure changes for a number of years, as upgrades to infrastructure have recently occurred or existing infrastructure is not yet at the end of its lifecycle.

Medium-term results

These two initiatives share a medium-term outcome of "the transportation sector takes action to reduce the risks associated with climate change." The aim is for the increased knowledge and awareness to enable stakeholders to implement climate change adaptation measures. While progress has been made, evidence suggests that stakeholders need further support and guidance.

Finding 10. Since the 2015 Evaluation, NTAI has made progress in supporting more applied research and pilot testing. Interviews found that there is a need for both testing and ongoing data collection.

The previous evaluation of NTAI highlighted the need for practical research and adaptation solutions, and recommended that the program "ensure any further northern adaptation R&D initiatives prioritize adaptation pilot-testing and deployment/implementation of adaptation techniques."^{Endnote 14} Under the initiative's renewal as part of Adaptation funding, NTAI identified support for pilot projects as a core activity moving forward.^{Endnote 15} Since that time, NTAI has made progress in supporting applied research and pilot testing.

Program data indicates that 15 of 47 projects funded since 2015-16 had an element of testing and applying adaptation measures and technologies. This has included thermosyphon test sites to address permafrost thaw, implementation of geohazard warning systems, and installation of test pavement sites. Interview evidence supports this: participants noted the need for applicable research and action, and commented that the NTAI has supported work to address specific needs and practical studies on how to adapt.

"My perception is we don't need studies to say how bad it'll be, there's a lot of that. We need studies about how we adapt and how we fix things. And this is what the NTAI is doing."

Nevertheless, participants also underscored an ongoing need for data collection, modelling, and knowledge building. Refined and accurate forecasting and planning requires up to date information. Baseline data is needed, and gaps remain for specific sites and regions. Importantly, northern environments are rapidly changing, and so ongoing data collection is needed to understand the evolving context. In addition, in some cases, data exists but is not easily accessible, reiterating the need for effective dissemination.

Finding 11. Some TARA recipients said initial risk assessments are high-level and often further work needs to be done prior to decision-making and implementation.

While recipients found assessments and studies through TARA valuable, several interviewees noted that the findings from these risk assessments are often not directly implementable. An initial risk assessment provides a general picture of anticipated changes and related risks. Further investigation and planning needs to follow in order to make decisions regarding which risks to prioritize and how to address them. Recipients generally will use these high-level assessments as context while carrying out more detailed studies in the future when infrastructure needs to be replaced. One recipient noted that anticipated climate impacts and solutions were more straightforward for their marine assets than their air assets, suggesting there are disparate challenges in adaptation planning for different modes.

Some interviewees suggested that the sector needs further guidance on how to integrate risk assessment findings into design, planning, and management. There is a lack of clarity on how to align asset management plans with climate change projections, particularly when assessments are broad. Clear design and engineering standards are an important tool for encouraging decision-makers to invest in infrastructure resilience.^{Endnote 16} Currently, two initiatives under the Pan-Canadian Framework on Clean Growth and Climate Change support the development of codes and standards: the Climate Resilient Buildings and Core Public Infrastructure (CRBCPI) Initiative (National Research Council of Canada) and the Standards to Support Resilience in Infrastructure Program (Standards Council of Canada). Through the CRBCPI, the NRC is working to integrate climate resilience into building and infrastructure design, guides, and codes.^{Endnote 17} In parallel, the SCC has 36 projects focused on developing and funding standardization guidance for climate data and projections, new and updated infrastructure standards, and new technical standards for the North.^{Endnote 18} While not all modes of transportation are included in this work, guidance and standards such as these will help stakeholders to effectively design and implement adaptation measures for their transportation assets.

The evaluation also notes that many proponents rely on consultants to undertake this work. Stakeholders with less internal capacity or expertise may face challenges with communicating and acting upon findings.

Finding 12 Stakeholders identified a need for further support for direct action and implementation of adaptation measures.

As noted in Finding 2, both NTAI and TARA focus on knowledge generation and capacity building to better enable stakeholders to adapt. Interviews found that in order to move forward and take action, stakeholders require additional support and funding for capital projects.

Importantly, the information gathered through NTAI studies and TARA risk assessments can support stakeholders in applying to other funding programs, such as Infrastructure Canada's programs and Transport Canada's National Trade Corridors Fund (NTCF). These programs require the applicants to assess climate change risks related to their projects, as well as greenhouse gas emissions impacts, through the application of a climate lens.^{Endnote 19} Having assessed issues or identified risks through NTAI- or TARA-funded projects, stakeholders may be better prepared to submit applications for subsequent funding to move forward with adaptation action.

Federal programming supports knowledge and capacity building, as well as taking action, though evidence suggests efforts for the former have been stronger.^{Endnote 20} However, movement toward direct action is occurring. While there is infrastructure funding available, interviews found that recipients find it challenging to access funding for their adaptation projects. For many TARA recipients, it can be difficult to fund adaptation measures internally, with limited budgets and various priorities.

"It's great to have that first step, funding these studies, but how do we go about funding the actual improvements. A lot of port and airport authorities don't have a lot of funding available."

In terms of access to external funding, for some TARA interviewees there appeared to be a lack of clarity on other available funding sources.

While the NTAI has supported applied research and pilot testing, the large-scale implementation of infrastructure adaptation measures requires larger amounts of funding through other programs and sources. Interviewees noted a number of challenges related to funding such projects in the North, highlighting that federal programs are often designed for southern stakeholders without recognizing northern operating contexts and needs. Funding profiles, minimum expense requirements, timelines, and application structures can all be barriers for northern stakeholders, who have limited capacity and operate in unique environments.

Finding 13. Cost analysis of climate change impacts would help stakeholders highlight and communicate the economic value of prioritizing adaptation needs.

The need for adaptation is clear, particularly for stakeholders who have experienced climate change impacts – such as permafrost degradation, flooding, and weather events – firsthand. However, in addition to climate change, decision-makers are balancing a number of pressing priorities in the North and in the transportation sector as a whole. The impacts of the COVID-19 pandemic on the financial capacity and priorities of stakeholders may exacerbate this challenge. Other levels of government as well as transportation asset owners and operators may struggle to invest in climate change adaptation measures while simultaneously focusing on economic recovery. For instance, the pandemic has sharply affected the air sector, which may now have limited financial capacity to dedicate to adaptation specifically. Nevertheless, at least for some stakeholders, adaptation remains a key priority:

"The current needs of the organization have changed [due to] COVID, but with respect to climate change, as far as we know, our organization is still pushing forward with initiatives in our overarching sustainability strategy, including climate action."

In balancing various priorities and communicating the value of climate change adaptation, some interview participants indicated that clear cost analyses of climate change impacts for their organization and specific adaptation measures would be valuable. A number of studies have demonstrated, for instance, the predicted costs of climate change in relation to extreme weather events; however, cost estimates for adaptation at national and local scales are lacking.^{Endnote 21} Outlining the economic costs can bridge the gap between knowledge and action. For example, one interviewee stated that calculating the return on investment for particular adaptation measures could encourage implementation and highlight cost savings over time. Similarly, calculating forecasted maintenance costs in the coming years with and without adaptation measures, and comparing these costs to implementing measures now, can form the basis of a financial argument for adaptation. One interviewee noted that providing options with risk levels and associated costs can support management decision-making.

Performance measurement practices

Finding 14. NTAI collects program- and project-level performance information on capacity and knowledge sharing. TARA is in the early stages of program maturity and currently tracks project-level data.

Performance for the NTAI and TARA is publicly reported through the Departmental Sustainable Development Strategy,^{Endnote 22} Environment and Climate Change Canada's Clean Growth and Climate Change Departmental Plan and Departmental Results Report supplementary tables, and GC InfoBase. Internally, these initiatives track a variety of performance indicators for program management and reporting purposes.

The 2015 Evaluation of NTAI stated that performance measurement would be important moving forward, noting weak data collection at the project-level.^{Endnote 23} Since that time, NTAI has begun tracking project-level performance, specifically graduate student involvement, number of information products/datasets produced, and number of occasions for results dissemination. Program-level performance is captured through network member feedback and involvement in meetings, conferences, and workshops. While measuring changes in awareness can be challenging, seeking this feedback from network members in combination with tracking outputs is an appropriate approach.

As a newer initiative, performance tracking for TARA is in the earlier stages, primarily focused on efficient project completion and related outputs. TARA could consider additional performance indicators to capture the change in awareness of climate risks, its intended short-term outcome.

The medium-term outcome for these initiatives is the translation of knowledge into action, and as noted, this is an ongoing need. Both initiatives have plans to engage with stakeholders to discuss changes that have occurred as a result of information generated through NTAI- or TARA-funded projects. 

Conclusions and recommendations

The Transportation Adaptation and Resilience Initiatives (TARI) contribute to ongoing transportation adaptation needs in the context of Canada's changing climate. Climate change will have a variety of impacts on transportation through the effects of temperature fluctuations, sea ice and water level changes, weather events, and flooding on infrastructure and operations. As such, there is a continuing need for support for climate change adaptation in the transportation sector, and climate change remains a key priority of the federal government. 

Both the NTAI and TARA have contributed to increased knowledge and awareness of the risks and effects of climate change. Studies through the NTAI have enhanced the available knowledge of permafrost and marine changes in the north, and have tested various technologies and strategies for adapting to these changes. The NTAI has also supported knowledge-sharing through network events and engagement activities. While knowledge dissemination has been a key activity, there are limitations in current practices related to lower involvement of industry and community stakeholders, and intellectual property and reporting requirements for transfer payments, TARA risk assessments and studies have highlighted asset-specific risks for owners/operators to consider in management plans and decision-making. Stakeholders would benefit from further availability and sharing of approaches, findings, and data sources.

The next step in adaptation is taking action. While the NTAI and TARA have supported the first steps, stakeholders highlighted the need for further support and guidance in order to implement adaptation measures. For instance, while the NTAI has funded projects which test technologies, large-scale implementation requires support from capital funding programs. Similarly, TARA recipients noted that moving from risk assessment to action requires intermediary work such as more detailed studies, design work, and planning exercises.

Moving forward, the roles and structure of these two initiatives could be re-examined to ensure alignment with future adaptation needs. Clearly defining the role of TARA in supporting needs currently not within scope – such as support for non-federal assets or for intermediary steps which enable action – will ensure that key aspects of adaptation in the transportation system are not overlooked. For the NTAI, which relies on collaborative relationships for effective results, exploring approaches taken by other programs and potential adjustments to processes and engagement practices could strengthen transportation adaptation in the North.

The evaluation includes the following recommendations to be considered as lessons learned for future programming:

Appendix A: Management response and action plan

#	Recommendations	Proposed actions	Forecast completion date	OPI
1	Explore opportunities to enhance NTAI's timelines, processes, and engagement practices to improve service delivery for all northern stakeholders.	No proposed action at this time. The NTAI sunset in March 2021 and was not renewed in Budget 2021. Should a future northern adaptation program proposal be successful, including as part of a National Adaptation Strategy, this recommendation would inform the development of an implementation plan that: can provide for adequate lead time and support for proposal development; leverages flexibilities available in terms and conditions to implement project agreements over timelines that maximize outcomes; integrates opportunities to broaden engagement to amplify any capacity-building outcomes.	n/a	Would be Policy with support from Programs and the Centre of Expertise on Transfer Payments
2	Consult other federal programs in which collaborative relationships are central to determine if there are practices that could be adopted to further enhance the effectiveness of the NTAI, while meeting appropriate Transfer Payment Policy requirements.	No proposed action at this time. The NTAI sunset in March 2021 and was not renewed in Budget 2021. Should a future northern adaptation program proposal be developed, we will consult other federal departments to explore new approaches to supporting and facilitating collaborations.	n/a	Would be Policy with support from the Centre of Expertise on Transfer Payment and other departmental functional authorities including Procurement
3	Identify options for further knowledge dissemination amongst TARA stakeholders, and for increased engagement and knowledge-sharing with non-academic stakeholders through NTAI Network activities.	No proposed action at this time under TARA. TARA is scheduled to sunset in March 2022 and was not renewed in Budget 2021. A future opportunity to seek renewed funding for climate risk assessments and adaptation planning in the transportation sector will consider an increased focus on knowledge dissemination in its implementation plan, including through workshops and other fora to identify key areas of focus for adaptation in the sector. It will also seek to define roles and responsibilities for a climate adaptation network in the transportation sector.	n/a	Would be Policy, with support from Programs for involvement of G&C recipients
3		No proposed action at this time for the NTAI. Should a future northern adaptation program proposal be developed, including as part of a National Adaptation Strategy, that includes re-establishment of a network: update engagement plan, and Terms of Reference for experts' network. design calls for proposals, OOC projects and OOC-funded activities to extend reach of research, state of the art knowledge and best practices	n/a	Would be Policy, with support from Programs for involvement of G&C recipients
3		While adaptation program funding has not been renewed, we will support development of a National Adaptation Strategy (NAS), led by Environment and Climate Change Canada, NAS engagement activities and horizontal policy development, including by sharing TARA lessons-learned and best practices to date and results of other relevant engagement with transportation sector, including with the NTAI network, as appropriate.	December 2022	Policy

Appendix B: Endnotes

¹ Palko, K. and Lemmen D.S. (eds.). 2017. Climate Risks and Adaptation Practices for the Canadian Transportation Sector 2016. Ottawa, ON: Government of Canada.

² Palko and Lemmen, 2017.

³ Palko and Lemmen, 2017.

⁴ Palko and Lemmen, 2017.

⁵ Palko and Lemmen, 2017.

⁶ Canada's Arctic and Northern Policy Framework

⁷ Canada's Arctic and Northern Policy Framework

⁸ Policy on Transfer Payments

⁹ Climate Change Preparedness in the North Program

¹⁰ Transport Canada, Evaluation and Advisory Services. 2015. Evaluation of the Northern Transportation Adaptation Initiative. p.16.

¹¹ Open Science Portal

¹² Data from NTAI Indicators Database, extracted August 2020.

¹³ Data from TARA Project Tracker, extracted August 2020.

¹⁴ Transport Canada, 2015, p. 25.

¹⁵ Transport Canada, 2015, p. 27.

¹⁶ OECD. 2018. Climate-resilient Infrastructure: Policy Perspectives. Environmental Policy Paper No. 14.

¹⁷ Climate-Resilient Buildings and Core Public Infrastructure Initiative

¹⁸ Standards Council of Canada. Standards to Support Climate Resilience in Infrastructure: Taking stock and mapping the future. Interim Report 2016-2019.

¹⁹ E.g., Infrastructure Canada. Climate Lens – General Guidance

²⁰ Federation of Canadian Municipalities (FCM) and Insurance Bureau of Canada (IBC). 2020. Investing in Canada's Future: The Cost of Climate Adaptation at the Local Level. Final Report.

²¹ FCM & IBC, 2020.

²² Transport Canada. Departmental Sustainable Development Strategy 2020 to 2023.

²³ Transport Canada, 2015.