Review of the Royal Canadian Chaplain Service

August 2021

1258-3-049

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

Acronyms

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Executive Summary

Background and Objectives

This report presents the results of the Review of the Royal Canadian Chaplain Service (RCChS), conducted in fiscal year (FY) 2020/21 by Assistant Deputy Minster (Review Services) (ADM(RS)). The review examined the preparation, governance and capacity of RCChS to offer spiritual care to all Canadian Armed Forces (CAF) members, regardless of denomination, sex and gender, gender identity, sexual orientation or ethnicity. It did so by examining the following six areas: the value of chaplaincy services governance, policies, recruiting, training, and compassion fatigue and wellness.

Program Description

The RCChS is delivered through the Military Member and Family Support program. CAF chaplains are responsible for fostering the spiritual, religious and pastoral care of CAF members and their families, and provide strategic advice to members of the Chain of Command (CoC) on ethical, religious and spiritual matters.

Results

Value of Chaplaincy Services

Overall, the Review found the chaplaincy services offered by the RCChS to be highly valued by most, although a minority believe the chaplaincy is no longer needed and should be replaced by secular mental health experts or social workers. The composition of the Chaplaincy does not reflect the diversity of the population it serves, and there are areas for improvement in providing services to LGBTQ2+ members, non-religious members, women and others.

Governance

Although most chaplains are clear on their responsibilities, the chaplaincy’s three-part governance structure is complex, and policies that establish it are in need of updating to reflect the chaplaincy’s evolution from a primarily Christian institution to one that provides care for all. Partly as a result of this complex governance structure, the processes governing the reporting of issues involving chaplains are not clear to all chaplains.

Of concern to the governance of the RCChS is the role of the Interfaith Committee on Canadian Military Chaplaincy (ICCMC), a body external to the CAF whose accountabilities to the CAF are not clear. Its role in establishing and potentially revoking the mandate of individual chaplains has the potential to lead to discriminatory practices that contravene CAF values and human rights.

Policies

Areas for improvement to policy in areas other than governance have been observed. Firstly, GBA+ has historically not been considered in chaplaincy policies. Secondly, tension exists between the CAF duty to report misconduct and the chaplain privilege of confidentiality. Thirdly, security checks have not been conducted consistently on chaplains in the past, but the chaplaincy is now committed to a rigorous security screening of all chaplains.

Recruiting

Although few vacancies exist, there is a perception among end users that not enough chaplains are being recruited. Systemic barriers prevent candidates from some groups, notably diverse faith traditions, from being recruited to the CAF chaplaincy.

Training

Most chaplains are satisfied with the training received, but some gaps exist and accessibility is sometimes an issue, primarily for Reserve Force members.

Compassion Fatigue and Wellness

There is widespread concern about compassion fatigue among CAF chaplains but, prior to this Review, no attempt had been made to measure it. This Review assesses its current prevalence as relatively low, but more study is needed. Although a number of supports are in place to help those experiencing compassion fatigue, there is some dissatisfaction with their availability and effectiveness.

Recommendations and Management Action Plan

The Review arrived at nine recommendations to address the issues noted. These recommendations, and the management response to them, can be found in Annex A.

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Review Scope and Methods

Coverage and Responsibilities

The time period that the review covers is FY 2015/16 to FY 2019/20, but it was primarily present and future focused. The RCChS review is a special project not captured within the Five-Year Departmental Evaluation Plan (2018/19 to 2022/23).

The review focused on the following six areas:

1. Value of Chaplaincy Services
2. Governance
3. Policies
4. Recruiting
5. Training
6. Compassion Fatigue and Wellness

Objectives

The objective of the RCChS review was to examine the preparation, governance and capacity of RCChS to offer spiritual care to all CAF members, regardless of denomination, sex and gender, gender identity, sexual orientation or ethnicity.

The RCChS review applied a Gender-Based Analysis Plus (GBA+) lens, in order to explore possible differences in how the services are experienced based on factors such as denomination, sex, gender, sexual orientation and ethnicity.

Data Collection Methods

The methods used to arrive at review findings were as follows: (for more information, refer to Annex C)

Document review

Policies, guidance, training materials, communications and other documents related to the scope of the review were examined as supporting evidence.

Stakeholder interviews

22 stakeholder interviews were carried out with members of the chaplaincy and other groups both internal and external to the Department of National Defence (DND)/CAF.

Surveys

Two surveys were carried out for this review: one survey of chaplains and one of CAF members, as potential or actual end users of chaplain services.

The chaplain survey received 169 responses (52% response rate). The CAF member survey received 685 responses (response rate cannot be calculated due to the way in which the survey was disseminated). Certain questions in the CAF member survey were only asked of a subset of respondents.

Risk assessment

A facilitated risk assessment was conducted through a series of risk sessions to identify current and future issues/risks related to the six areas of the review. The risk assessment included representatives from RCChS, other DND/CAF units and external representatives from various faith traditions.

Results of the risk assessment can be found in Annex E and, where relevant, in the “Associated Risks” box in the findings of this report.

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Program Profile

The Royal Canadian Chaplain Service

The RCChS is delivered through the Military Member and Family Support program. CAF chaplains are responsible for fostering the spiritual, religious and pastoral care of CAF members and their families, regardless of religious affiliation, practice and belief. They also provide strategic advice to members of the CoC on ethical, religious and spiritual matters.

The RCChS is led by the Chaplain General (Chap Gen) and is housed within Chief Military Personnel (CMP). The ICCMC, an external body of representatives from Canadian Faith Traditions, supports the chaplaincy as the body linking Faith Traditions with the CAF. The ICCMC is the body through which RCChS chaplain requirements and standards are set, Faith Tradition communities of Canada exercise their support to the CAF, and represents and reflects the work of the RCChS to member Faith Tradition communities throughout the country.

Mission

To develop and offer spiritual and religious care and support in order to ensure the spiritual well-being and development of all members of the Defence Community while respecting the freedom of conscience and religion of each person.

Vision

To be a Multi-faith chaplaincy committed to developing the Spiritual well-being and resilience of the members of the Defence Community in order to support the effectiveness of the CAF.

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Value of Chaplaincy Services

Provision of a vital service for DND and the CAF

The RCChS is widely perceived to provide an important service that is greatly valued by the defence and command teams. Chaplains provide advisory support for the command team, and provide services and support for the Defence Team, including support in a front line/social work context.

The value of RCChS services is evident in the large number of members who utilize religious and spiritual services. Between one-quarter and one-half of CAF members were estimated to attend formal chaplaincy services in a two-year period, and between one-half and three-quarters of CAF members had an encounter with a chaplain within that same period. The availability of 24/7 duty chaplains helps to mitigate risks when/if members and their families struggle or encounter personal crisis situations any time of the day or night.

Services received on deployment received slightly lower ratings. Only 11 percent of total respondents reported receiving chaplaincy services while on deployment, reportedly due to a lack of availability of chaplains while deployed.

Most of the 169 chaplains surveyed see the relevance in the chaplaincy and are highly satisfied with the services they have received from other chaplains. 

Base/wing commanders feel that the RCChS is a vital service and that chaplains contribute to the resilience and mental and spiritual health of the Defence Team. It was also felt that chaplains provide the pulse and advisory support to the CAF command team, including the ability to gauge the overall morale and health of the team.

However, not all agreed on the need for the CAF chaplaincy. As the CAF population becomes less religious (see Finding 2), the need for chaplains is called into question by a few. As chaplains are embedded in their units, they are often called on for matters beyond the religious or spiritual, including for mental health issues. In the survey of CAF members, when asked for comments, 7 percent of those who responded stated that mental health experts or social workers should replace chaplains in these cases.

Equitable Care for all Defence Team Members

Composition of RCChS

RCChS chaplains represent a number of different faith traditions. There is an opportunity for the chaplaincy to better reflect the diversity of the Canadian population. For instance, there is greater representation from Protestant denominations, lower representation among non-Christian Faith Traditions, and no representation from non-religious groups.

When asked for areas for improvement for the RCChS, one of the most common replies from CAF members was the need for greater diversity of both chaplains and of the Faith Traditions they represent.

The RCChS is currently working to expand the Faith Traditions from which chaplains can be recruited, including a possible secular (humanist) option.

Visible Minorities, Indigenous Peoples and Women

The large majority of CAF members did not feel their ethnicity, gender or sexual orientation affected the level of support they received from the chaplaincy, including most women, visible minorities and Indigenous people. However, among chaplains themselves, those who are visible minorities (including Indigenous) and those who are women are more likely than others to see a lack of equity in the chaplaincy and in the services it provides. Both are more likely to agree that there are inconsistencies in the level and quality of care received by different groups of people, and that barriers to recruitment exist for certain groups to be hired as a CAF chaplain.

Location

The geographic distribution of chaplain postings closely match those of the broader CAF population, indicating they are placed close to the people they serve.

LGBTQ2+ Community

CAF members who are members of the Lesbian, Gay, Bisexual, Transgender, Queer or Questioning, Two-Spirit (LGBTQ2+) community saw more need for improvement to the chaplaincy than did respondents who were not members of this group (percentage who agree or strongly agree).

In explaining their responses, several CAF respondents described experiences of prejudice and discrimination by chaplains against members of the LGBTQ2+ community, and in a few cases, turning someone away for being gay.

Care for All

The RCChS is in a period of transition and has implemented a wide range of important initiatives to provide care to all Defence Team members regardless of faith, spirituality, LBGTQ2+ status and ethnicity. The RCChS has released directives and communications to inform chaplains that they are required to support all Defence Team members equally; RCChS senior management are working to ensure that this happens in practice on a consistent basis.

New recruits are given training in diversity and in CAF values such as the duty to provide care to all Defence Team members; however, it is imperative that a process be implemented to ensure that these values are adopted in their day-to-day actions.

It was mentioned that there have been complaints from female, LGBTQ2+, and non- Christian chaplains about biases, and that some LGBTQ2+ chaplains have not felt supported.

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Governance

Transition to a Multi-Faith Organization

Although chaplains reported clarity in ARAs, there is a concern that policies and standards are out of date. When the chaplaincy was originally created in the CAF, there were two chaplaincies – one for the Catholic faith and one for the Protestant faith. Non-Christian faith traditions were historically excluded. In its move towards a multi-faith organization, there is a need to review governance documents to ensure they are reflective of the population they serve.

It was identified that some accountability structures, especially related to the ICCMC, are not clear. The ICCMC is a publicly-funded body comprised of representatives external to DND/CAF from Faith Traditions in Canada, which supports the CAF chaplaincy by linking it with these Faith Traditions.

Although funded through the Chap Gen’s budget, the ICCMC’s accountabilities are not explicitly described in any DND/CAF policy. Some of the ICCMC’s authorities are contained in the Queen’s Regulations and Orders (QR&O): it has authority to endorse candidates for the chaplaincy, and to issue directives on religious or spiritual matters with which chaplains must comply. Because these authorities are in QR&Os, they are not in the powers of the CAF CoC to change. It was felt there is a lack of clarity on who has the authority to change the ICCMC’s roles and responsibilities.

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Hierarchy of Authorities

The chaplaincy service is made of the Office of the Chaplain General (OCG) and operational/tactical chaplains. Within this structure, there are three different levels of authority – CMP, Military and Faith Traditions/ICCMC. CMP is the Level 1 (L1) within which RCChS Headquarters resides. As commissioned officers, chaplains are subject to the Code of Service Discipline of the military and are responsible to the military command in which they are posted. However, as religious professionals, chaplains must ensure they exercise their ministry in accordance with their Faith Tradition norms. Inconsistencies in the application of policies between government, military and religious authorities can result in conflicting direction and confusion regarding the hierarchy of these authorities. In cases where there is conflict of values/views, there is uncertainty about which level takes precedence.

It was mentioned by numerous stakeholders that the values and ethics of the CAF can sometimes conflict with those of faith traditions. For example, interviewees noted that although the Chap Gen sent out a letter to all chaplains regarding respecting LGBTQ+ peoples, and the requirements for chaplains to provide care to all, there were a few Faith Tradition representatives that disputed this declaration to the chaplains underneath them. This causes uncertainty for chaplains about which direction they are required to follow, as there are concerns regarding losing endorsements, and potentially their jobs, if they oppose either the CAF position or the Faith Tradition's position.

A gap between the strategic vision of the RCChS and the operational reality can exist. In some cases, there is a perception of difference between the care for all model promoted by the CAF and service for all with some Faith Traditions potentially taking a “care of all but service to some” approach. This discrepancy can impact the experience CAF members have when using chaplaincy services and support.

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RCChS Mandate and Endorsements

The ICCMC plays a role in establishing the mandate of a new CAF chaplain, and may also play a role in revoking it. In order to become a CAF chaplain, a candidate must obtain the endorsement of the member of the ICCMC who represents their Faith Tradition. If the ICCMC member decides to revoke this endorsement, it may result in that chaplain losing their mandate. According to the QR&Os, the Chap Gen must revoke the mandate of any chaplain who no longer meets the requirements for the granting of the mandate – which includes ICCMC endorsement (QR&O 33.05 para. 1). This appears to grant the ICCMC the authority to revoke a chaplain’s mandate.

There are instances where this may lead to consequences that run counter to CAF values and human rights legislation. For example, within certain Faith Traditions, chaplains may risk losing their ICCMC endorsement if they identify as part of the LGBTQ2+ community, express support of LGBTQ2+ events, or live with a partner prior to marriage. If this results in loss of employment for the chaplain, it could constitute a contravention of the Canadian Human Rights Act.

Interviews described a scenario where chaplains may have to choose between their employment and their doctrines of faith. Although representatives from the OCG believed this should not be the case, there is not this shared belief across the RCChS. Since this is an issue that deals with human rights, it would be beneficial for RCChS to seek legal opinion.

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Issues Management and Reporting

Processes and transparency in the reporting of issues and/or misconduct involving either chaplains or other CAF members are not clear to all chaplains. Some processes exist within the RCChS, but in most cases the reporting of issues or complaints involving chaplains follows the same process as for all CAF occupations. However, not all chaplains are aware of what issues are reported to whom, due in part to the complex three-part governance structure of the RCChS (see Finding 4). Some believe that enforcement is up to the discretion of leadership. Additionally, despite acknowledgment of positive change in this area, there is still some fear of retribution if conflict/issues are brought forward by the lower ranks.

RCChS directives provide some guidance on the internal reporting process. There are two instances where specific reporting is required to the OCG:

• Significant Incident Reporting: A Situation Report must be provided upon the death or serious injury of a CAF member, or an incident which may otherwise have high media significance.
• Commander’s Critical Information Requirements (CCIR): A specific reporting mechanism for particular types of significant incidents, such as death, serious injury, and significant incidents involving chaplains.

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Policies

GBA+ Strategy

GBA+ considerations are essential for the RCChS to achieve its strategic objective of providing care for all. Survey data shows that factors including gender, sexuality, ethnicity and faith tradition impact satisfaction with chaplaincy service and support (see Finding 2).

Since 2003, The RCChS has become multi-faith and has recently been actively aiming to expand its diversity and representation to include non-traditional faith traditions and women. Although it was noted that improvements have been made, there remains a concern of potential discrimination against specific groups such as women and the LGBTQ2+ community.

A review of RCChS policies, directives and standards only identified one directive that mentioned GBA+ specifically.  This directive stated that all chaplains will be briefed on GBA+ while conducting recruiting strategies and their target is to exceed the CAF average in recruiting women officers  (CHAP GEN Op GABRIEL, p. 5).

Numerous aspects of GBA+ within the RCChS were raised as part of the risk sessions including gender, sexual orientation, diversity of Faith Tradition, race and ethnicity. Participants indicated that these factors affected end users’ satisfaction with RCChS chaplaincy services and chaplains’ satisfaction with their own occupation.

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Confidentiality vs Duty to Report

Although policies on confidentiality vs the duty to report are clear, especially as outlined in the Chap Gen Directive on Operation HONOUR, the different messages contained in various policies within the department can be inconsistent and cause confusion amongst chaplains.

Chaplains play a unique role in the CAF and are bound by confidentiality that is not expected of other CAF members who have a duty to report.  

Input gathered through the evaluation highlighted the importance of actions surrounding confidentiality and the duty to report to be victim-led when it comes to decisions on which steps to take and whether or not to report.

Clarity in guidance on the chaplain’s role specifically related to the duty to report across the CAF would aid in addressing any inconsistencies. 

QR&O

Officers shall: “report to the proper authority any infringement of the pertinent statutes, regulations, rules, orders and instructions governing the conduct of any person subject to the Code of Service Discipline when the officer cannot deal adequately with the matter.”

Operation HONOUR

“It is expected that all CAF members will report to the proper authority any sexual misconduct committed by any person in the workplace or on a defence establishment.”

Directive on Operation HONOUR

Chaplains should have the member’s approval before proceeding to get help from a professional or anyone in the Chain of Command.

Chaplaincy Confidentiality

“Some religious communications [between a chaplain and a CAF member or dependant] may be protected by privilege.” However, “absolute confidentiality may only be offered in the context of the penitential rites of those specific Faith Group traditions to which such confidentiality applies, and an accordance with the guidelines and any limitations stipulated by those Faith Groups.”

Confidentiality is limited in cases where someone is a threat, involves abuse of a minor, or ordered by a court of law EXCEPT in a Roman Catholic and Orthodox sacramental context.

Although the majority of the 169 chaplains surveyed do not find it difficult to reconcile the CAF duty to report with chaplain confidentiality, there are still relatively high proportions who answered that they neither agree or disagree, or that they agree there are challenges.

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Security and Background Checks

Stakeholders highlighted that in order to have a resilient and healthy chaplaincy, there need to be measures in place to ensure that the right chaplains are hired for the position, and that there are clear expectations regarding the requirements to become a chaplain and of the unique responsibilities chaplains have, especially working with vulnerable populations.

In the past, security checks were not consistently carried out for CAF chaplains, beyond the security clearances required of all CAF members. Although most faith groups do have a screening process for clergy and volunteers in place, the review found that it was not consistent across faith groups and it is not an on-going process.

Beginning in 2020, the RCChS now requires all new and existing chaplains to undergo a Vulnerable Sector Check (VSC), as per the Chap Gen Directive on an Environment of Care. The VSC identifies past criminal convictions and a range of other offence-related information (see box on this slide). It must be renewed every three years.

As of April 2021, 83 percent of Regular Force chaplains have completed the VSC. Similarly, 83 percent of chaplains surveyed for this review indicated they had undergone a security check since applying to or working in the CAF chaplaincy. Of those still awaiting a VSC, many are due to delays on the part of the police force undertaking the check, or due to leave, deployment, or postings outside Canada on the part of the chaplain.

Several interviewees suggested wellness checks should be undertaken at the same time as security checks. Chaplains are consistently faced with challenging situations, and they need to have the psychological wellness and resilience to be able to handle these situations. There is currently no requirement for a wellness check as part of the selection process of chaplains or ongoing monitoring of chaplain’s health.

Governed by the Criminal Records Act, VSCs provide a range of offence information including convictions, outstanding warrants, charges, judicial orders and record suspensions (pardons) for sexual offences. It is not exhaustive; for example, foreign information is not included.

VSCs are completed by the local police force with jurisdiction where the applicant resides. Each police force has its own delivery schedule, and in many cases these timelines have been affected by current COVID-19 restrictions.

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Recruiting & Training

Insufficient Recruitment of Chaplains

The Annual Military Occupation Review indicates that chaplaincy is in the “green zone;” however, they have not consistently met their Strategic Intake Plan targets.

Members of the command team expressed their concern about the lack of backup for chaplains which limits professional development, access to required training and opportunities for needed leave. It was reported that some areas of Canada have one chaplain per base, with no backup or support.

Stakeholders from within the RCChS and the CAF command team, as well as the Defence Team end users, have expressed their concern about the ratio and equitable number of chaplains in the CAF.

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Barriers to Recruitment

Stakeholders expressed concern about systemic barriers in the recruitment process. The primary barrier is the requirement of an ICCMC endorsement, since the Chap Gen cannot give a mandate for a chaplain to provide chaplaincy services without an endorsement by a member of the ICCMC (QR&O vol.1, ch33.04, para 1b).

The ICCMC consists of 12 members, with 10 from Christian denominations, and one Muslim and one Jewish member. It is difficult for candidates from faith traditions not represented on the ICCMC to become CAF chaplains. Another concern is that of educational standards. Chaplains are required to have a Masters in Divinity (or the faith tradition’s equivalent to it), which is considered to overly favour Christian denominations and neglects the qualifications that other faith traditions may value over education.

Finally, there were concerns about the requirement of the ICCMC in recognizing each faith tradition’s leadership credentials. As the ICCMC is over-represented by Christian denominations, the credentials of other faith traditions may not be appreciated.

More women than men agreed that there are barriers to being hired for certain groups. With over 40% of women respondents believing that there are barriers for women and the LBGTQ2+ community.

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Satisfaction with Training

According to the 169 surveyed chaplains, they are generally satisfied with the training they received and believe that the training sufficiently prepares them for providing chaplaincy services to the Defence Team.

Chaplains are often the first point of contact in many sensitive situations, as they are embedded in CAF units and often seen as a trusted confidant. They are often approached by victims of sexual misconduct and workplace harassment. Although most chaplains are confident in their abilities to handle such instances, and maintain connections with appropriate resources such as mental health experts, they receive insufficient formal training from the CAF in some aspects, such as in cases of trauma. Chaplains need appropriate training in how best to respond when approached by those who have experienced trauma, including when and how to make a referral to mental health experts or others, as needed.

Fewer members of the LGBTQ2+ community believe that chaplains have the necessary training to address their needs, compared to other respondents.

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Primary Reserve Force

Stakeholders were in agreement that the Reserve Forces do not have the same resources, training or support as the Regular Forces. Many Reserve Force chaplains are isolated and may only have contact with another chaplain a few times a year. Because of this, it was recommended that Reserve Force chaplains, as well as Regular Force chaplains, be given opportunities for training, to help foster mutual peer support and access resources.

Current practice for training delivery creates barriers to accessing training. Due to many critical training courses not having online options, as well as extensive waitlists, many Reserve Forces chaplains are not able to take essential training that would support them in providing services to the Defence Team. It was recommended to change the regulation so that the use of technology such as teleconference and videoconference options for the attendance of courses be allowed, so that more chaplains could be properly trained, including Reserve chaplains.

Changing the guidelines to ensure all chaplains have access to proper trainings may require continued effort to think creatively outside of the box, especially during the pandemic.

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Compassion Fatigue and Wellness

Lack of Mechanisms to Measure or Identify Compassion Fatigue

The CAF Chaplain Service Manual defines compassion fatigue as a “physical, emotional and spiritual fatigue or exhaustion that takes place over time, and that causes a decline in a chaplain’s ability to experience joy or to feel and care for others.” Compassion fatigue is an issue in a variety of helping trades. A chaplain who is always giving and not receiving support themselves may lose their spiritual resilience over time, especially if they never have the time to rejuvenate themselves.

While broadly recognized as a concern, compassion fatigue in the RCChS has not been previously studied. One potential indicator is representation in the Service Personnel Holding List (SPHL), the posting unit for ill and injured CAF members. Because the chaplain occupation is less prone to physical injury than others, their injuries may be more often mental in nature. The number of personnel on the SPHL, as a percentage of total strength, is higher for chaplains than for the CAF as a whole:

The chaplain survey from this review found most chaplains (63%) agreed or strongly agreed that they had experienced compassion fatigue at some point since joining the service.

However, as part of this review, the 169 chaplains surveyed were asked to respond to the Professional Quality of Life scale, which measures compassion satisfaction and two elements of compassion fatigue – burnout and secondary traumatic stress.

From this, it was found that most chaplains have low levels of compassion fatigue, and medium to high levels of compassion satisfaction. None scored in the high range for compassion fatigue. These results may be explained by the stigma surrounding compassion fatigue, non-response bias, or the COVID-19 pandemic during which the review took place.

Sustaining Spiritual Resilience

There are a number of options available to chaplains experiencing compassion fatigue or in need of support for mental health issues, including five mitigation tactics, four chaplain-specific programs on compassion fatigue, and eleven CAF-wide programs available to any member suffering any sort of injury.

However, there were some concerns expressed about the accessibility and effectiveness of available programs. As shown, only about half of the 169 chaplains surveyed agreed the RCChS is providing an environment of care for chaplains, and a sizeable minority were unsatisfied with programs in place to address compassion fatigue.

According to some interviewees, there is a stigma attached to asking for help, which may prevent some from accessing these available services.

Some stakeholders felt there is very little communication from senior management on how to maintain a resilient spiritual life, and it is instead left to the individual.

Stakeholder suggestions to improve chaplain well-being, health and spiritual resiliency include a crisis line for psychological support, adding the focus and awareness of wellness into performance evaluations, leveraging peer support and time to rest, extra training and focus on spiritual resiliency, and ensuring adequate funding for chaplain retreats.

Allowing adequate time to build spiritual resilience, acknowledge experiences and challenges, receive compassion and learn how to ask for help are crucial for maintaining resiliency.

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Annex A – Management Action Plan

Management Action

1.1 Organize a Working Group with internal and external Subject Matter Experts, in order to clarify expectations for Chaplains with regard to Canadian values and CAF Code of Ethics and address the tension between freedom of religion and human rights.

OPI: Chap Gen
OCI: ICCMC
Target date: June 2023

1.2 Define particular and common roles for the newly appointed Advisors to the RCChS (Indigenous), (Jewish), (Muslim), (Orthodox), (Protestant), (Roman Catholic), (Buddhist), (Sikh), and (Humanist). Review recruitment processes and standards to support RCChS recruiting of non-religious traditions, including Humanists.

OPI: Chap Gen
OCI: ICCMC
Target date: June 2022

1.3 Standardize branch-wide GBA+ process and ensure cultural and religious diversity in visual representation and written documentation for all new chaplain recruiting material.

OPI: Chap Gen
OCI: ICCMC
Target date: June 2022

Management Action

2.1 Clarify ARAs and update policies. The RCChS Executive will clarify ARAs by June 30, 2022, with policies to be updated by March 31, 2023 as interim milestones. A Chap Gen correspondence about the governance will be sent to all chaplains for ease of understanding by the target date.

OPI: Chap Gen
OCI: DChap Svcs
Target date: June 2023

Management Action

3.1 Review the mandate, policies and processes of the ICCMC related to the granting and revoking of chaplain endorsement to mitigate identified risks, and report to the appropriate authorities for action. Review and revise all relevant RCChS policies accordingly. Present and discuss policy revisions with all chaplains.

OPI: CMP, Chap Gen
OCI: DChap Svcs
Target date: June 2022

Management Action

4.1 Conduct a review to better understand the issue(s) with regard to what/when/where/to whom to address a complaint involving a chaplain. Clarify as needed the processes for different types of issues/complaints, including the communication between the OCG and the ICCMC representatives.

OPI: Chap Gen
OCI: DChap Ops
Target date: June 2022

Management Action

5.1 Establish an RCChS policy which stipulates that all Working Groups, projects, policies, directives, training and recruiting material will include a GBA+ analysis from the very beginning of the process.

OPI: Chap Gen
OCI: COS RCChS/DChap Ops
Target date: Jan 2022

5.2 GBA+ training, including Positive Space training, will be offered to ICCMC members and all chaplains. 100% of chaplains will attend GBA+ training. 100% of chaplains will be offered Positive Space training as personal development.

OPI: Chap Gen
OCI: COS, DChap Ops
Target Date: June 2022

Management Action

6.1 Prepare and publish a CANFORGEN as an official reference for chaplains and CoC, in order to assert the protection of the confidentiality for chaplains when providing support and care to CAF members. The “Duty to report” only applies to chaplains if a member represents a danger to themselves or others (serious suicidal or homicidal thinking) or if a member has endangered a minor, and a report to Child Protective Services is mandated.

OPI: CMP, Chap Gen
OCI: DChap Svcs
Target date: June 2023

6.2 Prepare a response should Justice Fish’s National Defence Act review have relevant findings; we will review and adapt as needed while carrying out this work.

OPI: CMP, Chap Gen
OCI: DChap Svcs
Target date: June 2023

Management Action

7.1 Review the mandate, policies and processes of the ICCMC related to recruitment, as well as its membership, to eliminate barriers to recruitment for: faith traditions as not yet represented, women, members of the LGBTQ2+ community and ethnic minorities. Report findings and recommendations from the review to appropriate authorities for action. Review attraction and recruiting material accordingly, while also following recruiting standards for CAF officers.

OPI: CMP, Chap Gen
OCI: DChap Svcs/ICCMC
Target date: June 2022

7.2 Improve communication with Canadian Forces Recruiting Group to ensure that CAF Regional recruiting officers have all the updated information and material, and understand the RCChS ever-extending diversity policy.

OPI: CMP, Chap Gen
OCI: DChap Svcs/ICCMC
Target date: June 2022

Management Action

8.1 Create a stakeholder working group that includes membership from all Defence Advisory Groups as well as relevant subject matter experts to identify gaps and plans to meet the needs of all equity seeking groups, to better equip chaplains to respond to sensitive issues, including the limits of their role, and to meet the needs of both Primary Reserve and Regular Force chaplains.

OPI: Chap Gen
OCI: DChap Svcs/CFChSC
Target date: June 2023

8.2 Assess the need and request a new permanent position at the Canadian Forces Chaplain School and Centre (CFChSC) for Primary Reserve training continuity, including training for chaplains assigned to the Canadian Rangers Group.

OPI: Chap Gen
OCI: DChap Svcs/CFChSC
Target date: June 2023

Management Action

9.1 In order to clarify the issue (Statistical Reliability vs statistics), engage Director General Military Personnel Research and Analysis to assess, through an evidence-based process, the current physical, emotional and spiritual health of the RCChS chaplains.

OPI: Chap Gen
OCI: MH Principal Chaplain/DChap Strat
Target date: June 2023

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Annex B – Key Findings and Recommendations

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Annex C – Methodology

Data Collection Methods

The findings and recommendations of this report were informed by multiple lines of evidence collected throughout the conduct phase of the evaluation. The methodology relied on both qualitative and quantitative research methods to ensure the validity of data collected for analysis. These lines of evidence were triangulated with each other and verified with program officials to ensure their validity. The methods used in the scoping and conduct of the review are as follows:

Document Review: As part of the planning phase of the review, a preliminary document review was conducted to develop a foundational understanding of the RCChS as well as determine the scope of the review.

Documents included: government websites and documents, terms of reference, logic model, indicators and objective program statements, key policies, training material, committee agendas and records of decisions, action plans and business cases, guidance documents related to Operation HONOUR, compassion fatigue and well-being.

Stakeholder Interviews: The review team conducted 22 stakeholder interviews with organizations internal and external to DND/CAF. These responses were aggregated to inform opinion and perspectives in support of the evaluation.

Interviews were conducted with leaders in the following groups:

• RCChS headquarters
• Senior and Tactical chaplains
• Sexual Misconduct Response Centre
• Base/wing Commanders

Survey:

The review team conducted two surveys between January and February 2021: one survey for RCChS chaplains and one for CAF members. The review developed the surveys in English and French and made them available on the Defence Wide Area Network and online.

The chaplain survey was sent to all current CAF chaplains not already contributing to the risk sessions and advisory committee. No sampling was administered.

For the survey of CAF members, members posted to five selected bases/wings were invited to participate. The bases and wings were selected based on stratified random sampling ensuring diversity of:

• CAF environments
• Geographic location
• Base/wing size (number of personnel)

Due to the sensitivity of this review and the nature of these surveys, steps were taken to ensure anonymity and protect survey results.

The chaplain survey had a total of 169 responses, for a 52 percent response rate. The survey of CAF had a total of 685 responses. It was not possible to calculate a response rate for this survey due to the way in which the survey was disseminated. Of these, 211 reported being posted to a base other than those in the selected sample. These were asked demographic questions but not asked questions about the RCChS. The remaining 474 respondents were asked both types of questions.

For both surveys, differences across sub-groups were identified by Chi-square and t-test (α = 0.05). All differences noted in this report were statistically significant.

Risk Assessment:

A facilitated risk assessment was conducted through a series of risk sessions to identify current and future issues/risks related to governance structures, policies, recruiting, training, compassion fatigue and chaplain well-being, as well as corresponding mitigation strategies. To ensure the appropriate expertise was included in the risk sessions to identify and rate risks, a range of participants was asked to join. Since in-person sessions were unable to occur due to COVID-19, alternative options were undertaken including the use of questionnaires and videoconferences with participants.

The risk assessment was conducted in three phases. Phase one focused on identifying risks, phase two on rating risks and phase three on the identification of mitigation strategies. The review team reviewed and analyzed questionnaire results after each phase and hosted a videoconference to review and confirm results.

The risk assessment included representatives from RCChS headquarters, tactical chaplains, other DND/CAF units and external representatives from various faith traditions. The faith tradition representatives were selected based on the following criteria:

• Familiarity with RCChS
• Depth of knowledge in their own faith tradition
• Gender diversity

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Annex D – Review Limitations

RCChS Review limitations and mitigation strategies are detailed in the following table.

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Annex E – Stakeholder-Identified Risks

The following table shows the risks for RCChS as identified by program stakeholders for the risk assessment exercise (see Annex C), and the corresponding risk rating for each. As a later step in the risk assessment, mitigation strategies were identified for these risks. These mitigation strategies were considered in the development of the recommendations for this review and in the management action plan.

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Annex F – Gender-Based Analysis Plus (GBA+)

As per the Government of Canada’s commitment to Gender-Based Analysis Plus (GBA+), this review applied a GBA+ lens in its assessment of the RCChS.

Women and Gender Equality Canada defines GBA+ as:

an analytical process that provides a rigorous method for the assessment of systemic inequalities, as well as a means to assess how diverse groups of women, men and gender- diverse people may experience policies, programs and initiatives. The “plus” in GBA+ acknowledges that GBA goes beyond biological (sex) and socio-cultural (gender) differences. We all have multiple identity factors that intersect to make us who we are; GBA+ also considers many other identity factors, like race, ethnicity, religion, age, and mental or physical disability.

In this review, certain indicators focused on GBA+:

• Evidence of GBA+ considerations in recruitment, training and polices
• Perceptions on inequalities/biases that policies/doctrines have introduced for women, LGBTQ2+ community and/or ethnic groups
• Evidence of successes and challenges in providing spiritual care to all CAF members and an environment of care within RCChS
• Evidence of biases related to sex, gender identity, ethnicity and denomination existing in RCChS
• Presence of advisor to Chap Gen to support LGBTQ2+ community and development of relevant training.

Interviewees were asked about specific groups, such as women Indigenous peoples and their relationship to the chaplaincy.

The two surveys (of chaplains and of CAF members) for this review broke down responses to all questions by:

• Gender
• Visible minority and Indigenous status
• Membership in LGBTQ2+ community
• Faith Tradition
• Force focus*

* For chaplain survey only, indicating whether their time was spent more on CAF members in the Regular Force vs Reserve Forces.

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