Evaluation of the Canadian Forces Military Police Academy

July 2024

1258-3-069 (ADM(RS))

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

Evaluation Insights

Program Overview

Evaluation Scope

This report presents the evaluation findings and recommendations for CFMPA from Fiscal Year (FY) 2019/20 to 2023/24 and is the first evaluation conducted on their training programs. This evaluation was identified in the Department of National Defence (DND) five-year Departmental Evaluation Plan (FY 2018/19 to FY 2022/23) and follows the 2016 Treasury Board Policy on Results. Its areas of assessment include:

• alignment with DND/CAF commitments to diversity, inclusion and official languages;
• training design, delivery, efficiency and results; and
• initiatives toward modernization and addressing external recommendations (Justice Fish #66 and Justice Arbour #23).

Conclusive Assessment: Key Takeaways

CFMPA serves a critical role in preparing MP personnel for their unique duties within the CAF by instilling the highest standards of law enforcement, integrity and professionalism. Insights from the evaluation demonstrate that the Academy has maintained parity with other policing academies while supporting training modernization within budget constraints. It offers effective training in support of post-graduate taskings and is responsive to external review recommendations. Staffing shortages have amplified issues related to the quality of training delivered, including bilingualism, diversity, inclusion and the availability of performance-based information. Low awareness of mentorship programs and gaps in field, cultural and emotional intelligence training persist while course content redundancies, underused experts and educational modality imbalances have hindered training efficacy and may impact readiness levels. The effectiveness of victim-centric training remains an issue, highlighting the need for a cultural transformation and the further involvement of experts in this area to facilitate training.

Supporting evidence highlights several challenge areas in need of attention:

• shortfalls in the quality of training, including those in support of bilingualism, diversity, digital learning and victim support;
• deficiencies in instructor expertise and availability, including the use of subject matter experts (SME); and
• the lack of well-established feedback channels to support continuous improvement and adaptation.

CFMPA has operated in a cost-efficient manner.

Operating expenses for the Academy averaged approximately $785 thousand annually over the evaluation period, which includes facility upkeep, training equipment and technology, translations, supplies and stationery, rations, travel, etc.

*Expense allocations by cost groups or categories vary from year to year. These visualized results are from FY 2022/23.

Between FY 2020/21 and FY 2022/23, the Academy operated in a cost-efficient manner by delivering more courses and producing more graduates at an overall decreased cost per course with consistent staffing levels. It also received sufficient funding to support its operational requirements, as noted by their annual surplus position (+2 percent).

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Key Findings

Throughout the evaluation period, the Academy has delivered more courses (number, percentage) and spent more money (dollars) on bilingual course content delivery.

Figure 3 Summary

• Graduates, instructors and interviewees all reported significant issues with the quality of bilingual resources, with specific issues cited in End Course Reviews (ECR).
• Survey data noted that all (100 percent) instructors and half (50 percent) of the graduates believe there is an inadequate number of bilingual resources. Two thirds (66 percent) of French-speaking graduates and 60 percent of French-speaking instructors also noted that they are not at all satisfied with the bilingual resources and course content being delivered.

Supporting bilingual efforts offers cognitive advantages to students and ensures consistent results from MP members. Increasing diversity and inclusion education enhances the overall culture of MP by increasing emotional intelligence and cultural awareness, and it empowers MP members to engage effectively with the diverse populations they may encounter.

Q: Overall, do you believe that instructors possess the required language proficiency to teach their courses?

The consensus among both graduates and instructors highlights a significant gap in the language proficiency essential for conducting course instructions.

A demographic analysis of survey data revealed a diverse complement of instructors and graduates at the Academy, with 40 percent of recent graduates and 38 percent of instructors identifying as belonging to an employment equity group, surpassing the CAF’s 2026 targeted goal of reaching 36.4 percent employment equity representation. The integration of diversity and inclusion in course design and delivery remains ambiguous due to differing views among program stakeholders.

Survey and interview data, along with ECRs, noted a variety of course content redundancies and related inefficiencies. At least 80 percent of reviewed ECRs noted at least one issue related to course content. Content redundancies detract from training efficiencies by unnecessarily extending their duration and diverting resources away from critical learning objectives.

CFMPA provides an array of field-related skills training, including defence tactics, arrest and control, firearms, and driving. Both instructors (61.5 percent) and graduates (96 percent) responded that driving skill training was not at all effective. Instructors and interviewees also noted that students are not adequately trained in specific field-related policing tasks, such as detention room policing, providing security services and the use of the Security and Military Police Information System. While the recently added MP Soldier Qualification course addresses some of these field-related gaps, appropriate field-related training would ensure MP can maintain order and safety in varied operational contexts.

While the COVID-19 pandemic catalyzed a surge in the transformation of education models and accelerated the use of virtual classrooms and distance learning at the Academy, nearly half (45 percent) of graduates responded that virtual training is not at all effective. In contrast, roughly 90 percent of graduates are in support of in-person and practical training for their main learning components.

Q: How would you rate the effectiveness of the following methods of course/training delivery offered at CFMPA? (Graduate responses)

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CFMPA has implemented various recommendations for training improvements following the publication of external reports, including those mentioned in The Third Independent Review of the National Defence Act (Justice Fish) and the Report of the Independent External Comprehensive Review (Justice Arbour).

Justice Fish Recommendation #66 – Training on the Application of the Declaration of Victims’ Rights (DVR)

Many updates to CFMPA courses have been implemented to provide enhanced training to support victims of sexual assault while holding offenders accountable. Investigators within the Canadian Forces National Investigation Services provided some of this training to increase the MP members’ expertise.

• The Sexual Misconduct Support and Resource Centre (SMSRC) was consulted in the development of Military Justice Unit Level training, which included DVR. The Military Justice Unit Level updates were also incorporated in foundational MP courses.
• All MP personnel are mandated by CFPM to take the “Victim Rights in Canada” course and the “Using a Trauma-informed Approach” course, the latter of which was developed by the Royal Canadian Mounted Police.

The Justice Fish recommendation also states that SMSRC should design appropriate training in consultation with CFPM to support investigations of sexual misconduct. Through the efforts to implement Bill C77, an arrangement was reached where CFPM would design the appropriate training, and to date, this has been done. SMSRC is eager to give support in providing crucial value-added services to the Academy through resources, specialized assistance, education and advocacy to guide military personnel dealing with sexual misconduct investigations.

While training is being provided in support of DVR and aligns with similar accredited training in other policing academies, techniques for victim training are ineffective with only 42 percent of surveyed graduates indicating they were effective.

Q: Did CFMPA provide effective training for victim support and interviewing techniques for victims (Answer = Yes)?

• Eighty-eight percent of graduates who indicated the training was ineffective also noted that the current approach is not trauma-informed and remains focused on interrogation techniques as well as subject and witness interviews. Interviewees and graduates noted that the approach does not focus on supporting non-confrontational communication that minimizes re-traumatization.
• Thirty-three percent of surveyed instructors identified specific challenge areas such as students’ lack of confidence in the training that is being provided and current lesson plans in need of further review.

In addition to traditional policing skills, MP members must also possess communication skills and the ability to make emotional connections in support of operational requirements and effective law enforcement within the CAF and surrounding communities, including vulnerable populations.

Emotional intelligence and cultural competencies play a critical role in several MP-related responsibilities. Emotional intelligence is a crucial skill that can enable MP members to navigate complex situations with empathy, understanding and effective communication. Cultural competencies are essential to MP members becoming more able to recognize and overcome biases. A better understanding of cultural nuances in communication styles allows MP members to ensure the fair and impartial treatment of individuals with diverse backgrounds.

Figure 9 Summary

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The primary resource challenge identified by the Academy’s stakeholders is a shortage of appropriately skilled personnel.

Graduates (31.6 percent) and instructors (62.5 percent) both expressed varied concerns regarding instructor-to-student ratios.

• CFMPA experienced a 17-percent vacancy rate among its training staff in 2023. This figure remained static throughout the evaluation period and is above the norm for Category B staffing organizations (13 percent in 2020). The overall MP occupation vacancy rate is approximately 18 percent, further complicating efforts to increase instructor levels to meet Category B staffing requirements (90–95 percent fill rate).
• Focus group interviews indicated that CFMPA instructor positions lack prestige and are considered undesirable, leading to difficulty in attracting qualified instructor personnel.

Staffing shortfalls have made it challenging for CFMPA to meet various external review recommendations—including Recommendation #23 from Justice Arbour’s report, which calls for the prioritization of postings to training units directed at new recruits to equip all training schools with the best possible instructors and to address disincentives for postings.

• The Academy has been unsuccessful in meeting their recommended staffing targets, despite higher staffing level commitments (Defence Plan, 2018–2023).
• Stakeholders have expressed strong concerns that the Academy is not equipped with the best possible instructors.
• Maintaining minimum staffing levels is not unique to CFMPA or the broader CF MP Gp. Recent data from 2022 demonstrates that several CAF occupations continue to be stressed in terms of not meeting minimum staffing levels.

SMEs are being underused in support of course content delivery.

SMEs can play a pivotal role in enhancing the delivery of training and education by providing in-depth knowledge and real-world experience to support conventional learning practices. Their expertise can contribute to a more dynamic learning environment through the seamless integration of theory and practice, leading to higher proficiency standards and readiness among new graduates.

While there is evidence to support the Academy’s use of SMEs—including course redesigns following consultations with the Canadian Forces National Investigation Services and leveraging resources from the Judge Advocate General to ensure segments of military law packages are well understood and communicated in a contextually appropriate manner—many stakeholders believe SMEs are being underused.

Figure 11 Summary

Modernization efforts are impacted by staffing deficiencies.

While CFMPA has embraced modernization through the procurement and implementation of high-end equipment and emerging technologies and has aligned its practices with other inclusive learning ecosystems, personnel shortages were most commonly noted as a formidable challenge that inhibits modernization efforts. The scarcity of skilled personnel has resulted in increased workloads and can result in project timeline delays and a diminished capacity to capitalize on the benefits gained through modernization initiatives.

Additionally, those posted to CFMPA may not have the requisite skills for managing modernization projects, further challenging these initiatives.

Challenges to the Academy’s modernization efforts will directly impact MP and their ability to achieve readiness goals. Staffing shortages leave little room for additional efforts to focus on modernization, potentially resulting in limited productivity, which hinders growth and has negative impacts on student and instructor experiences while at CFMPA.

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All interviewees who were questioned about the availability of formal feedback channels for CFMPA training expressed either a lack of awareness of such channels or confirmed the absence of established formal feedback mechanisms. It was reported that any feedback on training effectiveness or suggested improvements are conveyed through informal, ad hoc conversations to the Academy rather than through a structured, rigorous process.

According to CFMPA senior staff, formal feedback mechanisms do exist; however, direct supervisors and external entities may not be aware of their existence, and current governance structures may not be well understood.

ECRs may be ineffective: Graduates question their use in decision making, and the implementation status of recommended actions remains unclear.

No formalized mechanisms exist to assess the effectiveness of CFMPA training after graduates return to their units.

Quantifiable performance data, while collected, may not be reported to or used effectively by CFMPA.

• Technical evaluations are now the responsibility of the Chain of Command/Commanding Officers. Interviewees reported that it is unclear whether current feedback mechanisms support results-based improvements to the Academy’s processes. The evaluation team found no tangible evidence that these processes are unfolding nor any results from these exercises.
• The J7 Education and Training unit circulates validation surveys to the direct supervisors of recent CFMPA graduates three to six months after graduation to inform training program development. However, it is unclear whether the results of these surveys are actioned by or communicated to CFMPA, and while response rates were unavailable, the evaluation team was informed they are quite low.
• Upon a further analysis of interview responses and document reviews, it is apparent that the Academy lacks adequate performance metrics to assess the effectiveness of their training programs. Quantifiable feedback is not collected from students or instructors, and graduates are not being tracked to examine to what extent the training they received supports and enables operational requirements.

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Annex A: Management Action Plan