The Honourable David McGuinty, Minister of National Defence, released the fifth biannual status report of the External Monitor, Madame Jocelyne Therrien.

The report provides an external, independent assessment of the progress made by the Department of Defence (DND) and the Canadian Armed Forces (CAF) in implementing the recommendations made by former Supreme Court Justice Louise Arbour in the Independent External Comprehensive Review (IECR), released in May 2022. Madame Therrien’s observations are based on her direct discussions with Defence Team officials and review of relevant documents, policies and processes.

In this report, Madame Therrien notes that “the CAF is on track to meeting the intent of all IECR recommendations by the end of this year.” She provides a status assessment for each outstanding or recently addressed recommendation, including successes, challenges and next steps to be taken, and cites examples of progress:

  • IECR recommendations related to terminology and definitions, specifically the abolishment of the definition of “sexual misconduct” from policies and the inclusion of “sexual assault” as a standalone definition have been addressed;
  • The CAF adopted the Canada Labour Code definition of harassment and violence, aligning its harassment program with the public service employee Workplace Harassment and Violence Prevention (WHVP) program. This resulted in one unified approach for dealing with harassment and violence in the workplace;
  • Expansion of Sexual Misconduct Support and Resource Centre (SMSRC) services to include a full-time legal resource dedicated to dispensing information and assistance to individuals who have experienced sexual misconduct within a DND/CAF context;
  • A probational period leading to more efficient onboarding of new recruits and easier removal of new members who fall short of the ethical standards of the CAF: and
  • A more systematic approach to promotions including a new selection process based on past conduct and character traits, and once promoted, strong supports for leaders including modernized, culture-related training materials, coaching sessions and leadership advice.

Of the 48 IERC recommendations, 36 have now been deemed addressed by the Defence Team. While the External Monitor notes that some changes may take years to fully implement, she acknowledges the sincere willingness to make things better on the part of those involved in implementing culture change.

In a statement, Minister McGuinty welcomed this report and thanked the External Monitor for her independent and external perspective. Minister McGuinty also outlined the progress made to date and measures the Government is taking to implement the remainder of Madame Arbour’s recommendations and reaffirmed the commitment to introducing legislation that would amend the National Defence Act to further modernize the military justice system.

“Madame Therrien’s latest report outlines clear and measurable progress toward delivering lasting culture change within the Defence Team, and her independent perspective remains essential to ensuring transparency and accountability throughout this work. The report reaffirms that the Canadian Armed Forces are on track to meet the intent of all recommendations by the end of this year. We are making meaningful strides to modernize systems, strengthen leadership, and build a workplace rooted in respect, inclusion, and integrity. Our focus remains on getting this right—for our members and for all Canadians.”

The Honourable David McGuinty, Minister of National Defence

“The latest report from the External Monitor, in keeping with previous reports, helps keep the Defence Team accountable as we continue to roll out changes that foster a safe and effective work environment. The goal is to create a culture where everyone feels they belong and are empowered to succeed. We know this is achievable and that we will continue to make progress, thanks to the diligent work of Defence Team members and the valuable insights from the External Monitor.”

Stefanie Beck, Deputy Minister of National Defence

“We are continuing to advance in implementing the IECR (Independent External Comprehensive Review) recommendations, and I’m very encouraged by the progress we are making. Meaningful change takes time, persistence, and sustained effort—but we are moving in the right direction. We are building a more respectful and accountable Defence Team—one that embodies excellence and recognizes that organisational culture is key to operational readiness. A professional culture is also essential to attracting and retaining top talent and ensuring we have the capabilities needed to defend Canada and uphold our values in a complex and dynamic global security environment.”

General Jennie Carignan, Chief of the Defence Staff

“With Madame Therrien’s oversight, we are undertaking meaningful transformation—grounded in integrity, fueled by accountability, and measured by how every member of our Defence Team experiences service. The credibility of our institution depends on how we protect the dignity of every person who wears the uniform.”

Lieutenant-General Paul Prévost, Chief, Professional Conduct and Culture

ADDITIONAL INFO

  • Mme Therrien’s role (Terms of Reference) is to provide advice to the Minister on the oversight and implementation of the recommendations in Madame Arbour’s IECR report, while considering those of other external reviews.
  • The report released today builds on previous status reports, released:
    • The fourth External Monitor Report was published on November 12, 2024.
    • The third External Monitor Report was published on May 16, 2024.
    • The second External Monitor Report was published on November 21, 2023.
    • The first External Monitor Report was published on May 17, 2023.
  • The IECR (led by former Supreme Court Justice Louise Arbour) was launched in April 2021 to shed light on the causes of harassment and sexual misconduct in the CAF, by reviewing policies, procedures, programs, practices and culture within the CAF and DND. Madame Arbour’s final IECR report was made public on May 30, 2022.
  • In December 2022, the Minister of National Defence presented a Report to Parliament, outlining the steps that the Government of Canada would take to respond to all 48 IECR recommendations. DND/CAF continues to work on meaningful reform and culture change in response to the recommendations.
  • As of March 1, 2025, the CAF adopted the Canada Labour Code definition of harassment and violence and aligned its previous program with the public service Workplace Harassment and Violence Prevention (WHVP) program.  As a result of this change, DAOD 5012-0 was cancelled and an updated DAOD 5014-0 and WHVP Policy Manual now apply to any occurrence of workplace harassment and violence involving Defence Team members.
  • On May 29, 2025, the Sexual Misconduct Support and Resource Centre (SMSRC) expanded its services to include direct legal assistance for individuals who have experienced sexual misconduct within a DND/CAF context. The Independent Legal Assistance (ILA) program supports individuals in making informed choices that align with their needs, goals, and circumstances while helping them understand their rights and options.

Statement from Minister McGuinty on the Fifth Biannual Report of External Monitor

“CAF members serve with dedication and pride, upholding Canadian values at home and around the world. Their service commands deep respect, and supporting their well-being is a responsibility we all share. That’s why the Defence Team continues to advance meaningful culture change by building a safer, more inclusive workplace for all. By implementing the recommendations of the Independent External Comprehensive Review under the oversight of Madame Therrien, the Defence Team is becoming more open, transparent, and accountable. I welcome this fifth report and thank the External Monitor for her continued leadership and insight.”

 “We are continuing to make progress and as Madame Therrien points out, we “are on track to meeting the intent of all 48 recommendations by the end of 2025”. To date, 36 recommendations of the IECR have been addressed.

“We have made tremendous progress on clarifying definitions and terminology in implementing recommendations 1 and 2. In June 2024, the Defence Team announced that policies using the term ‘sexual misconduct’ would be updated to remove the term and instead use harassment of a sexual nature, conduct deficiencies of a sexual nature, and crimes of a sexual nature. Additionally, ‘sexual assault’ will be included as a distinct definition in relevant policies.

“In March 2025, the CAF adopted the Canada Labour Code definition of harassment and violence, aligning its harassment program with the public service Workplace Harassment and Violence Prevention program. This resulted in one unified policy for dealing with harassment and violence in the workplace, applicable to both DND public service employees and CAF members. It also responded to recommendation 3 of the IECR. CAF members who experience or witness harassment and violence in the workplace now have a simpler way to report occurrences, informal means of resolving them, and a streamlined investigation process.

“We have also made progress in offering a meaningful range of victim services and assistance. To address recommendation 14 of the IECR, the Sexual Misconduct Support and Resource Centre expanded its services to include a full-time legal resource dedicated to dispensing information and assistance to individuals who have experienced sexual misconduct within a Defence Team context. As a next step, they plan to offer access to civilian lawyers who can assist at various locations across the country, at no cost to individuals.

“The Government remains committed to reintroducing legislation that would amend the National Defence Act to further modernize the military justice system and address recommendation 5 to definitively remove the CAF’s jurisdiction to investigate and prosecute Criminal Code sexual offences committed in Canada, giving exclusive jurisdiction to civilian authorities.

“Regarding recommendation 6, on engaging a quality assurance assessment of past administrative reviews, we have accepted the recommendations of the Externally-led Review Committee (ERC) , and direction has been given on priority items, including: establishing an advisory board to assess individual cases, delegating release authority to the Command level; and rethinking the criteria for release decisions, taking into account the severity of the case.

“As Madame Therrien notes, we took constructive action to modernize recruitment and retention, in line with recommendations 20, 22 and 25. In December 2024, the CAF introduced a probationary period allowing applicants in both the Regular Force and the Primary Reserve to begin training while waiting for their security clearance and other administrative requirements to be finalized. During this probationary period, if a recruit does not meet the necessary requirements, they will be released from the CAF. In October 2024, the CAF updated its evaluation of candidates to include questions on education, experience, leadership, and other life achievements, enabling a broader and more considerate assessment of applicants. The CAF is also digitizing application processes and modernizing its medical enrolment standard, leading to greater efficiency. These improvements, along with others to come, will help enable the CAF to respond when called upon to serve Canada’s interests, both at home and abroad.

“Also noted in her report, on the theme of leadership, we’ve introduced a more systematic approach to promotions including a new selection process based on past conduct and character traits, and once promoted, we offer stronger supports for leaders including modernized, culture-related training materials, coaching sessions and leadership advice.

“In this report, Madame Therrien speaks to the challenge the Defence Team faces in consolidating its many data holdings related to misconduct data and associated outcomes. I agree, and we must continue to evaluate options to create an integrated approach to collect the right data to gain a clearer picture of misconduct across the Defence Team. An effective system can lead to more timely support to affected persons while providing access to recourse options that best address their needs, while also holding people accountable for their actions within a process that is transparent and fair.

“I want to thank Madame Therrien for her thoughtful and honest assessment of the work done so far and the challenges ahead. We’ve made meaningful progress in addressing deep-rooted issues within the military, and we remain fully committed to continuing this work. We remain steadfast as we continue to improve the overall Defence Team culture.”