FRAG O 004 to CDS Op Order – Operation HONOUR

5 March 2018


  1. CAF Progress Report Addressing Inappropriate Sexual Behaviour dated 28 April 2017
  2. Strong, Secure, Engaged - Canada’s Defence Policy June 2017
  3. Operation HONOUR OPORD dated 14 August 2015
  4. FRAG O 002 To CDS Op Order – OPERATION HONOUR dated 09 December 2016
  5. FRAGO OO3 To CDS Op Order – OPERATION HONOUR – CANFORGEN 002/17 CMP 002/17 301853Z DEC 16
  6. StatCan Survey: Sexual Misconduct in the CAF dated 28 November 2016
  7. DND/CAF Code of Values and Ethics


  1. General. The first phase of Operation HONOUR involved increasing awareness of a pervasive sexualised culture at odds with the CAF’s espoused military ethos and ethical doctrine. Results within the Statistics Canada (StatCan) survey demonstrated that the CAF has had success in increasing awareness and communicating intent to re-align its culture to its ethos. The CAF has expended a great deal of effort to implement initiatives to support victims and continues to focus on this area through research, victim/survivor engagement, enhanced and expanded support services, program development and policy changes. The third Operation HONOUR Progress Report at ref A provided a comprehensive overview of progress from 1 July 16 through 31 March 17 and updates on specific initiatives have been provided since the last report.
  2. This FRAGO signals a transition for Operation HONOUR. A CDS Initiating Directive will follow that will institutionalize the mission to eliminate HISB.  This directive will establish a permanent organization to oversee the effort and structure and to lay down the performance measurement framework, the governance, the establishment, and will commit the resources required to effect culture change within our own proud institution.
  3. This FRAGO supports the implementation of the Defence Policy: Strong, Secure, Engaged (SSE) initiatives related to: recruitment; training and retention; “a Culture of Leadership, Respect and Dignity”; Leveraging Canada’s Diversity; Supporting Health and Resilience; and Reinventing Transition. 


  1. No change.


  1. CDS Intent. Operation HONOUR remains my top priority and it is embedded into SSE. I expect all leaders to continue providing their full support and resources necessary to achieve the required culture change and achieve the mission. This FRAG O places greater emphasis on the development of a coordinated CAF effort to refocus, reinvigorate, and reinforce Operation HONOUR and defining the strategic outcomes required to create lasting institutional change and measure the effectiveness of Operation HONOUR across the institution. The tasks and next steps of this FRAG O will set the conditions for long-term change and success with this operation and other important personnel initiatives in SSE.
  2. Concept of Operations. Retention of members affected by HISB. While we have seen positive progress of Operation HONOUR across a wide spectrum, it has come to my attention that there have been CAF victims of sexual trauma who are subject to medical release because they are permanently unable to meet the minimum operational standards related to Universality of Service due to their Medical Employment Limitations attributable to HISB. Some of these victims may have been medically released prior to the conclusion of police investigations or judicial proceedings related to the cause of the trauma, including some that still required prolonged treatment, institutional care or medical observation.  In addition to the CANFORGEN at reference H, specific direction regarding retention of CAF members affected by HISB will follow shortly in a CDS Directive.
  3. Further institutionalising of Operation HONOUR. Additionally, I intend to move Operation HONOUR from a strategic response to an institutionalized activity that integrates the extensive personnel policy changes stemming from SSE, and puts primacy on the dignity of the individual. This will begin with the reconfiguration and realignment of the CAF Strategic Response Team on Sexual Misconduct (CSRT-SM) to ensure Operation HONOUR has an enduring function supported by a permanent organization within the CAF. Concurrently, the development of a more deliberate approach to sustain culture change will begin to reinforce the foundational principles of Duty with Honour. It will also and incorporate all of our other initiatives on diversity, inclusivity, health and wellness to ensure we have a culture of leadership, respect, and honour, and one that values our people, encourages resilience, and supports and cares for all members of the CAF.
  4. SSE identifies several initiatives that are directly related to the work of Operation HONOUR under the section “Promoting a Culture of Leadership, Respect and Honour” that include victim support, implementation of the External Review Authority (ERA) recommendations, ensuring a workplace free from harassment and discrimination and continued transparent reporting on our efforts to eliminate HISB. However, there are many other SSE initiatives that also relate to the work of Operation HONOUR across the themes of Well-Supported, Diverse, Resilient People and Families and Total Health and Care for our People. Diversity, inclusivity, recruiting and retention, health and resilience, encouraging members to raise health concerns and seek appropriate help when they need it and ensuring a welcoming and healthy work environment are all interwoven into the culture change that we seek through Operation HONOUR.
  5. Sequencing. The CAF will now shift to institutionalising Operation HONOUR. Moving the CSRT-SM from CMP to the VCDS Group is the first step in this next phase. During the transition, a CDS Initiating Directive will be developed that fully captures the next steps toward a culture change model for the CAF and a Campaign Plan to enable, resource and implement the necessary changes.
  6. Critical Functions.
    1. Culture Change. The StatCan Survey along with the findings of internal research projects and the “Your Say Survey” results of 2016 and 2017 have provided valuable insight into the prevalence of sexual misconduct, spectrum of incidents, CAF member perceptions about progress and effectiveness of Operation HONOUR and the areas requiring additional focus, including victim support services. The Operation HONOUR mission to eliminate HISB cannot be achieved without changing CAF culture. The CAF needs to implement a proven (evidence-based) Culture Change Strategy to support Operation HONOUR (and several of the other SSE initiatives). This will require continued strategic leadership and coordinated effort across the institution through tasks outlined in Annex A of this order as well as continued research and consultation/engagement with subject matter experts.
    2. Performance Measurement. The success of Operation HONOUR is also dependent upon our ability to measure and evaluate effectiveness and progress through specific; measurable; achievable; realistic indicators, objectives, goals and targets including timelines. Detailed planning and the development of a performance measurement framework has been initiated by the CSRT-SM but this must now be expanded to encompass the CAF at all levels to ensure the CAF moves beyond simple measures and assessments of performance to ensure every Operation HONOUR activity has clear measures of outcomes and overall effect on the elimination of HISB across the institution. Operation HONOUR activity will be aligned with the Departmental Results Framework (DRF) and SSE initiatives and will be reported on based on the measurement mechanisms.
    3. As part of the evolution of Operation HONOUR, the CSRT-SM will administer the Operation HONOUR Tracking and Analysis System (OPHTAS).  Once at FOC, the OPHTAS will be the CAF-wide mechanism for HISB incident reporting, tracking, and oversight.  It is a protected B system with limited access being granted to select administrators and users within each of the respective Commands/L1s.  OPHTAS generates a variety of reports and will allow Commanders at all levels to remain fully aware of the HISB incidents within their respective chains-of-command.
    4. Institutionalization of Operation HONOUR. In order to ensure an enduring, coordinated, and sustained effort in the elimination of HISB in the CAF, we will shift from the original “response team” concept to an enduring, more permanent organization shepherding these efforts. This will lead to a change from issuing direction through FRAGOs to a longer term campaign plan and matrixed approach. As of this order, VCDS will lead the transition of CSRT-SM through the establishment of a permanent organization with a more direct reporting relationship to me. I have directed that the CSRT-SM will transition from CMP to be re-established within the VCDS Group with the transition to be completed by Apr 2018. 
    5. Operation HONOUR Governance. An initial governance model was developed to engage key stakeholders through an Operation HONOUR Enabling Team but this is serving as a working group and there is a «need to improve planning, formalize coordination, assess and evaluate policies and programs, and ensure that activities are effectively coordinated across the institution through a more strategic body prior to AFC or AFCX.  An Operation HONOUR Steering Committee composed of Deputy Commanders and chaired by DG CSRT-SM will be established to provide initial strategic guidance, oversight and coordination for Operation HONOUR and the Defence Team Human Resources Committee will be used as the body for collaboration and discussion of those areas that may be common to CAF members and civilian personnel related to respectful and healthy workplace programs, policies, and resources including support and training.
  7. There is considerable planning required to develop the transition plan and design the enduring organization and supporting governance, direction and PMF. L1s can expect my Initiating Directive to follow later, which will include taskings for interim support from the Warfare Centres and their planning cells. I will be calling upon your expertise and know that you will contribute to this critical work that will ensure long term success.  Furthermore, it is intended that a more formal governance construct for the SMRC be defined and captured through a formal instrument, to ensure a coherent approach to victim support services being offered to CAF members is achieved. 
  8. Main Effort. The four lines of effort (LOE) developed for Operation HONOUR on 14 August 2015 – Understand, Respond, Support, and Prevent – have served well to date. However, there is a need for the CAF to review existing operational designs to ensure a long-term strategic institutional plan and clearly articulate measurable, short, medium, and long-term objectives for Operation HONOUR. The focus and reinvigoration of Operation HONOUR will set the conditions for the enduring change required to eliminate HISB. This will be achieved through the development of a formal campaign plan, which will define Operation HONOUR objectives and ensure that activities are fully coordinated and resourced. This campaign plan will replace the previously published “CAF Action Plan” issued in April of 2015 as the initial response to the Deschamps Report. I expect the L1s to lead the tasks identified herein and provide me with regular updates on their future plans and progress to date.
  9. End State. No change.
  10. Groupings and Tasks. See Annex A. Tasks listed in this Annex are intended to clarify and supersede the previous allocation of tasks issued under Operation HONOUR.
  11. Reports and Returns. L1s will be required to report all Operation HONOUR related incidents and activities IAW the following:
    1. Progress Reporting. Provide CDS a report of progress for the period of 1 Apr through 30 Sep 17, if not already submitted, NLT than one month from the date of this order and another for the period from 1 Oct 17 through 31 Mar 18 no later than 15 May 18.
    2. Reporting of HISB Occurrences: IAW Ref D Annex B.
    3. Routine reporting. All L1s are to consider leveraging the CDS Weekly Operations brief, as detailed in Annex A, IOT provide senior leadership situational awareness on Operation HONOUR initiatives, progress or issues within their AOR.
    4. Monthly Statistical Reporting. In addition to monthly reporting of HISB Occurrences as listed in Ref D Annex B, specific L1s will report statistical information related to Operation HONOUR IAW Annex A.
  12. Key Dates and Timings. Timings and Dates associated with specific tasks and deliverable are listed in Annex A. Other dates and timings remain unchanged.

Concept of support

  1. Force Allocation. No change.
  2. Task Coordination. No change.
  3. Public Affairs Posture. No change.
  4. CAF Member Support Services. No change.
  5. Sexual Misconduct Response Centre (SMRC). The SMRC expanded hours to 24/7 operations in July 2017 to ensure CAF members have access to support services at anytime from anywhere in the world and now have their first Charter.  The SMRC continues to work closely with key stakeholders to enhance victim support services and is working towards a more effective and efficient continuum of care and case management.


  1. Operation HONOUR is an enduring CAF operation; however, policy and programme support aspects involve close cooperation with the Department.  To this end, the DM and I will continue to work closely together to achieve the Government of Canada objectives assigned in SSE. 
  2. Supported Commander. VCDS will become the supported commander upon completion of the transfer of the CSRT-SM from CMP and the reporting relationship of the CSRT-SM will continue to evolve to steady state in a new organization.  Direct liaison is authorized with VCDS, CMP, SJS and other L1s as required for planning and policy development.
  3. Supporting Commanders/Group Principals. All other commanders and group principals.


  1. DG CSRT-SM remains the central coordinator for Operation HONOUR and remains responsible for the development of a coordinated CAF strategy, updated action plan, as well as associated policies, education, training and support programmes required to support this effort.  The CSRT-SM will distribute relevant material through a number of means including the Respect in the CAF mobile app and an enhanced internet and intranet webpage: Operation HONOUR.
  2. Internal and external communication and stakeholder engagement on this topic remains vital to the success of this operation. As such, a revised strategic communications plan is being further developed to ensure we continue to reach these stakeholders and will be delivered SEPCOR.


J.H. Vance

Annex A: Tasks and Support Requirements

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