Engaged in the World: A systemic investigation into the administration of postings, assignments and employments of Defence Team personnel outside of Canada
December 2020
As of June 2020, there were over 4,000 Canadian Armed Forces members, Department of National Defence employees, Staff of the Non-Public Funds and their families posted to 70 countries OUTCAN.
While there is a perception that an OUTCAN posting is highly desirable, there are stressors and challenges unique to this experience.
Progress report on the status of recommendations
October 2024
- 13 recommendations made
- 13 recommendations accepted
- 1 recommendation implemented
- 12 recommendations partially implemented
Recommendation 1
By September 2022, the Canadian Armed Forces, Department of National Defence and Canadian Forces Morale and Welfare Services ensure that:
1.1 Any gaps in the resourcing of support personnel within the OUTCAN Programme are identified and addressed; and
1.2 All support personnel and stakeholders involved in the OUTCAN Programme are well informed of their responsibilities, and that mechanisms are put in place to validate the effectiveness of this process.
Recommendation 1 Status: Partially Implemented
Recommendation
Since we published our report in 2020, the Department has taken considerable steps to identify and address gaps in the resourcing and training of support personnel within the Outside of Canada (OUTCAN) Programme.
In terms of resources, the Vice Chief of Defence Staff (VCDS) and Canadian Forces Morale Welfare Services (CFMWS) signed a Service Level Agreement in February 2022, to ensure the staffing of qualified personnel and the expansion of support for all who are posted OUTCAN. In addition to creating four (4) new support and coordination positions, the Department is identifying resourcing needs across various OUTCAN support units. These positions will increase information sharing and coordination as well as provide additional support services for those OUTCAN once they are staffed. In addition, the VCDS launched a project to digitize the OUTCAN administration and has contracted a team of Information Management/Information Technology (IM/IT) specialists to build digital administration tools that will help standardize processes, enable members to generate their own administrative transactions, and allow analytics to be conducted to help identify further gaps in administrative support.
In terms of training, VCDS ensures that authorities involved in the OUTCAN Programme can access training throughout the year through the Foreign Service Support O365 SharePoint Site. These authorities include Career Managers, OUTCAN Unit Records Support (URS) Leadership, OUTCAN Human Resources Administrator (HRA) and Financial Support Administrator (FSA) staff. These training courses allow OUTCAN Programme staff to educate CAF members on support tools and the unique requirements of OUTCAN benefits and allowances. VCDS is developing plans to enable OUTCAN Coordination & Support to become the Center-of-Excellence (COE) for OUTCAN Foreign Service Benefits Administration. This includes building formal training packages for various authorities involved in the OUTCAN Programme. In April 2024, CFMWS updated the Human Resources Policy (HR POL) 32 – Non-Public Funds (NPF) Outside Canada (OUTCAN) Relocation and Foreign Service Benefits Policy which outlines policy definitions, eligibility, entitlements, conditions, processes for various situations, and the authorities accountable for various aspects of the policy. (https://cfmws.ca/CFMWS/media/images/documents/8.0 About Us/Employee Content/HR POL EN/HRPOL-32-OUTCAN.pdf)
While there are some highlighted achievements, VCDS and CFMWS (https://cfmws.ca/outcan-global) still have work to complete. We also require information from the Department of National Defence’s Foreign Service Programme to determine their progress with this recommendation. We will continue to monitor these efforts to ensure that mechanisms and resources are put in place so that support personnel and key authorities are well informed of their responsibilities.
Recommendation 2
By September 2022, the Canadian Armed Forces, Department of National Defence and the Canadian Forces Morale and Welfare Services develop and implement a communication plan. The plan should assess and address communication gaps in all phases of the process, including local information gaps, to increase awareness of the OUTCAN Programme and ensure that all Defence Team personnel are adequately prepared for their OUTCAN posting.
Recommendation 2 Status: Partially Implemented
Recommendation
The Vice Chief of Defence Staff (VCDS), the Canadian Forces Morale and Welfare Services (CFMWS), the Assistant Deputy Minister (Human Resources - Civilian)’s Foreign Service Program (FSP) team have taken strides towards improving the awareness of the Outside Canada (OUTCAN) Programme.
In November 2021, FSP launched a website that contains general information about its programme for civilian employees. The website, which is only accessible on the Defence Network (http://hrciv-rhciv.mil.ca/en/foreign-service-program.page), contains links to relevant policies and directives, frequently asked questions, service standards, contact information for enquiries and a resource tool such as a one-page overview on what the programme offers to civilian employees being posted OUTCAN.
VCDS’s OUTCAN Coordination & Support group is collaborating with Canadian Forces Support Units in the United States and Europe to consolidate programme information. This will enable all members posted OUTCAN to access the same information related to programme management, foreign service benefits, claim forms, reports, policies, passports and visas, health and safety and standard operating procedures. Welcome packages for members and families posted in the United States and Europe already exist. At the time of this follow-up in May 2024, the OUTCAN Coordination & Support group was working with CFMWS to develop a welcome package for members and families posted at locations outside of the United States and Europe. This will provide members and their families with information that is unique to their posting location and better prepare them for their experience. While these welcome packages are being created, the VDCS OUTCAN Coord & Support group has begun improvements to their welcome briefs. This will better educate members on policies and processes related to allowances and benefits. These welcome briefs are emailed to each member when posting messages have been received. However, no timelines were provided for these activities.
CFMWS has identified products and resources to help members, employees and their families find out more about their posting locations. Regular communication with VCDS OUTCAN personnel and various chains of commands outside of Canada has been established. This will ensure that Staff of the Non-Public Funds, Canadian Forces (SNPF, CF) employees are strategically positioned to provide both virtual and in-person counselling services to OUTCAN members' families on information they need abroad. Military Family Services (MFS) team created "one-pagers" using service delivery experience and feedback from community members to support social workers and staff involved at the screening and posting stages. This will enable them to provide families with the information they need to make better informed decisions. CFMWS has also incorporated OUTCAN-specific information for members and families on their websites (https://cfmws.ca/).
There have been many positive steps taken to increase awareness of the OUTCAN Programme and help prepare Defence Team personnel and their families prepare for their OUTCAN posting. However, FSP, VCDS, and CFMWS have not produced communication plans that outline their communication objectives, target audiences, planned strategies or approaches, key messages, timelines, and evaluation metrics. Without a plan, it is difficult to ensure FSP, VCDS and CFMWS will streamline their communication efforts and create opportunities for continuous improvements to the OUTCAN experience for everyone involved.
Recommendation 3
By January 2023, the Canadian Armed Forces conduct:
3.1 A comprehensive comparative review to identity and address all sections of the Military Foreign Service Instructions that are a duplication of the Foreign Service Directives; and
3.2 A review to validate the sections in the Instructions that address specific military requirements or mandate.
The results of these reviews should be compiled and submitted to the approving authority.
Recommendation 3 Status: Partially Implemented
Recommendation
The Director General Compensation and Benefits (DGCB) completed a review to identify and address issues of inconsistencies in all sections of the Compensation and Benefits Instructions (CBI) Chapter 10, Foreign Service Instructions, including those that address specific military requirements or mandates. Treasury Board Secretariat (TBS) released the latest version of CBI Chapter 10 in April 2024 which contains these changes. https://www.canada.ca/en/department-national-defence/corporate/policies-standards/compensation-benefits-instructions/chapter-10-foreign-service.html#sec-10-2-01. While inconsistencies have largely been addressed, DGCB indicated that there are outstanding administrative errors that require correction (errors that are related to numbering and grammar). A request will be submitted to TBS in 2024 to amend those errors; however, no specific timelines were provided to our office. We will continue monitoring progress on this recommendation.
Recommendation 4
By January 2023, the Canadian Armed Forces strengthen oversight of the OUTCAN Programme, by:
4.1 Enhancing data integrity and quality controls moving forward;
4.2 Establishing a formalized process to capture lessons learned to improve business operations;
4.3 Improving overall coordination among the stakeholders to encourage the sharing of information and best practices; and
4.4 Establishing a performance measurement strategy to monitor and assess the administration of the OUTCAN Programme.
Recommendation 4 Status: Partially Implemented
Recommendation
In July 2023, the Vice Chief of Defence Staff (VCDS) launched a digitization project, including a digitized Outside Canada (OUTCAN) screening form and a centralized database for OUTCAN postings coordination. This is hosted on the Foreign Service Support O365 SharePoint Site. VCDS will use metrics to allow for better data integrity, quality control and evaluation, and developers are expecting to leverage the Defence 365 portal to share results. However, many of these efforts to conduct analytics are still under development. According to VCDS, there are several other existing databases containing relevant information that have not yet been merged into the single platform. The digitization project will be further expanded in this regard to allow integration of the database, along with all relevant processes, into a customizable dashboard that can be used by all levels of management and support.
VCDS has established a working group which meets monthly to discuss issues and exchange information related to the OUTCAN Programme. However, they have not indicated how this information will be used to improve processes or measure performance moving forward. We will continue monitoring progress on this recommendation.
Recommendation 5
By January 2022, the Canadian Armed Forces establish support for screening that is easily accessible to Canadian Armed Forces members and their families, by:
5.1 Making the screening form and overall process fully digitized;
5.2 Establishing formal service standards for all steps of the screening process; and
5.3 Standardizing and communicating the process for Canadian Armed Forces members and their families for obtaining their passports and visas.
Recommendation 5 Status: Partially Implemented
Recommendation
Vice Chief Defence Staff (VCDS) confirmed that the first iteration of the digitized screening process was completed. The screening process uses the Microsoft Power Platform suite and Defence 365 (D365) and was designed to simplify all the steps required for the administrative preparation of Canadian Armed Forces members and their families transferring abroad. It was first piloted during Active Posting Season (APS) 2023 and used in the screening of more than 850 members and was later announced in the Maple Leaf new publication in February 2024 (https://www.canada.ca/en/department-national-defence/maple-leaf/defence/2024/01/outside-canada-screening-process-improved-application.html). Training has been developed to guide members and their supervisors in the navigation of Microsoft Office SharePoint, Power Apps as well as on how to complete the screening application. However, this training is only accessible on the Defence Network (https://018gc.sharepoint.com/:b:/s/ORG-6594-0001/Eb8pvjFhN9VJufeI2FzeFdIBGqAjeWhlyjjW-K6sCE79oQ?e=bDr9aj). VCDS provided no information on establishing formal service standards for various steps of the screening process.
While the progress made on this recommendation is significant, we will continue to monitor efforts made to establish formal service standards for all steps of the screening process. With regards to sub-recommendation 5.3, we will be monitoring progress towards better communication by OUTCAN Coordination and Support to members when obtaining passport and visas. While the establishment of standards and processes for obtaining passports and visas is outside the control of the DND/CAF, VCDS has the responsibility to assist members in the application process, and the provision and safekeeping of an issued passport.
Recommendation 6
By April 2022, the Canadian Armed Forces enhance performance measurement and quality controls for the OUTCAN relocations administered by the relocation service provider, by developing systems to track and analyse:
6.1 The number of inaccuracies in information being provided to members; and
6.2 Detailed trends in adjudication requests and associated decisions.
This data should be used to make evidence-based improvements to day-to-day service provision and to future relocation policy changes.
Recommendation 6 Status: Partially Implemented
Recommendation
The Director General Compensation and Benefits (DGCB) reports that the Director Compensation and Benefits Administration (DCBA) continues to host monthly meetings with OUTCAN Support Units to discuss ongoing files, issues, and policy updates. By keeping the lines of communication open with OUTCAN Support Units, DGCB indicates that a better understanding and application of Foreign Service benefits is facilitated. In support of reducing the number of inaccuracies in information being provided to members, DGCB plans to create and implement a more structured performance measurement framework for the Relocation Services contract by December 2025.
In addition, DGCB has launched the Operation Software (OPSOFT) to manage all adjudication requests requiring DCBA review. As of 1 April 2024, all files must be submitted via OPSOFT, available only on the Defence network. Anyone without access to the Defence network can get assistance from a CAF Relocation Coordinator. The Canadian Forces General Messages (CANFORGEN) 097/24 – Launch of New Services on OPSOFT Platform (http://vcds.mil.ca/apps/canforgens/default-eng.asp?id=097-24&type=canforgen), was published in July 2024 (available only on the Defence network or the Canadian Forces application). According to DGCB, once enough information is generated in the new database from the use of this tool, better oversight of approvals at both the local and HQ levels can take place. This software system will enable DCBA to track adjudication requests and conduct analytics so that evidence-based improvements can be made to service provision and future relocation policy changes.
While there has been significant progress made since the release of our report, DGCB still needs to demonstrate how this new tool will help improve the day-to-day service provision and how the information gathered will help improve relocation policies. We will continue monitoring progress on this recommendation.
Recommendation 7
By January 2022, the Canadian Armed Forces ensure that all members posted OUTCAN have a clear understanding of the local health and safety protocols and processes.
Recommendation 7 Status: Partially Implemented
Recommendation
Vice Chief of Defence Staff (VCDS) made progress to improve the understanding of local health and safety protocols and processes. They procured a TRAVAX license so that Outside Canada (OUTCAN) Surgeons working in the National Capital Region (NCR) can brief members during their medical appointments about health concerns at their post. TRAVAX is an online database of preventive and travel health information that keeps medical professionals up to date on current events and best practices in global and operational medicine. However, VCDS has yet expanded access to OUTCAN Surgeons who are screening members posted outside the NCR. Europe and USA have access to medical services on location, and members posted in the rest of the world have two medical officers available to communicate with members remotely.
A Service Level Agreement (SLA) between VCDS and the Canadian Forces Morale and Welfare Services (CFMWS) was put in place to require that more information be made available to OUTCAN members and their families. VCDS encourages members to visit the CFMWS websites: United States (https://cfmws.ca/united-states), Europe (https://cfmws.ca/europe), and Rest of the World (https://cfmws.ca/outcan-global) as they also provide information and useful links on health care resources for OUTCAN members and their families. CFMWS is continually updating and improving the information available on their website. Ongoing collaboration with Global Affairs Canada (GAC) resources and members currently posted to various locations is in the design stages to create a more comprehensive information package for each OUTCAN location. VCDS provided no timelines for this initiative.
We will continue monitoring progress on this recommendation.
Recommendation 8, 11, and 13
By January 2022, the Canadian Armed Forces, Department of National Defence and the Canadian Forces Morale and Welfare Services conduct a review of and update the Emergency Evacuation plans. This review should consider all Defence Team personnel and their families.
Recommendation 8, 11 and 13 Status: Partially Implemented
Recommendation
Vice Chief of Defence Staff (VCDS) is finalizing a draft Emergency Evacuation plan for members. Once completed, this directive will be distributed across all Outside Canada (OUTCAN) offices and all OUTCAN members will have access. Both OUTCAN Support Unit staff and Canadian Forces Morale and Welfare Services (CFMWS) will communicate directly with families who must evacuate a post from the time that an evacuation is being considered until a return to post or other arrangements are made.
In April 2024, CFMWS updated the Staff of the Non-Public Funds (SNPF, CF) Human Resource policy (HR POL) 32 – Non-Public Funds (NPF) Outside Canada (OUTCAN) Relocation and Foreign Service Benefits Policy. (https://cfmws.ca/CFMWS/media/images/documents/8.0%20About%20Us/Employee%20Content/HR%20POL%20EN/HRPOL-32-OUTCAN.pdf) This policy update is a valuable step towards ensuring that all authorities involved in the OUTCAN Programme are well informed about their responsibilities and the conditions and processes that are used. In May 2022, a Service Level Agreement (SLA) signed between CFMWS and the VCDS produced an Emergency Evacuation Plan tailored for military families. The plan includes Military Family Services United States (MFS US), Military Families Services Europe (MFS (E)) and the Virtual Military Families Resource Centre (MFRC) to provide a Mobile Family Assistance Team (MFAT) when required to deliver emergency shelter, food, and counselling services for the affected families. However, it does not include specific protocols for the emergency evacuation of SNPF, CF employees if the need arises.
Given that much remains to ensure that Emergency Evacuation plans are in place for members, civilian employees and SNPF, CF employees, we will continue monitoring progress on Recommendations 8, 11, and 13.
Recommendation 9
By June 2021, the Canadian Armed Forces improve the process for the management of children’s education requests, by increasing transparency in the communication of decisions to Canadian Armed Forces members through their support units, including the rationale for decisions and the development of a standardized process for correspondence with members.
Recommendation 9 Status: Implemented
Recommendation
The Director General Compensation Benefits (DGCB) has a new standardized process for communicating Children’s Education Management (CEM) (https://www.canada.ca/en/department-national-defence/services/benefits-military/pay-pension-benefits/benefits/children-education-management.html) decisions. In place since 2022, the process outlines that once a decision has been made, a record of decision (ROD) is finalized and provided to unit coordinators using a standardized email template with instructions on what to communicate to CAF members. The email template contains a timeline of case submissions for Working Group B meetings, a record of the decision, a summary of the cases, supporting documents reviewed, what the member is requesting as an outcome, the Education sub-committee recommendations, and Working Group B’s decision. However, the email instructs coordinators to provide members with a copy of the relevant case decision(s) only, without further instruction on what to communicate with CAF members regarding other recourse options or support systems they can access if a decision is unfavourable. This new standardized process also does not clearly outline a rationale for decisions, nor does it provide any information on who the coordinator or the CAF member can contact for further information.
For more information on children’s education allowances and benefits, members and families can access our office’s educational product, the ABC’s of OUTCAN Postings – Part B – You have Received Your Posting Instructions (https://www.canada.ca/en/ombudsman-national-defence-forces/education-information/caf-members/career/outcan/abc-outcan-posting/you-received-instructions.html).
Recommendation 10
By January 2022, the Department of National Defence must review the processes in place for the administration of the OUTCAN Programme, update the processes accordingly, and establish a periodic review plan.
Recommendation 10 Status: Partially Implemented
Recommendation
Assistance Deputy Minister (Human Resources – Civilian) (ADM(HR-Civ)) produced an action plan to review and update processes for the administration of the Outside Canada (OUTCAN) Programme. In November 2021, they launched the Foreign Service Program section of the Defence Team Intranet that is available only on the Defence network (http://hrciv-rhciv.mil.ca/en/foreign-service-program.page). This section includes general information for civilian employees, such as relevant policies and directives, frequently asked questions, service standards, contact information for enquiries and resources.
However, ADM(HR-Civ) provided no further information on the remainder of action items they previously identified to our office in 2022. These actions included a study to identify gaps in the screening and pre-posting process, developing job aides to bridge gaps identified by the study and the review of guidance documents in comparison to Foreign Service Directives (FSDs). Additionally, ADM(HR-Civ) did not provide information on the establishment of a periodic review plan. We will continue monitoring progress on this recommendation.
Recommendation 12
By January 2022, Canadian Forces Morale and Welfare Services establish a formalized screening process for the sponsored Staff of the Non-Public Funds.
Recommendation 12 Status: Partially Implemented
Recommendation
In March 2024, the Canadian Forces Morale and Welfare Services (CFMWS) and the Canadian Forces Health Services (CFHS) Ottawa signed a Service Level Agreement (SLA) to establish a formalized screening process for sponsored Staff of the Non-Public Funds (SNPF, CF) employees. The formalized screening process includes recruitment, specific site screening, on-boarding, in-post support and policy considerations (site specific) for the SNPF CF. Once in place, it will also assess the personal and/or familial financial, physical, mental health, and educational needs or challenges, as well as suitability for a sponsored posting outside of Canada.
While this is much progress towards implementing this recommendation, we were not provided with a copy of the SLA to review. We will continue monitoring this new process.
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