National Apology Advisory Committee Report

• Introduction
• History of No. 2 Construction Battalion
• Recognition
• Chronology of Apology Process
• National Apology Advisory Committee (NAAC)
• Apology Principles
• Key Metrics & Summary of Public Consultations
• Key Themes
• Key Recommendations
• Conclusion
• Appendices
  • Appendix A: Battalion Enlistment List
  • Appendix B: NAAC Terms of Reference
  • Appendix C: Known Immediate Descendants
  • Appendix D: Registered Descendant List

Introduction

“The winds of change are blowing”

- Senator Calvin Ruck, Author & Historian: “The Black Battalion 1916-1920: Canada's Best Kept Military Secret”

The following report has been compiled and co-written by Mr. Russell Grosse, Executive Director of the Black Cultural Centre for Nova Scotia, and Lieutenant Colonel Barry Pitcher, Canadian Armed Forces, Community Engagement Lead. Both Mr. Grosse and LCol Pitcher served as leadership and coordinators of the important efforts associated with the Government of Canada’s intent to apologize to the descendants and families of No. 2 Construction Battalionn (No. 2 Construction Bn). These duties included guiding a steering committee, co-chairing the National Apology Advisory Committee, facilitating national public consultations with descendants and engaging stakeholders. This process was wholly guided by the passion and knowledge of the members from coast to coast who volunteered their time to be part of the National Apology Advisory Committee (NAAC).

Through the combined resources of the Black Cultural Centre for Nova Scotia and the Canadian Armed Forces, the process of engagement began in the summer of 2021. Over the last year, hundreds of descendants and individuals interested in the legacy of these brave men have offered valuable feedback. This has been reinforced through local and national awareness events and a series of virtual national consultation sessions. The information gathered has been powerful and has afforded the privilege to learn more about these men via inspiring stories from descendants. The partnership of our community and members of the Canadian Armed Forces should stand as a true example of a positive synergy toward culture change.

All levels of Government leadership have demonstrated their commitment to this interactive process to include the Government of Canada, the Province of Nova Scotia, the Town of Pictou and the Town of Truro. Collectively, they all proudly stand with us as a diverse community united by a single cause. We are very grateful to those members of the Canadian Armed Forces and our National Apology Advisory Committee for their dedication to moving us towards an apology that is hoped to be meaningful and sincere. This apology must affirm the fact to the men of No. 2 Construction Bn from Canada and abroad that indeed, “We See Them – We Honour Them”.

The true soul of this report is based on meaningful feedback and discussions held through interactive, public conversations, community events, online surveys and email correspondence. It is hoped that the key recommendations made here will shape the path forward for the Government of Canada to deliver a meaningful and impactful apology on July 9, 2022. This report is crafted to be presented to the Minister of National Defence, the Honourable Minister Anita Anand, and is not for public distribution. This report shall be treated as a rare glimpse of the pride and passion that the brave Men of No. 2. demonstrated, and will serve as a unique medium to convey their coveted legacy.

History of No. 2 Construction Bn

In August 1914, tens of thousands of men across Canada rushed to their local recruiting offices to enlist and fight in the First World War. Many Black men who attempted to join found out very quickly they also had to fight the spectre of anti-Black racism. Some men were told that “this is a white man’s war” and others that “we’ll send for you when we need you.” Throughout this appalling first contact with the military, Black Canadians were repeatedly told that many White men would simply not wish to serve alongside Black men in battle.

Over a two-year period, Black men who had attempted to enlist and Black community leaders who did not support anti-Black racism, wrote letters to the Canadian Government and Governor General of Canada. Some military officials also challenged the racist recruiting practices and proposed options to the military chain of command. Many of these attempts were in vain. By 1916 however, there was an urgent need for increased troop contributions to include military labour units. In April 1916, Canada agreed to a request from Britain to form one or two labour battalions and it was then decided that, based on public pressure at the time, one would be a Black labour battalion.

No. 2 Construction Bn was officially authorized as a military unit on July 5, 1916. Recruiting began in the Maritimes on July 19, and later during July, the Battalion became one of the few units that was allowed to recruit across the country. (See Appendix A: Soldier List). The men of No. 2 Construction Bn trained in the use of tools, tactics and equipment in large open camp areas in the Towns of Pictou and Truro, Nova Scotia. In December of 1916, the Battalion was advised to prepare for service overseas as their services were urgently needed. In late January of 1917, while it was mounting a large recruiting campaign to get the Battalion up to strength, No. 2 Construction Bn sent 250 men to New Brunswick to remove railway tracks that were urgently needed for military operations in Belgium and France.

On March 28, 1917, No. 2 Construction Bn finally sailed from Halifax, Nova Scotia on the SS Southland, and arrived in Liverpool, England on April 7. Because the Battalion had sailed with only 595 of the 1,049 officers and men required for full Battalion strength, the British War Office would not allow them to go to France. The Battalion was then reorganized as a labour company of 500 officers and men with the rest of the personnel remaining in England to serve as labour reinforcements.

On May 17, 1917, the newly renamed ‘No. 2 Canadian Construction Company’ was sent to support Canadian Forestry Corps operations in the Jura Mountains of southeast France near the Swiss border. On arrival at camp, they began intensively supporting logging operations immediately. This included operating and maintaining the water system that supplied all the camps, maintaining the roads and helping build a logging railroad. They were also involved in timber operations, helping cut the trees, hauling and then helping process them in the mills and eventually, transporting the sawn lumber to the railway station.

Lumber cut by the men of No. 2 Construction Company proved an essential requirement in the trenches and along the front lines in France. It was used for revetting the sides of trenches, duckboards for the bottom of trenches and across muddy terrain, artillery gun platforms, railway ties, ammunition boxes, accommodation huts and many more uses. Lumber from the Jura region was even used to build French fighter aircraft. The work of No. 2 Construction Company allowed the mills in Jura to produce twice as much lumber as Forestry Companies without their support. Such was the testament of their determination.

No. 2 Construction Company also supported other Canadian Forestry Corps operations. In November 1917, 50 men were sent to No. 37 Company at Péronne, France. Another 180 men went to No. 1 District at Alençon at the end of December 1917, where they performed similar work as in the Jura Mountains.

With the Armistice signed on November 11, 1918, lumber was no longer required for the war effort. No. 2 Construction Company and other Canadian Forestry Corps companies were soon sent back to England in early December 1918. Most of the men from No. 2 Construction Company then sailed for Halifax by mid-January 1919 and were dispersed back to the provinces from which they were originally recruited. The majority were discharged by the end of February 1919; and No. 2 Construction Company as a unit was officially disbanded on September 20, 1920, along with the dissolution of the Canadian Expeditionary Force.

The brave men of No. 2 Construction Company showed the pride and dedication of Black Canadians during the First World War. They wanted to serve their country overseas in the face of blatant anti- Black racism on the home front. In serving, they played an essential role in Canada’s war effort. No. 2 Construction Cpmpany remains the largest all-Black unit created in the history of Canada and was demonstrative of the voices from all Black communities across this great country.

Recognition

No. 2 Construction Bn was first commemorated at the provincial legislature in Toronto, Ontario, in July 1920 and there again September 1926. For decades, the story of No. 2 Construction Bn was a largely unknown part of Canadian history, until the curiosity of the late Senator Calvin Ruck was peaked after seeing a No. 2 Construction Bn hat badge in his travels. This launched a journey of research in the early 1980s that led to him learning more about the remarkable Battalion and their contributions. In tandem with Ruck’s research was the research being done by the son of No. 2 Construction Bn soldier William Gale in Montreal. Gale passed away in 1991 but not before he correctly identified almost 800 soldiers who had served in No. 2 Construction Bn and his research is still being built upon today.

On November 12, 1982, Senator Ruck and the Black Cultural Centre for Nova Scotia hosted a recognition and reunion banquet at the Lord Nelson Hotel in Halifax, Nova Scotia for the surviving No. 2 Construction Bn veterans of the First World War. Senator Ruck was so moved from the experiences shared from this event that he then went on to write The Black Battalion 1916–1920: Canada’s Best-Kept Military Secret (1986). This book details the story of No. 2 Construction Bn and profiles its veterans with very personal and moving stories. It is considered the cornerstone of the lasting legacy of No. 2 Construction Bn and remains in print today with several revised editions having been released.

Years later in the 1990s, the Black Cultural Centre for Nova Scotia, along with Senator Ruck, made a compelling public case for official recognition of No. 2 Construction Bn. In 1993, this journey led to the official construction of a National Historic Sites and Monuments Board of Canada monument in Pictou, Nova Scotia, on the shores of the town’s waterfront, highlighting the historic location where the Battalion was formed on July 5, 1916.

This National recognition has also led to the development of an annual service of honour and remembrance that is held each July in Pictou, Nova Scotia. This momentum of the legacy by Senator Ruck continued as he would go on to become the Executive Director of the Black Cultural Centre. Over the past twenty-nine years, the Town of Pictou has since welcomed descendants, military, police, Legion and members of the Black Community to hold the ceremony there.

In addition to Senator Ruck, Captain (retd) George Borden was also a steadfast champion of No. 2 Construction Bn. Captain Borden, a native of the historic African Nova Scotian community of New Glasgow, had a strong family legacy connected to the Battalion. In the early years, he too would serve as the Executive Director of the Black Cultural Centre. Upon his retirement in 1993, he became a long-time committee member of the annual service of honour and remembrance until his passing in 2020. Capt. Borden was very instrumental in ensuring that the legacy of No. 2 Construction Bn be remembered, and it was he who carried the momentum torch following Senator Ruck’s passing in 2004. Captain Borden was perhaps most famously known for penning the poem, “Black Soldier’s Lament”, which has been since published in both Canadian and U.S. textbooks and tells the story of No. 2 Construction Bn. Many films and stage productions have cited this very poem in the years since as it so accurately conveys the raw emotions felt by the men of No. 2 Construction Bn.

Black Soldiers’ Lament
By Capt. (retd) George Borden

The bugle called and forth we went

To serve the crown our backs far bent,

And build what ere that must be done;

But ne’re to fire an angry gun

No heroes we no nay not one.

With deep lament we did our job

Despite the shame our manhood robbed.

We built and fixed and fixed again,

To prove our worth as proud black men

And hasten sure the Kaiser’s end.

From Scotia port to Seaford Square

Across to France the conflict there,

At Ville La Joux and Place Peronne

For God and King to right the wrong –

The number two six hundred strong.

Stripped to the waist and sweated chest

Mid-day’s reprieve much needed rest.

We dug and hauled and lifted high

From trenches deep toward the sky –

Non-fighting troops and yet we die.

The peace restored the battle won

Black sweat and toil had beat the Hun.

Black blood was spilled black bodies maimed

For medals brave no black was named,

Yet proud were we our pride unshamed.

But time will bring forth other wars,

Then give to us more daring chores

That we might prove our courage strong

Preserve the right repel the wrong,

And proud we’ll sing the battle song.

Other recognition for No. 2 Construction Bn in recent years include the first scholarly work completed on No. 2 Construction Bn in a thesis completed by Sean F. Foyn (2000), the short film Honour Before Glory (2001), written and produced by Reverend William “Andrew” White’s great nephew Anthony Sherwood. This film was met with huge acclaim for its raw portrayal of the struggles faced by the young men of No. 2 Construction Bn. In addition, as a result of a formal suggestion by descendant Robert D Downey to the Chairperson of the Canada Post Stamp Advisory Committee in 2014, an official Canada Post Black History Series stamp was issued by Canada Post on 1 February 2016 to mark the 100th anniversary of the Black Battalion. During the 100th year remembrance of No. 2 Construction Bn (2016), a host of events and programs took place to commemorate their contributions including 100th anniversary of No. 2 Construction Battalion travelling exhibit created by Legacy Voices which included medals of three No. 2 soldiers and was showcased at The Canadian War Museum for Remembrance Day, a commissioned print by the Army Museum – Halifax Citadel and numerous exhibits and displays shown across Canada. The legacy of No. 2 Construction Battalion was carried forward with significant contributions from key subject matter experts and descendants, to include key members of the National Apology Advisory Committee; Douglas Ruck, Kathy Grant, John Boileau, Robert Downey, Craig Smith, Anthony Sherwood, Sean Foyn, Sheila White and Mathis Joost to name a few.

Other noteworthy recognition events:

• Parks Canada Hometown Heroes Panel on the Waterfront Boardwalk, Halifax, NS
• Parks Canada / Army Museum Halifax Citadel Event on 5 July 2016 (ie Unveiling of various No. 2 Construction Bn related Home Town Heroes Plaques along with the commissioned No. 2 Construction Bn Art Print)
• Canadian Legion Magazine July/August 2016 Edition (cover page photo and feature article “Canada’s First Black Battalion”)

Chronology of Apology Process

On January 8, 2019, former Nova Scotia MP, Gordon Earle, penned a letter to the Prime Minister of Canada, the Right Honourable Justin Trudeau, sharing the published letter he discovered in the Halifax Chronicle Herald from December 8, 2018, written by Captain (retd.) George Borden. This letter was instrumental in that it requested an official apology from the Government of Canada for the racism, hurt and pain endured by the men of No. 2 Construction Bn.

In response to that letter, the then Minister of National Defence, Honourable Harjit Sajjan, along with Mr. Russell Grosse of the Black Cultural Centre for Nova Scotia, organized a roundtable discussion with government officials, Mr. Gordon Earle, Captain George Borden (retd.), Pastor Brian Johnston, Mr. Douglas Ruck, descendants of No. 2 Construction Bn, members of No. 2 Construction Bn Marker Committee and Parliamentary Secretary to the Minister of Defence, Anita Vandenbeld. This meeting took place on February 29, 2020, at the Black Cultural Centre for Nova Scotia. The key resolution of this historic meeting was that it was agreed that the descendants should, in fact, receive a formal apology for the manner in which the men of No. 2 Construction Bn were treated all those years ago.

On Sunday, March 28, 2021, 104 years after No. 2 Construction Bn deployed overseas, the Canadian Minister of National Defence, the Honourable Harjit S. Sajjan, announced that Canada would apologize for the treatment that these brave men faced. This intent was issued virtually due to COVID-19 restrictions and broadcasted live from the Black Cultural Centre for Nova Scotia with a small in-person audience of military, community and descendants present. This was conveyed as an apology that would address the racism and discrimination they endured before, during and long after their service to Canada. The apology was announced to come after meaningful consultation with their descendants and members of the Black community was complete.

On May 14, 2021, the Chief of the Defence Staff Directive for No. 2 Construction Bn was subsequently issued, authorizing the Canadian Army to immediately engage in outreach and begin preparing for an apology ceremony. 5th Division, an Atlantic Canadian Army formation known as the ‘Mighty Maroon Machine’ was chosen to lead this initiative. 5th Division immediately set about partnering with the Black Cultural Centre for Nova Scotia for this unique initiative. After very initial consultations with key leaders in the Black Community, many of whom would later become the steering committee, this budding partnership began planning a way forward. Based on these discussions, the team very quickly ascertained that to do this special task justice, a special advisory panel was needed. The formation of a National Apology Advisory Committee (NAAC) began and included 22 members from across Canada, who are descendants or subject matter experts on the Battalion. The NAAC had a mandate to advise and assist in the national public virtual consultations and provide recommendations to the Minister of National Defence through this report.

In total, the NAAC led seven Canada-wide consultations to inform the apology and related momentum building events. These consultations were held in December 2021, and February, March, April and May 2022. Break-out sessions were a part of these consultations with sub-groups provided direction from select NAAC members. In addition, several smaller group one-on-one consultations were also completed with living direct descendants of No. 2 Construction Bn by co-chairs Mr. Russell Grosse and LCol Barry Pitcher.

On March 28, 2022, a similar affirmation of intent to apologize was again made virtually, hosted at the Black Cultural Centre for Nova Scotia by the new Minister of National Defence, the Honourable Anita Anand. At this most recent event, Minister Anand formally announced that the chosen location, based on community and NAAC consultations, would be at the former No. 2 Construction Bn training grounds in Truro, Nova Scotia and the date officially chosen as July 9. 2022.

In addition, several stakeholders and partners supported the important legacy of No. 2 Construction Bn through various external projects such as the Library and Archives Canada work to complete the digitization of No. 2 Construction Bn records by May 2022, the commitment by Parks Canada to refresh the National Historic Monument in Pictou and the Province of Nova Scotia and Black Cultural Centre planned launch of a new permanent exhibit on No. 2 Construction Bn.

In conjunction with these consultations and NAAC meetings, the 5th Division/Black Cultural Centre team has worked together in developing a new website for No. 2 Construction Bn in which descendants can register for July 9, 2022, and the key events, such as a No. 2 Construction Bn graves registry, can be shared worldwide.

Thus far, over 1,000 people have participated in these public consultations and a total of 400 descendants of No. 2 Construction Bn members have since been identified.

National Apology Advisory Committee (NAAC)

As a part of this process, a twenty-two member National Apology Advisory Committee (NAAC) was established in June 2021 as a consulting arm to the Government of Canada in the shaping of the upcoming official apology. The NAAC members were chosen based on connection and dedication to No. 2 Construction Bn. They were comprised of community leaders, historians, descendants, and authors. Individual members of the NAAC were very accomplished in their own right and would offer a balanced advisory layer to the formulation of the planned apology. The NAAC was co-chaired in partnership by Mr. Grosse and LCol Pitcher.

The mandate for the NAAC was designed to provide meaningful input in the form of:

• Advising as to appropriate historical information about No. 2 Construction Bn.
• Organizing and facilitating satellite and momentum activities.
• Facilitating important discussions with descendants, community members and stakeholders throughout the country, and where descendants exist.
• Facilitating the identification of descendants.

The NAAC held regular meetings each month in which key topics were discussed via agendas prepared in advance and tackled key issues such as framework of the apology, planning for the event, historical accuracies, and perpetuation. Terms of Reference (see Appendix C: NAAC Terms of Reference) developed, and voting selected as the main instrument of passing a motion. Within the NAAC, various sub committees also completed many key tasks such as media releases and organization of momentum building events across Canada. These sub committees included:

1. History and Public Education
2. Logistics
3. Communications and Community Engagement
4. Atlantic Region (P.E.I., N.S., N.L., N.B.)
5. Central Region (N.W.T., Que., Ont.)
6. Western Region (B.C., N.W.T., Man., Atla., Sask., Yukon)

In addition, the NAAC was instrumental in facilitating and guiding many of the public consultation sessions that occurred virtually across Canada. Key NAAC members along with members of the 5 Division team would integrate within the break-out sessions to help guide and answer any questions community members and descendants had.

The culmination of the NAACs work was to gather salient recommendations from input gathered via consultations on the composition of the apology and how the event can be best executed. This will be captured in this, the final Minister of National Defence Report.

Apology Principles

The members of the NAAC approved a guiding set of principles developed by the Subcommittee on Communications and Community Engagement to guide the public consultation process. It was influenced by stakeholders and historical precedents that have been demonstrated in past apologies in Canadian history.

Principles for the Apology to the Descendants of the Members of No. 2 Construction Bn

The apology must:

• Be preceded by representative and meaningful consultations with descendants, communities and subject matter experts.
• Be delivered by the Prime Minister of Canada.
• Describe what happened and explain how this experience exemplified Canada's forms of anti-Black racism.
• Describe the harm caused to the men seeking to serve, those who served, their families and descendants, as well as Canada’s reputation.
• Acknowledge wrongdoing and take responsibility for it (“own” the mistake).
• Be candid and honest.
• Express genuine empathy, regret, and remorse (say “sorry”) for the racist behaviours.
• Ask for forgiveness.
• Establish substantive and sustainable policy/program responses that make amends and/or provide redress.
• Commit to measurable and sustainable change.
• Promise similar acts will never happen again and that the government will learn from its mistakes.

Key Metrics & Summary of Public Consultations

During the period from October 2021 to May 2022 there were various public engagement sessions conducted both virtually and in-person (dependent on public health measures at the time). These sessions were conducted through meetings, conversations, email and written correspondence. An online survey was conducted for each session and various metrics were gathered as a result. Through these various forms of consultation, there was engagement with over 1,200 people of which approximately 400 have since self-identified as descendants and 10 as direct/immediate descendants (sons and daughters). Through this unique process, all responses were tracked and feedback gathered to aid in the development of the recommendations of this report. During the national virtual engagement sessions, key questions were utilized to encourage and stimulate discussion, at which point virtual breakout rooms facilitated by NAAC members fleshed out responses. Key data gathered is illustrated below.

Key Data

1. Country of participants engaged in consultations:

Canada: 94%
United States: 5.5%
International: 0.05%

2. Participant province:

Nova Scotia: 39%
Ontario: 26%
Alberta: 8%
British Columbia: 5%
New Brunswick: 5%
Saskatchewan: 3%
Other Provinces: 14%

3. Virtual Session Metrics

• Total of seven sessions
• Total of 1,110 people registered for virtual sessions
• 24% of people attended more than one session
• Over 500 additional people registered with interest

Key Questions

1. Why is the legacy of No. 2 Construction Bn so important and why are you a part of this process?

Key responses:

• A desire to effect real change
• Family connection and source of pride
• To hold Government accountable for past actions
• They were never recognized when they came home
• An important part of Canadian History to remember and now be a part of
• An important legacy that cannot be forgotten and the need to act is now
• Recognition of Black Canadian contributions is important and this a step forward

2. On Sunday, March 28th, 2021, 104 years after No. 2 Construction Bn deployed overseas, the Canadian Minister of National Defence, the Honorable Harjit S. Sajjan, announced that Canada would apologize for the treatment that the men in this Battalion faced. An apology for the racism and discrimination they endured before, during, and long after their service to Canada. What would make this apology meaningful?

Key Responses:

• Apology should be given by the Prime Minister
• Apology must involve Minister of National Defence and Chief of the Defence Staff
• Must be partnered with some form of tangible mechanism of change
• Letter of apology to Black Canadians paper-issued as well as words spoken
• Apology must be made readily available to serving military members
• Must have wording to address modern day racism and discrimination
• Apology must be followed with action plan to demonstrate commitment
• A token or memento should accompany the Apology
• Prime Minister should also read the apology in the House of Commons
• Acknowledge that racism and discrimination continues to be endured
• Include sincere and honest language throughout
• Include longstanding programs to demonstrate legacy
• Include a financial commitment supporting ongoing activities, and education
• Should include all Black Canadian members of the Canadian Armed Forces in all wars

3. Who do you think should make the apology?

Key Responses:

• Prime Minister of Canada: 56%
• Prime Minister and Minister of National Defence: 23%
• Governor General of Canada: 10%
• Minister of National Defence: 9%
• Other: (The Queen or Chief of the Defence Staff): 2%

4. What specific words or phrases should be considered in the apology?

Key Responses:

• Systemic racism
• Racist treatment
• Sincerely
• Bravery
• Faithful service
• Not to let it happen again
• Honour
• Thank them for their service

5. What should be done to keep the Legacy of No. 2 Construction Bn alive (i.e.: educational resources, monuments, traveling exhibits)?

Key Responses:

• Monuments in Ottawa, Nova Scotia and select locations across Canada
• Museum/Public Exhibits that share the story of No. 2 Construction Bn
• Permanent Exhibit at National War Museum
• Be a part of Canadian Military History and basic training
• Education and Curriculum Resources for P-12 & General Public Awareness
• Development of a commemorative Medal or Coin
• Development of Scholarship/Bursary
• Detailed research on Battalion Members
• National day of Remembrance / Battalion Flag Day
• Rename Highway in Nova Scotia (Truro to Pictou)
• Historic TV Vignettes
• Special Grave Site Markers
• History/Photo Plaque at all Canadian Armed Forces bases and offices
• Advocate on behalf of the legacy of No. 2 Construction Bn for inclusion in all relevant Government departments and agencies

6. The apology event is slated for July 9, 2022, in Nova Scotia and virtually across the Nation. What are some ideas on what should be included in this event?

Key Responses:

• Immediate Family members
• Parade
• Film on Battalion
• Celebration and Remembrance
• Presentation to families
• Souvenir memento and program booklet
• Inclusion of relevant Government departments and agencies to mark the occasion

Key Themes

Throughout this process of interaction and collaboration, there has been open and respectful space provided for courageous conversations to occur. This has both enabled and empowered members of the NAAC who are in a unique position to now pave a path forward to an apology recommendation to the Minister of National Defence. In many of the after-action reviews from the public consultations, three key themes emerged foundational to a proposed apology narrative.

From a macro level, it is important to highlight these key themes as follows:

1. Remembrance
   It was clearly communicated by descendants and community that the act of remembrance be prevalent. This can be demonstrated through a firm commitment to education and awareness of No. 2 Construction Bn history through all available means to ensuring that the unit is recognized as an important part of Canada's History.
2. Reconciliation
   It was clearly communicated by descendants and community that the act of reconciliation be prevalent. This can be demonstrated by ensuring that a meaningful apology recognizes past hurt and is then followed with meaningful actions that encourage diversity and inclusion and assurances that mechanisms will in place to combat racism going forward.
3. Perpetuation
   It was clearly communicated by descendants and community that the act of perpetuation be prevalent. This can be demonstrated by a direct linkage of No. 2 Construction Bn with a current Canadian Military unit so that their sacrifice and legacy are represented by soldiers of today and that there is a commitment to engagement, monuments, and annual parade/commemoration activities.

Key Recommendations

Supporting and filling in around these three key themes on a micro level, are a number of key recommendations as to the framework of a meaningful apology on behalf of the Government of Canada. While these are not all the recommendations brought forth, these represent the majority and accurately capture the results of the aforementioned data and metrics.

1. That a heartfelt and meaningful apology be delivered by the Prime Minister of Canada. This will be vital as precedence has been set in past Government of Canada apologies that have been delivered by the Prime Minister.
2. That the Minister of National Defence be instrumental in the apology process and ensuring that processes are in place to address the past hurts going forward. This will be the active commitment to culture change with Canada’s Armed Forces.
3. That a national public event surrounds the Apology that pays tribute and honour to No. 2 Construction Bn and provides meaningful remembrance.
4. That it include a commitment to ongoing substantive and sustainable policy/program responses that address anti-Black racism within the Canadian Armed Forces.
5. That it includes establishment of and support to a long-term legacy fund that creates ongoing opportunities for education, remembrance and honouring of No. 2 Construction Bn.
6. That it be accompanied with a memento to descendants and families of No. 2 Construction Bn.
7. That the apology process be only the start of future discussions on No. 2 Construction Bn and all Black serving members (past and present) who have faced anti-Black racism.
8. That the apology is followed up with establishment of a Minister’s Advisory Committee on Anti-Black Racism to advise the Minister of National Defence and senior Canadian Armed Forces leadership on a concise path forward to embrace culture change.

Conclusion

Since March 28, 2021, the planning team and members of the National Apology Advisory Committee have actively engaged with over a thousand descendants and citizens across Canada. Through navigating a series of virtual public consultations, telephone, written and electronic correspondence, this report provides a true glimpse of passion, pride, and honour. The narrative here is testament to the hurt, sorrow and pain felt from the families and descendants and the true lack of acknowledgment that transpired. No. 2 Construction Bn has been robbed of the important role they played in Canadian history and the time has come to reconcile that.

As outlined here, the main goal of this report has been to determine the framework of a meaningful apology to the families and descendants of No. 2 Construction Bn. We have shown that the core engagement which started at the February 2020 roundtable discussion has now evolved into a comprehensive recommendation for a proposed framework. It is appreciated that not all the recommendations and themes may fit into the official Government of Canada Apology on 9 July 2022. It is also recognized that only so much can be stated in a singular time and space. Make no mistake though, that the importance of the words spoken that day will resound forever so the greatest of care must be taken in the execution of delivery. It is critical that the information contained herein be heavily weighted. The considerations and information provided in this raw and honest report are testament to ‘ground truth’ and if not all taken into account on 9 July 2022 must certainly be the fuel for future culture change in the Canadian Armed Forces. The value of the descendants, the community, and the National Apology Advisory Committee as the key mechanisms for this engagement process has been immeasurable and we are most thankful for the opportunity.

"We must open the doors and we must see to it they remain open, so that others can pass through. - Rosemary Brown, OC – Canadian Politician & Civil Rights Leader

Appendices

Appendix A: Battalion Enlistment List

Appendix B: NAAC Terms of Reference

No. 2 Construction Bn National Advisory Committee
2021-2022

No. 2 Construction Bn Apology Events Terms of Reference

• Vision
• Mandate
• Membership of the Steering Committee
• Membership of the National Advisory Committee
• Sub-committees
• Desired Outcomes of the National Advisory Committee
• Meeting Frequency
• Communication and Relationships to Other Committees
• Budget
• Governance Principles

Vision
The Department of National Defence and the Canadian Armed Forces through the Canadian Army will conduct an apology and perpetuation event in July of 2022 in honour of the No. 2 Construction Bn and its descendants to recognize the struggle through adversity they endured to serve in the Canadian Armed Forces in the First World War.

Mandate
The mandate of the National Advisory Committee (NAC) for the No. 2 Construction Bn Apology event is to advise and/or provide meaningful input to the Steering Committee on the following:

• Advise of appropriate historical information about the No. 2 Construction Bn;
• Organize and facilitate satellite and momentum activities;
• Facilitate important discussions with descendants, community members and stakeholders throughout the country, and where descendants exist;
• Facilitate the identification of descendants.

The apology event will be organized and planned by the Steering Committee comprised of members of the Canadian Army and members of the Black Cultural Centre for Nova Scotia (BCCNS). The Apology event will coincide with the Annual Commemoration Ceremony annually organized by the BCCNS in July 2022. This apology event will ensure that the No. 2 Construction Bn is perpetuated in Canadian history. The National Advisory Committee mandate will come to end in September 2022 after the Apology event has been conducted and after an after-action report have been compiled.

Consultations for the No. 2 Construction Bn apology event will be led by the Steering Committee that will guide the work of the National Advisory Committee.

The Steering Committee and the National Advisory Committee were established in the Spring and Summer of 2021 respectively.

This initiative has been established to inform the planning of the apology event and to support outreach activities.

There will be a three-phase reporting schedule:

Phase One: August to December 2021

• Provide advice on the proposed Apology events plan of July 2022 as presented by the Steering Committee;
• Planning of satellite events to educate and inform the general public about the No. 2 Construction Bn;
• Provide advice on the public discussions sessions happening throughout Canada;
• Provide guidance on what committees should be established;
• Provide insight to help find and invite descendants and key stakeholders to the July 2022 Events.

Phase Two: January 2022 to July 2022

• Execution of satellite events to educate and inform the general public about the No. 2 Construction Bn (creating momentum);
• Provide advice and input for the progression of the planning of the Apology event of July 2022;
• Provide insight to help find and invite descendants and key stakeholders to the July 2022 Events.

Phase Three: August to September 2022

• Provide input to compile an after-action report, following the July 2022 Apology event;
• Provide advice as to how this committee can continue its work beyond September 2022.

Membership of the Steering Committee
The Steering Committee is comprised of eight key leaders from the Canadian Army, the Black Cultural Centre for Nova Scotia and the Black Canadian community with a vested interest in the No. 2 Construction Bn. These members may change over the course of the planning of the events and National Advisory members would be informed upon such change. One member from the Canadian Armed Forces and one member of the Black Canadian community, will serve as co-chairs, namely:

1. Mr. Russell Grosse
   Executive Director, Black Cultural Centre for Nova Scotia
2. Lieutenant-Colonel Barry Pitcher
   No. 2 Construction Bn Outreach & Engagement Lead, Canadian Army

The Steering Committee will:

• Chair the meetings of the National Advisory Committee to provide strategic direction, as well as the mandate, goals, and timelines.
• Determine and provide an agenda for meetings with the National Advisory Committee. National Advisors can provide recommendations and agenda items in writing at least 3 days prior to meetings by emailing :
  no2.cef@gmail.com
• Provide information and documentation through a Google Drive portal
• Provide ongoing direction to the National Advisory Committee, and subcommittees.
• Receive and share recommendations as the primary conduit of information for the Canadian Army and the Department of National Defence.
• Liaise with the Black Cultural Centre for Nova Scotia as the subject matter experts in planning and organizing an annual commemoration event for the No. 2 Construction Bn.
• Collaborate in the development of a sustainability plan to maintain a website (www.no2-cef.ca) that will act as a history and living repository for the Men and the descendants of the No. 2 Construction Bn.
• Engage No. 2 Construction Bn Stakeholders within their communities through consultation activities.
• Plan and execute satellite events that create momentum for the Apology event.
• Identify and report challenges and barriers that may impact the successful implementation of the Apology event.
• Make recommendations to the Steering Committee about the nature of the apology event.

The members of the Steering Committee are as follows:

Members of the Steering Committee

Mr. Douglas Ruck
Spokesperson for No. 2 Construction Bn Community

Mr. Russell Grosse
Executive Director Black Cultural Centre for Nova Scotia

Mr. Craig Smith
Descendant and Community Historian

Mr. Craig Gibson
Honorary Col WNSR & Member of Black Cultural Centre Board
DND/CAF & Black Cultural Centre for Nova Scotia

LCol Barry Pitcher
No. 2 Construction Bn Outreach & Engagement Lead
DND/CAF

LCol Hope Carr
Public Affairs
DND/CAF

Mr. Vance White
Manager Outreach
DND/CAF

Membership of the National Advisory Committee

The National Advisory Committee will be comprised of approximately thirty members with representation from across the country. New members may be nominated by the members of the National Advisory Committee and will be appointed at the discretion of the Steering Committee. The co-chairs are:

3. Mr. Russell Grosse
   Executive Director, Black Cultural Centre for Nova Scotia
4. Lieutenant-Colonel Barry Pitcher
   No. 2 Construction Bn Outreach & Engagement Lead, Canadian Army

The National Advisory Committee will:

As members of the National Advisory Committee can change, ambassadors for Western, Central, Atlantic Canada and Outside of Canada will be appointed by the Steering Committee to act as a link for members in that region. This Canadian Army (CA) Ambassador will assist national advisors and the Steering Committee locally for the planning and execution of satellite events.

CA Ambassadors for the National Advisory Committee

Second Lieutenant Jerome Downey
Jerome.Downey@forces.gc.ca
CAF Ambassador on behalf of Atlantic Canada

Captain Kevin Junor
Kevin.Junor@forces.gc.ca
CAF Ambassador on behalf of Central Canada

TBC
CAF Ambassador on behalf of Central Canada (French)

TBC
CAF Ambassador on behalf of Western Canada

TBC
CAF Ambassador on behalf of Outside Canada

Sub-committees

As a result of the amount of information and work to organize and plan such an event, assistance will be required from National Advisory Committee members to be part of at least one sub-committee. Each sub-committee will have an assigned champion. The sub-committees will be as follows:

• History and Public Education
• Logistics
• Communications and Community Engagement
• Atlantic Region (P.E.I., N.S., Nfld., N.B.)
• Central Region (Nunavut, Que., Ont.)
• Western Region (B.C., N.W.T., Man., Atla., Sask., Yukon)

Desired Outcomes of the National Advisory Committee

• Gather recommendations and seek input from regional consultations on what makes the Government of Canada Apology meaningful.
• Produce a final report after the end of the consultations that includes:
  • Recommendations (do’s and don’t’s) from all consultations,
  • Compile educational material and provide to provincial education systems,
  • Provide accurate historical content,
  • Coordination and recommendation of viable satellite events,
  • Organization of momentum events to create regional awareness,
  • Identification and maintenance of communication with descendants locally
  • Creation of opportunities for a legacy that sustains the history.
• This report will be shared by the Steering Committee to the Commander of the Canadian Army and through the Chain of Command to reach the Strategic Joint Staff (SJS) and the Minister of National Defence Office (MNDO). The report will provide recommendations and guidance for the execution of the Apology event.

Meeting Frequency

The Steering Committee will meet bi-weekly, and as required. The National Advisory Committee will meet on the last Thursday of every month at 6:30 PM Eastern Time, except for the month of December 2021, where the meeting will occur on Dec 16th due to the Holiday leave period. Town hall consultations with community members and descendants will be hosted by the Black Cultural Centre for Nova Scotia on behalf of the Government of Canada. National Advisory Committee members will be requested to assist with the planning and spreading of the word to ensure wide participation of descendants and the No. 2 Construction Bn community.

COMMUNICATION AND RELATIONSHIPS TO OTHER COMMITTEES

The Steering Committee will ensure ongoing communication with the Canadian Army, the Strategic Joint Staff, DND/CAF leadership, internal working groups and other relevant internal and external stakeholders. With the assistance of Lieutenant-Colonel Barry Pitcher, No. 2 Construction Bn Outreach & Engagement Lead and Mr. Vance White, Stakeholder Engagement and Outreach Manager, and, the Steering Committee will ensure communication as required with the following stakeholders:

• Minister of National Defence Office (MNDO)
• Chief of the Defence Staff Office (CDSO)
• Strategic Joint Staff (SJS)
• Directorate of Human Rights and Diversity (DHRD), Canadian Armed Forces (CAF)
• And all other relevant stakeholders (as recommended and/or required)
• Flow of Communication

Budget

The National Advisory Committee, and sub-committees, have no allocated budget. The National Advisory Committee will be responsible to assist the Government of Canada with the planning and facilitation of one consultation in the various regions of Canada (Atlantic, Central, Western). These consultations will have limited funding to support the broadcasting and room rentals but must be planned in advance to respect Treasury Board Directives. Requests must be submitted to the Steering Committee co-chairs.

The Government of Canada will not provide funding for travel of National Advisors to attend meetings as all meetings will have a virtual component to reduce the risk of the spread of COVID-19.

Furthermore, the positions on the committee are on a volunteer basis.

Governance Principles

Reaching Consensus:

• Recommendations provided by the NAC will be considered by the SC.
• The SC will work to incorporate recommendations into plans where feasible, ensuring actions are within GoC policies as it pertains to support provided by DND/CAF.
• Recognizing there may be varying positions on different issues, appropriate consensus will be sought on disputed topics, with the SC having final decision.

Committee chairs will ensure:

• Commitment to good governance: Co-chairs will provide clear strategic direction, summarize the discussions, and review outstanding items;
• Commitment to communication: Members will ensure efficient functioning and consistency in messaging, the members may debrief their management teams and employees on general presentations made to the committees;
• Shared ownership: Members will operate in a collaborative manner and will contribute to the discussion from a horizontal perspective;
• Perspective: Members will contribute to the discussion and participation will consist of attending more than two thirds of the scheduled meetings;
• Preparedness: Members are asked to be prepared in advance of meetings;
• Challenge: Members will be encouraged to offer a constructive challenge function and will be encouraged to bring proposals forward at initial stages;
• Discipline: Members will respect each other and ensure they contribute in making this committee a safe working environment. No profanities, verbal abuse, or bullying will be tolerated.

Appendix C – Known immediate descendants

(Redacted in accordance with the Privacy Act)

Legend:
Name
Relationship
Soldier / Place

redacted member
Daughter

TBC
redacted location

redacted member
Daughter

Arthur Seymour Tyler
redacted location

redacted member
Son

Norman Kenneth Phee
redacted location

redacted member
Daughter

Arthur Seymour Tyler
redacted location

redacted member
Son

Joseph Alexander Parris
redacted location

redacted member
Daughter

redacted member
Son

redacted member
Son

redacted member
Son

George Richard Dixon
redacted location

redacted member
redacted location

redacted member
redacted location

redacted member
redacted location

redacted member
redacted location

redacted member
redacted location

redacted member
redacted location

redacted member
redacted location

redacted member
redacted location

redacted member
redacted location

redacted member
redacted location

redacted member
redacted location

redacted member
redacted location

redacted member
redacted location

redacted member
redacted location

redacted member
redacted location

John Smith
redacted location

redacted member
Son

John Smith
redacted location

Appendix D: Registered Descendant List

(Redacted in accordance with the Privacy Act)

• There are 350 listed members