Culture Evolution

On this page

• Culture Change
• Recruitment and Retention
• Training
• Canadian Military Colleges (CMCs)
• Complaints and the Grievance Process
• Universality of Service
• Terms and Definitions

Culture Change

^* Including senior leader promotion and selection processes

Key Facts

Details

IECR Recommendations on Culture Evolution

• Recommendation 6:
  • The Director of Military Careers Administration (DMCA) should engage in an externally-led quality assurance assessment – similar to that conducted by the Sexual Assault Review Program (SARP) initiated by the Canadian Forces National Investigation Service (CFNIS) – of the administrative reviews conducted from 2015 to date relating to sexual misconduct, which administrative reviews resulted in retaining the member without career restrictions.
• Recommendation 26:
  • The CAF should increase the number of opportunities for CAF members, particularly at the senior leadership and General Officer / Flag Officer (GOFO) levels, to be seconded to the private sector, and to other government departments.
• Recommendation 30:
  • A section should be added to the Performance Appraisal Report (PAR) requiring the supervisor to certify that, to their knowledge, the CAF member being appraised is not currently subject to any investigation or proceeding, whether criminal, disciplinary, administrative or otherwise, related to allegations of sexual misconduct.
  • If the supervisor is aware of such an investigation or proceeding, they should not reveal its existence if doing so would compromise its integrity.
  • Otherwise, the supervisor should provide all relevant details of the investigation or proceeding.
• Recommendation 31:
  • A past misconduct sheet should be prepared for each candidate considered for promotion to the rank of lieutenant-colonel/commander or above, or to the rank of chief warrant officer/chief petty officer 1^st class, by an appropriate unit under the Chief Military Personnel. The past misconduct should include anything the CAF deems to be serious misconduct, but should include at a minimum, convictions for Criminal Code sexual offences and findings of sexual harassment. The CAF should also prepare appropriate guidance to selection boards on how to take past misconduct into account as part of their deliberations and decision-making. Finally, the CAF should make appropriate provision in its policy for rehabilitation, including the removal of criminal convictions for which a record suspension has been granted.
• Recommendation 32:
  • In fulfilling her responsibility in approving GOFO promotions, the Minister should be assisted by a senior civilian advisor, not currently a member of the Defence Team. In her consultation with the Chief of the Defence Staff (CDS), the Minister should examine what efforts are being made to correct the over-representation of white men in GOFO ranks.
• Recommendation 34:
  • The new processes for GOFOs, including psychometric testing and 360-degree multi-rater assessment should, at a minimum, be expanded to candidates being considered for promotion to the rank of lieutenant-colonel/commander or above, or to the rank of chief warrant officer/chief petty officer 1st class.
• Recommendation 38:
  • All succession boards should adopt the approach and methodology of the Royal Canadian Navy in its "incident review list" to ensure that concerns are properly captured and brought before boards on a consistent and continuing basis.
• Recommendation 39:
  • All succession boards for majors and above and master warrant officer / chief petty officer 2^nd class appointment boards should include an independent civilian member from outside the Defence Team.
• Recommendation 40:
  • The CAF should prepare a new policy on succession planning based on GBA Plus that ensures women are not subject to directly and indirectly discriminatory practices in succession planning, and that provides appropriate guidance to career managers, succession boards and others involved in succession planning.
• Recommendation 41:
  • The Minister should be briefed by the Assistant Deputy Minister (Review Services) directly on all investigations related to sexual harassment, sexual misconduct and leadership culture in the Defence Team.
• Recommendation 44:
  • In the case of Governor-in-Council appointees, such as the CDS and the Judge Advocate General (who must be members of the CAF at the time of their appointment), consideration should be given to removing any legal impediments – such as privacy concerns – that preclude access by the Privy Council Office to personnel files in the CAF, including conduct sheets.
• Recommendation 45:
  • The CPCC should host a public online database for all internal Defence Team research and policies relating to sexual harassment and misconduct, gender, sexual orientation, race, diversity and inclusion, and culture change. If a document cannot be made public for security reasons or otherwise, it should still be listed in the database to facilitate access by persons with the requisite clearance or approval.
• Recommendation 46:
  • With input from the academic community, the Queen's Regulations & Orders listed at article 5.2 of the DAOD 5062-1 should be reviewed and revised as necessary to facilitate research. In addition, the CAF should consider waiving the Social Science Research Review Board (SSRRB) ethics review of an external proposal that has already been approved by the Research Ethics Board of an academic institution.

Senior Leadership Selection Process:

• In October 2021, the CAF took its first steps to introduce new rigour and science to its promotion selection process. This sets the stage for an ongoing evolution of the CAF's processes for promotion and appointment to command to be more inclusive and to ensure those selected embody CAF ethics and values.
• The CAF has since begun using evidence-based selection tools for GOFO selection, providing greater insight into the character of officers entrusted to lead the Defence Team.
• As a first step, candidates on the GOFO selection boards complete three online psychometric assessments. The results of these assessments contribute to the member's overall score.
• Candidates who are recommended to the Minister of National Defence for promotion to, or within, the GOFO Cadre are subject to a post-selection confirmation step using what is known as a "360 degree" assessment tool. This is a process that collects feedback from multiple evaluators regarding an individual's leadership effectiveness.
• In addition, a third party conflict of interest interview is conducted and the observations incorporated into the recommendations.
• Research and consultation are underway to develop an evidence-based framework for character-based assessments that can be expanded to other leadership ranks in the coming years.

Public Online Database:

• Research in the areas outlined in Recommendation 45 take place across several different organizations within the Defence Team, including within Defence Research and Development Canada (DRDC), Director General Military Personnel Research and Analysis (DGMPRA), Chief Professional Conduct and Culture (CPCC), Canadian Forces Health Services Group (CFHS), Sexual Misconduct Response Centre (SMRC), CAF Virtual Library, and Canadian Defence Academy/Canadian Forces College (CDA/CFC).
• Similarly, policies that relate to these areas are distributed through L1s.
• Primary consultation work is intended to take place in FY 22-23, and it is assessed that an initial capability can be operationalized within FY 22-23.

CAF Ethos: Trusted to Serve:

• Trusted to Serve is a 60-page guide on how best to apply the CAF Ethos and its elements in daily military service.
• The first and most important principle found in Trusted to Serve is to respect the dignity of all persons. This foundational principle, as well as other Defence Team values and ethics, are now incorporated in the CAF Ethos in a way that more fully articulates what is expected from military personnel – with a strong emphasis on character, competence, and trust.
• Trusted to Serve builds upon Duty with Honour: The Profession of Arms in Canada. Duty with Honour remains valid at this time; however, it is also undergoing review with the intent to release an updated version of the entire publication in 2023.

Chief Professional Conduct and Culture:

• Established in 2021: Chief Professional Conduct and Culture (CPCC) works to unify and integrate all associated culture change activities across the Department of National Defence (DND) and the Canadian Armed Forces (CAF).
• It is the centre of expertise and single, functional authority for aligning Defence culture to ensure professional conduct meets the standards expected of the profession of arms and the Defence Team. Since its establishment, CPCC has:
  • Engaged with over 9000 Defence Team members to listen and learn from the lived experiences and expertise of our members;
  • Initiative a thorough and comprehensive review of the approach to basic training at the Canadian Forces Leadership and Recruit School;
  • Started development of a conduct and culture training and education framework. The framework will enhance education and awareness programs, related to conduct and culture;
  • Initiated the expansion of leadership support teams and coaching and unit command climate assessments;
  • Published a Respondent Reintegration Framework to provide guidance to leaders at all levels for the reintegration of a CAF member who is subject to allegations, investigations or findings related to a conduct deficiency; and
  • Published an Initiating Directive to incorporate the measurement and evaluation of inclusive behaviours within existing Defence Team personnel performance and management frameworks.

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Recruitment and Retention

Key Facts

Details

• Recruitment and Retention Recommendations:
  • Recommendation 20: The CAF should restructure and simplify its recruitment, enrolment and basic training processes in order to significantly shorten the recruitment phase and create a probationary period in which a more fulsome assessment of the candidates can be performed, and early release effected, if necessary.
  • Recommendation 21: The CAF should outsource some recruitment functions so as to reduce the burden on CAF recruiters, while also increasing the professional competence of recruiters.
  • Recommendation 22: The CAF should put new processes in place to ensure that problematic attitudes on cultural and gender-based issues are both assessed and appropriately dealt with at an early stage, either pre- or post-recruitment.
• House Standing Committee on National Defence: Recruitment and Retention Study:
  • On April 4, 2022, the House Standing Committee on National Defence launched its study on recruitment and retention in the Canadian Armed Forces. The Committee tabled its report on June 22, 2022.
  • In the report, the Committee lists 16 recommendations for National Defence, highlighting five broad themes in the areas of:
    1. Culture change,
    2. Diversity and inclusion,
    3. Improving the recruitment process,
    4. Supports to military families and easing the burden of service, and
    5. DND/CAF Ombudsman independence.
  • The Committee requested a Government Response, which National Defence tabled on October 20, 2022.
• Current Programs and Initiatives:
  • National Defence implements a broad range of proactive and targeted recruitment programs aimed at increasing the representation of women, visible minorities, and Indigenous Peoples in the Canadian Armed Forces. These programs and initiatives include:
    • Operation GENERATION, an ongoing mission to meet employment equity goals, reduce enrolment times, and modernize recruiting activities;
    • The Canadian Armed Forces Indigenous Entry Program, a three-week hands-on experience program for Indigenous Peoples who are considering a career in the CAF;
    • The Aboriginal Leadership Opportunity Year provides Indigenous participants with exposure to the CAF military and academic disciplines. Enrolled and paid as Officer Cadets, participants experience university-level educational and leadership opportunities at the Royal Military College in Kingston, Ontario;
      • It is the only Indigenous program focused on developing potential officers. Participants are enrolled into the Regular Force as Officer Cadets;
  • Multiple six-week paid Primary Reserve Indigenous Summer Programs, which integrate cultural teachings with military training.
    • Participants who successfully complete a program are granted the CAF Army Reserve Basic Military Qualification.
• To improve retention, work is also underway to improve the CAF's employment model and provide flexible career options, such as:
  • reducing the burden of relocation through the Seamless Canada Initiative;
  • component transfer (Regular Force to Primary Reserve and vice versa);
  • flexible or remote work policies; and
  • modernizing the nature of full-time and part-time employment.
• Other Diversity and Inclusion Initiatives:
  • Dress Instructions Update – this has eliminated binary uniform and appearance choices, allowing CAF personnel the freedom to choose the uniform that makes them most comfortable.
  • Inclusive Ranks in French – French versions of all designations of ranks now have official Gender Inclusive equivalents.
  • Women's Health Framework – this aims to enhance women's health care and increase knowledge of women's health issues and topics within the military.
  • Post-natal Care – the CAF has released its first Nursing and Pumping Policy, which requires all Commanding Officers to establish a lactation plan to support their members.
  • Compassionate Leave Policy – this allows members to request new types of leave to account for pregnancy loss, family violence, and parents of young victims of crime, for example.
  • Training Needs Assessment – the most recent Training Needs Assessment addressing professional conduct was conducted in 2020. Results are being reviewed to develop an implementation plan.
  • Women in Force Program – this program helps raise awareness about life in the CAF and gives women the opportunity to speak with current CAF members while experiencing different facets of a military lifestyle. Plans to run the program were put on hold due to the pandemic. The intent is to reinvigorate the program prior to the end of the 2022/23 fiscal year.
• National Defence and Canadian Armed Forces Guiding Documents:
  • On October 6, 2022, National Defence released the CAF Retention Strategy, which aims to improve the experiences of CAF members and their families holistically, so they feel supported and empowered to continue a challenging and rewarding career in uniform.
    • The strategy is an enabler of culture change which the CAF prioritizes by engaging in measures that ensure we are prepared to continuously identify and address the needs of all our members.
  • On October 6, 2022, the Chief of the Defence Staff and Deputy Minister also issued a Directive for CAF Reconstitution. This directive will set in motion a significant body of work that will provide direction on the activities required to overcome deficiencies that are hampering the composition and readiness of the CAF.

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Training

Key Facts

Details

• Recommendations related to training:
  • Recommendation 15: The ownership of training and prevention of sexual misconduct should be transferred to the CPCC. The CPCC should continue to consult the SMRC on the development of program content, delivery and methods of evaluation for sexual misconduct, but the SMRC should not be engaged in actual program delivery or monitoring.
  • Recommendation 23: The CAF should equip all training schools with the best possible people and instructors. Specifically, the CAF should:
    • Prioritize postings to training units, especially training directed at new recruits and naval/officer cadets;
    • Incentivize and reward roles as Canadian Forces Leadership and Recruit School (CFLRS) instructors, and other key instructor and training unit positions throughout the CAF, as well as the completion of instructor training, whether through pay incentives, accelerated promotions, agreement for future posting priority, or other effective means;
    • Address the current disincentives for these postings, such as penalties, whether real or perceived, for out-of-regiment postings during promotion and posting decisions; and
    • Ensure appropriate screening of qualified instructors, both for competence and character.
  • Recommendation 24: The CAF should assess the advantages and disadvantages of forming a new trainer/educator/instructor occupation within the CAF, or a specialty within one of the human resources-related occupations, in order to create a permanent cadre of skilled and professional educators and trainers.
  • Recommendation 27: The CAF should fully implement the recommendations as described in the Deschamps Report on training related to sexual offences and harassment.

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Canadian Military Colleges (CMCs)

Key Facts

Details

• Recommendation 28
  • The Cadet Wing responsibility and authority command structure should be eliminated.
• Recommendation 29
  • A combination of Defence Team members and external experts, led by an external education specialist, should conduct a detailed review of the benefits, disadvantages and costs, both for the CAF and more broadly, of continuing to educate ROTP cadets at the military colleges. The review should focus on the quality of education, socialization and military training in that environment. It should also consider and assess the different models for delivering university-level and military leadership training to naval/officer cadets, and determine whether the RMC Kingston and the RMC Saint-Jean should continue as undergraduate degree-granting institutions, or whether officer candidates should be required to attend civilian university undergraduate programs through the ROTP.
  • In the interim, the CPCC should engage with the RMC Kingston and the RMC St-Jean authorities to address the long-standing culture concerns unique to the military college environment, including the continuing misogynistic and discriminatory environment and the ongoing incidence of sexual misconduct. Progress should be measured by metrics other than the number of hours of training given to cadets. The Exit Survey of graduating cadets should be adapted to capture cadets' experiences with sexual misconduct or discrimination.
• Addressing Recommendation 29
  • By moving forward on this recommendation, we have committed to conducting a detailed review of the benefits, disadvantages, and costs, both for the CAF and more broadly of continuing to educate Regular Officer Training Program (ROTP) students at the military colleges.
  • As fully-invested stakeholders, the Canadian Defence Academy, and the military colleges are contributing to the analysis and solution efforts where and as appropriate.
  • Working with the CPCC team and Director General Military Personnel Research and Analysis (DGMPRA), we will ensure a nested approach, fully aligned with other work in DND/CAF including the recently revised CAF Ethos, Trusted to Serve, completed by the military colleges' core values.
  • Recent initiatives instituted at the military colleges, including on resilience, equity, diversity and inclusion, Indigenous-related learning, and culture change align with Madame Arbour's recommendations.
  • We will continue to look very closely at our programs and activities to identify how to make changes that will support the recommendations.
  • Changes made in relation to the IECR will be done with consideration to how women, men, and gender-diverse people will experience them.
• Programs to Address Culture Concerns
  • There has been a gradual increase in measures to assure that the proper pre-requisite training, selection, supervision, and mentorship of student leaders.
  • Note that graduates from the military colleges will be commissioned officers immediately upon graduation, with lawful authority to command on operations and at their home units – the responsibilities undertaken at the military colleges are of much smaller scope and take place in an environment with considerably more supervision.
• Cadet Chain of Responsibility (CCoR)
  • The Cadet Wing Chain of Responsibility (CCoR) is comprised of a Cadet Wing Headquarters led by the Cadet Wing Commander (CWC), a fourth year Cadet who exercises responsibility over the Cadet Wing (CW). At RMC Kingston, the Cadet Wing is comprised of four divisions, each led by a fourth year Cadet Divisional Leader (CDL). In RMC Saint-Jean, there are a total of four squadrons in the Cadet Wing.
  • The appointment of students to positions of peer leadership is a longstanding practice adopted by all service academies in partner and allied nations.
  • These appointments vary from a single task, to 24 hours, to a week, and up to a semester for greater experience, enhanced stability, and sustained learning opportunities. Students at Canadian Military Colleges are young adults enrolled in the military, whether as reservists or in the Regular Force.
  • Currently, all appointees in the CCoR must be successful graduates from Basic Military Officer Qualification Part 2 (BMOQ 2). BMOQ 2 is designed as the CAF's qualification for small group leadership and, for most officer occupations, is the last point in their first developmental period where leadership is formally taught or assessed.
  • At Canadian Military Colleges, all officer and naval cadets are mentored by trained CAF members when in CCoR roles and, above the small group level (platoon/flight), the cadets are provided with one-on-one mentorship to enable experiential learning and mitigate challenges when operating above the initial scope of their BMOQ 2 formal training.
  • Significant changes continue to be made to optimize the CCoR process, including:
    • Selection, with a focus on GBA+ and equity;
    • Diversity and inclusion considerations;
    • Training requirements; and
    • Mentoring.
  • This includes ensuring that only naval and officer cadets who have graduated from the BMOQ 2 course, and therefore have the benefit of both initial education and proven practical training on leadership, will be employed in leadership positions.
  • It also means ensuring that all student-facing military positions are filled, and that the staff, as well as senior non-commissioned members attending the colleges, are actively engaged in mentorship of officer and naval cadets in positions of responsibility.
    • For instance, CMCs are arranging for Master Warrant Officer and Chief Warrant Officer students of the Non-Commissioned Member Executive Professional Development Program to each be assigned to a squadron of cadets, with a view to delivering targeted mentoring and coaching.

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Complaints and the Grievance Process

Key Facts

Details

• Recommendation 10
  • Grievances related to sexual misconduct should be identified, prioritized and fast-tracked through the grievance system at both the Initial Authority (IA) and Final Authority (FA) levels.
  • The Vice Chief of the Defence Staff or their specific delegate should manage the process for all grievances related to sexual misconduct, sexual harassment or sexual discrimination or involving an allegation of reprisal for reporting, or otherwise disclosing sexual misconduct, sexual harassment or sexual discrimination. For such grievances, the Canadian Forces Grievance Authority should designate an IA with subject matter expertise, and who is outside the grievor’s chain of command.
  • QR&O 7.21 should be amended to make it clear that grievances related to sexual misconduct, sexual harassment and sexual discrimination should be mandatorily referred to the MGERC.
  • The CDS should remain the FA and be required to dispose of the matter within three months.
  • The National Defence Act gives CAF members the right to make a formal complaint called a "grievance" about any decision, act or omission in the administration of the affairs of the Canadian Forces for which no other process for redress is provided under the National Defence Act (NDA).
  • The grievance process is a formal approach of resolving a matter for a grievor, and results in a decision that ensures a fair application of policy for a fair outcome for the grievor.
  • Individuals may only submit a grievance while they are a serving member in the CAF. The grievor must state in writing to their Commanding Officer what they seek as redress.
  • A grievance must be submitted within three months after the day on which the grievor knew or ought reasonably to have known of the decision, act, or omission. CAF members can submit a grievance and attempt informal resolution at the same time, and if successful, request to withdraw the grievance.
  • A grievance may be decided by an IA. An IA is obligated to provide a decision within four months. They may ask for an extension if the matter is complicated. Time limitations apply to both the member and the IA.
  • For all grievances, the IA is required to render a decision within 120 days and, if they do not, the grievor has the option to agree to an extension or choose to request that it be referred to the FA. The FA will assess the grievance and, as recommended by Madame Arbour, will refer all grievances related to sexual misconduct, sexual harassment or sexual discrimination to the Military Grievances External Review Committee (MGERC).
  • At this time, there is no time limit on the MGERC to provide their findings and recommendations to the FA, nor is there a time limit for the FA to render a decision. Depending on the complexity of the grievance and the capacity of the MGERC and FA to conduct their investigations and analysis, the decision may take months or even years.
  • The continued implementation of the CDS Directive on CAF GS enhancements and other initiatives will continue to improve the time it will take for the MGERC and Canadian Forces Grievance Authority (CFGA) to assist the FA in rendering their decision on all grievances, to include those related to sexual misconduct, sexual harassment and sexual discrimination.
  • The only further appeal is to the Federal Court through judicial review.
• Recommendation 7
  • The CAF should not file any objections based on section 41(1)(a) of the CHRA, and should allow the CHRC to assess any complaint for sexual harassment, or for discrimination on the basis of sex, regardless of whether the complainant has exhausted internal complaint mechanisms.
  • The Minister should seek assistance from her colleagues to ensure that the CHRC and the Canadian Human Rights Tribunal (CHRT) are adequately resourced to assess complaints against the CAF and hear them in a timely manner.
• Recommendation 8
  • The CHRA should be revised to permit the award of legal costs and to increase the amount in damages that can be awarded to successful complainants. To assist in the implementation of this recommendation, the DM should bring this matter to the attention of the appropriate authority on an immediate basis.
• Recommendation 9
  • Any complaint related to sexual harassment or discrimination on the basis of sex or involving an allegation of retaliation for reporting sexual harassment or discrimination on the basis of sex should be first directed to the CHRC, should the complainant so choose. The CAF should no longer object to the jurisdiction of the CHRC on the basis that internal remedies, including its grievance process, have not been exhausted.
• Human Rights Complaints in the Canadian Armed Forces
  • The Directorate of External Review works with the CHRC and the CHRT to respond to human rights complaints against the CAF. Complaints may be submitted by serving personnel or members of the Canadian public.
  • The CHRC complaint process is separate from the internal processes in the CAF. The Commission can decide not to deal with a complaint where it is of the view that another grievance or review process is reasonably available to the complainant, and that they should exhaust it. This could include the CAF’s internal integrated conflict and complaint management (ICCM) resources or recourse structures.
  • Complaints are submitted to the CHRC, and the CAF receives complaints from the CHRC and provides a response directly to them. The Commission will then address the complaint in the manner it sees as the most appropriate course based on the information provided.

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Universality of Service

Key Facts

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Terms and Definitions

Key Facts

Details

• Recommendation 1:
  • The formal definition of "sexual misconduct" in the DAOD 9005-1 and other policies should be abolished.
• Recommendation 2:
  • Sexual assault should be included as a standalone item in the definitions section of the relevant CAF policies, with the following definition:
    sexual assault (aggression sexuelle): Intentional, non-consensual touching of a sexual nature.
  • The policies should then refer to the Criminal Code as the applicable law regarding sexual assaults.
• Recommendation 3:
  • The formal definition of "sexual misconduct" in the DAOD 9005-1 and other policies should be abolished.
• Recommendation 4:
  • The current definition of personal relationship should remain:
    A personal relationship is: An emotional, romantic, sexual or family relationship, including marriage or a common-law partnership or civil union, between two CAF members, or a CAF member and a DND employee or contractor, or member of an allied force.
  • The concept of "adverse personal relationship" should be abolished. All CAF members involved in a personal relationship with one another should inform their chain of command.
  • Commanders should be given appropriate guidance as to how to handle the situation presented to them. It could range from doing nothing, to accommodating the relationship through available measures, or, if need be, ensuring that the members have little professional interaction with each other. There are, of course, a whole range of intermediate measures that may be appropriate to address the best interests of the organization, the parties, and other stakeholders.
  • Should an undisclosed personal relationship come to light between members of different rank, or otherwise in a situation of power imbalance, there should be a rebuttable presumption that the relationship was not consensual. Any negative consequences should be primarily visited on the member senior in rank or otherwise in a position of power.

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