Canadian Armed Forces Military Personnel Instruction 05/22 – Chief of Military Personnel Policy Management Framework

1. Identification

Date of Issue: 2022-11-22 

Date of Last Modification: 2025-02-28

Application: This Canadian Armed Forces Military Personnel Instruction (CAFMPI) applies to employees of the Department of National Defence (DND employees) and to officers and non-commissioned members of the Canadian Armed Forces (CAF members) within Chief of Military Personnel (CMP). 

Supersession:

• MPCO 1000-2, Development and Publication of Canadian Forces Military Personnel Instructions 
• MPCO 1000-5, Military Personnel Approval Process 
• MPCO 1000-6, CMP Policy Management Framework 

Approval Authority: Chief of Military Personnel (CMP) 

Enquiries: Administrative Response Center (ARC)

2. Purpose

Overview 

2.1 This CAFMPI sets out the framework that provides the principles and activities which manage military personnel policies under CMP. It serves as direction for policy analysts and informs all personnel of the roles and responsibilities of those involved in military personnel policy (referred to hereafter as ‘policy’) for CMP. Military personnel policy instruments that apply to CAF members across L1s are approved by CMP as per the functional area assigned within DAOD 1000-7, Policy Framework for Military Personnel Management.

Note – DND employees and CAF members who are assigned to develop policy within CMP functional areas will be referred to as policy analysts in this CAFMPI. 

What are Laws? 

2.2 Laws are generally composed of statutory and case law. Federal and provincial legislatures enacted laws in the form of statutes. The executive can enact regulations provided that the statute provides for regulation making authority. The highest source of law in Canada is the Constitution. As for case law, this form of law is based on the decisions of the courts.

What is Policy? 

2.3 Policy consists of policy statements, principles and procedures by which CMP is guided in the management of CAF personnel.

2.4 Furthermore, policy represents a formal expression of the principles and standards of fundamental concern to the CAF and its personnel. Each policy addresses an issue important to the CAF’s missions or operations. That is, policy provides a decision-making framework to achieve a specified objective. Therefore, it is important that the policy intent is easily understood, using clear and simple statements.

3. Law and Policy

Hierarchy of Law 

3.1 CMP policy analysts must understand the law, including regulations, which provide the authority for the policies they are developing. In addition, they must understand how the law may restrict that policy. This understanding must also include the hierarchy of law in Canada and the relationship between provincial and federal responsibilities.

3.2 All policy instruments must be based on and consistent with the existing framework of the laws of Canada.

3.3 The possible application of international treaties and conventions must be considered in the development of certain policies, such as CAF members deployed to foreign countries or assigned for duty with the governments or armed forces of foreign countries, as well as those involving the treatment of foreign nationals and members of their armed forces. 

Policy Establishes Authorities 

3.4 Policy identifies authorities and responsibilities by setting out: 

1. the position of the government or DND or the CAF; 
2. the decision-making process; 
3. the relevant principles to be applied; 
4. those responsible for making decisions; and
5. those who are impacted. 

Law and Policy 

3.5 Policy instruments are part of a hierarchy and must not contradict each other. Issuers of policy must find their authority within the law.

3.6 The hierarchal relationship between laws, regulations and policy instruments is as follows: 

4. CMP and Policy

Personnel Policy

4.1 An integral component of generating and supporting military personnel is maintaining a clear and effective collection of policies through foresight, integration, synchronization, discretion, compassion and flexibility. CMP policies provide direction to the chain of command in the execution of their duties from recruitment, career transition and beyond. This collection is an essential contribution to ensuring operational effectiveness and sound leadership across the CAF. It is continually being monitored and updated, responding to changes in the CAF, as well as in Canadian society. 

4.2 CMP is responsible for designing, developing, evaluating, implementing and monitoring policy for the management of CAF military personnel (i.e. enrolment, individual training and education, promotion, etc.). Details regarding the functional areas within CMP are outlined in DAOD 1000-7, Policy Framework for Military Personnel Management. 

4.3 For the purposes of this CAFMPI, as it relates to CMP policy development principles and practices, CMP/MILPERSCOM is reflected as part of the National Defence Headquarters as a whole. If orders must be issued as part of the Command, refer to the MPCO series in the reference section of this document. 

5. Framework Principles

Evidence-based Policy 

5.1 Developing policy requires a measured, logical approach that uses research findings to analyze and assess current policy results against the stated intent and expected outcomes of policy in effect, or the need for new policy to address emerging issues. It documents evidence, circumstances and organizational requirements, options, and the ultimate policy decision/approval. Maintaining effective records management of policy development, along with decisions/approvals also informs future policy requirements. 

5.2 Policy and strategy development must be evidence-based, using a rigorous process comprised of data research, facts analysis and objective review. Objectivity and rigour are essential when analysing crude numbers or data points. Anecdotes, personal opinions and/or popular beliefs that are not supported by evidence in the form of research or objective surveys will not be part of the development process. 

5.3 Evidence-based policy also includes application of the Due Diligence Tool, which includes Problem Identification (Problem ID) and Gender Based Analysis Plus (GBA Plus) for all new and revised policies, as well as identifying performance indicators. 

Oversight, Coordination and Integration 

5.4 Director General Military Personnel – Strategy (DGMP Strat) provides an integrated, modern, innovative, and agile military personnel management system that is resilient, responsive to future requirements, recognizes military personnel as the critical component of CAF capability. DGMP Strat manages a disciplined planning process for policy development, including needs identification, analysis and a transparent decision-making process with consultation from impacted stakeholders of the CAF. This is accomplished, in part, by Policy Governance.

Governance 

5.5 The CMP Policy Governance Framework includes the CF Personnel Management Council (CFPMC), the Military Personnel Strategy and Policy Committee (MPSPC), and the CHARGE! working group committee, which cover CMP functional areas and offer a transparent process that promotes proper integration and synchronization while minimizing organizational friction throughout the analysis, development, production and maintenance phases in the continuum of the policy development process.

Collaboration

5.6 DGMP Strat acts as a liaison between CMP military personnel policy centers, the DND and the CAF, as well as the TB policy communities. DGMP Strat coordinates and provides oversight to all CMP’s personnel policy suites and policy governance framework.

5.7 Across the L2 organizations, DGMP Strat provides strategic advice, policy development and approval process mapping, along with prioritization and synchronization tools to guide the renewal of the CMP policy framework.

5.8 To ensure that a cohesive and comprehensive policy suite is preserved, policies must be developed and managed in a collaborative and accountable manner, with open consultation and communication between appropriate authorities and stakeholders throughout the process.

6. The Policy Life Cycle

The Policy Life Cycle Model

6.1 The life cycle approach to policy development, implementation and maintenance is an iterative process within which policies are created, reviewed, refined, approved, promulgated, implemented and assessed. The process is not linear; therefore, movement through the life cycle activities can go back and forth several times before moving on to the next step.

Note – A description of the image below, concerning the policy life cycle phases and elements, is included in the table in paragraph 6.2.

Policy Life Cycle Elements

6.2 The following table sets out the policy life cycle elements:

7. Military Personnel Policy Approval Process Direction

Context 

7.1 CMP approves military personnel policies and orders under their functional authority and endorses policy intent when approval is required from higher or external authority. This includes approval of regulations, honours, compensation and benefits and spectrum of care. CMP has directed DGMP Strat with managing this functional authority on their behalf. 

7.2 Throughout a policy’s development, the OPI is responsible for consulting all relevant stakeholders and legal advisors to ensure policies submitted for approval do not conflict with the existing body of personnel policy. Therefore, there must be a mechanism for allowing CMP L2 stakeholders to review and confirm that the proposed policy does not conflict with those for which they are responsible, prior to submission to CMP for approval or endorsement. 

7.3 The purpose of this section is to provide direction to policy OPIs on the process for obtaining approval of personnel policies by CMP. 

Policy Statement 

7.4 All military personnel policy instruments (e.g., DAODs, CAFMPIs, manuals) must be submitted to DGMP Strat for internal verification and endorsement prior to initiating any required external process. Submission to CMP for approval will only occur once all preceding work has been completed.

Requirements 

7.5 Prior to submitting policy instruments to CMP for approval, the file will require a completed Military Personnel Policy Approval Sheet (Annex G). The documents required to support a policy for approval, at a minimum and if applicable, are:

1. any superseded policies or CANFORGENs;
2. the Due Diligence Tool: Problem ID and GBA Plus;
3. a communications and implementation plan; and
4. supporting documentation of legal review.

Note – CFPMC or a higher-level governance structure may be needed. 

Responsibility Table for Approval process for CMP documents 

7.6 The following table identifies the responsibilities for the endorsement and approval of policies under CMP’s functional areas: 

Policy Approval Process

7.7 The following table identifies the steps to follow to obtain approval or endorsement of military personnel policies. 

8. CMP Policy Instrument

General

8.1 Policy instruments include legislation, regulations, orders, instructions, directives, manuals and publications. Those policy instruments that include the approval authority of CMP are DAODs, CAFMPIs, CANFORGENS, manuals and publications. 

8.2 Solely under CMP authority, a CAFMPI is a formal means for advising all CAF and DND personnel of administrative direction and procedural aspects of policy and/or directions emanating from within CMP. A CAFMPI can be applicable to all L1s and amplifies the policies and/or directives that are set in DAODs or in other departmental or CAF policies. Due to its prescriptive nature, it does not constitute an Instructional DAOD. 

8.3 CAFMPIs are published on the CMP Intranet site and are to be reviewed by the OPI as per the appropriate review cycle (i.e. 3-5 years). Refer to Section 7 of this document for CAFMPI requirements and approval process, and Annex F for CAFMPI Writing Style and Format and template. 

Note – All military personnel policy instruments that apply to CAF members across L1s are approved by CMP as per the functional areas assigned within DAOD 1000-7. 

9. Responsibilities

Responsibility Table

9.1 The following table sets outs the responsibilities associated with the CAFMPIs:

10. References

Acts, Regulations, Central Agency Policies and Associated DAOD

• DAOD 1000-0, Foundation Framework for Defence Administrative Orders and Directives
• DAOD 1000-1, Defence Administrative Orders and Directives
• DAOD 1000-2, Communicating Direction in the DND and the CF
• DAOD 1000-7, Policy Framework for Military Personnel Management

Other References

• MPCO 1000-0, Orders Policy (this document can only be accessed on the DWAN)
• MCPO 1000-1, Development and Publication of Military Personnel Command Orders (MPCOs) (this document can only be accessed on the DWAN)
• Defence Administrative Orders and Directives Development Guide (this document can only be accessed on the DWAN)
• DAOD Guidance, DND/CF Corporate Submission Process (this document can only be accessed on the DWAN)

11. Annexes

1. Annex A – Authority Framework by SME (this document can only be accessed on the DWAN)
2. Annex B – Terms of Reference: CFPMC
3. Annex C – Terms of Reference: MPSPC
4. Annex D – Terms of Reference: CHARGE!
5. Annex E – Due Diligence Tool (this document can only be accessed on the DWAN) 
6. Annex F – CAFMPI Guidelines and Template
7. Annex G – Military Personnel Policy Approval Sheet
8. Annex H – Sample CANFORGEN