GENERAL JENNIE CARIGNAN, CHIEF OF THE DEFENCE STAFF

CDR asked Senior Staff Writer, Joetey Attariwala, to interview Canada’s new Chief of the Defence Staff, General Jennie Carignan. CDR normally conducts these interviews in person however, the General’s office recommended that we conduct the interview in writing, to which we agreed. The questions were submitted prior to Mark Carney being nominated to the Liberal Leadership and assuming the role of Prime Minister of Canada, and we received replies prior to the writ of election.

CDR: How do you assess the global security environment and its potential impacts on Canada’s defence posture, and how do you see the Canadian Armed Forces evolving given the changing dynamics of warfare?

General Carignan: The world is changing very, very quickly, and it’s not waiting for us. That world is volatile. The future is uncertain. Russia’s illegal war on Ukraine has been going on for over three years now. North Korea also continues to destabilize in the Indo-Pacific region, as does China – for whom domination in the region is just one step toward achieving its ambition of taking a central position of influence in an interconnected world.

And as full-scale war has returned to Europe, Iran has stoked conflict in the Middle East, conflict sparked by Hamas’ attack on Israel just over a year ago and amplified by Iran’s proxies in Lebanon, Syria, and Yemen. With the fall of the Assad regime in Syria, we now see a weakened Iran.

And these authoritarian regimes, sometimes acting alone but more and more often together, seek to shake the global order and seize opportunities as the situation unfolds.

Hybrid threats, disinformation, misinformation, cyber attacks and competition in space represent significant threats in both the physical and cognitive domains affecting trust in institutions and domestic stability.

The world is in a period of transition. The Profession of Arms is in a period of transition. And the CAF is certainly in a period of transition.

How do we prepare the CAF for the world of the present, and the future? Transform and mobilise. By transforming I mean modernize, structure and equip the CAF with the capabilities to face current and future threats. And by mobilizing, I mean not only getting the CAF back to full strength but also go beyond in bringing in more Canadians in defence of Canada for our renewed defence plan. 

It’s well known that our military – like many of our Allies’ – does not have the numbers we would like… the numbers we need to be optimally effective.

For my tenure as CDS, recruiting and retention will be my top personal priorities. The success of everything we do, in the long term, depends on getting our numbers back up – at all ranks, in every part of the organization and for the new capabilities we will be fielding – F-35, long range precision, air defence, space, cyber.

We can have the best tech, the most advanced weapons, the most complex systems – but that doesn’t matter if we don’t have good, well-trained, motivated, and dedicated people to operate them. This is urgent. We are making good progress and so proud of the response we are getting from Canadians in joining the CAF.

DEFENCE SPENDING

CDR: What are your key priorities for defence procurement in the coming years given Canada’s commitment to reach a defence spending target of 2% of GDP?

General Carignan: First and foremost, we will invest in the foundation upon which we can transform and mobilise our forces. Here we are talking about funding readiness i.e. people, recruitment, training, servicing, equipment, operations. These are the basic needs our forces require to be combat ready. We cannot put defence on hold as we transform, therefore our readiness is essential to remain operational. For example, we will invest in our health services and family support as these are crucial to the ability of our military members to deliver defence for Canadians.

The Canadian Armed Forces must be equipped with the modern equipment needed to meet the complex demands of the modern security environment. It is important these capabilities be delivered quickly, and be kept updated, so they remain relevant in the face of rapidly changing technologies.

Along with NORAD modernization efforts, the CAF needs to enhance its infrastructure and logistics to enable agile and sustainable operations over the long term.  

The Northern Operational Support Hubs (NOSH) will establish scalable capabilities that can be quickly activated to support northern operations. This includes investing in multi-use infrastructure that also meets the needs of the territories, Indigenous peoples, and Northern communities where possible.  The NOSH will increase the CAF’s responsiveness across the Canadian Arctic and North and support a greater year-round military presence. 

The F-35 will be essential to the RCAF’ s ability to protect Canadians’ safety and security, enforce Canada’s sovereignty, meet Canada’s NATO and NORAD obligations, and contribute to international peace and stability with a capability that is fully interoperable with key allies and partners. 

Together with the River Class Destroyers and the Arctic and Offshore Patrol Ships, the Joint Support Ships will form the core of the future Royal Canadian Navy fleet and will surpass many of the operational capabilities of our former Auxiliary Oiler Replenishment vessels.

The renewal and expansion of the submarine fleet will contribute to defending Canada, including our Arctic, and the collective defence of North America through NORAD. Interoperability with the United States Navy is a key consideration for the replacement of the Victoria-class submarines to ensure that Canada’s naval fleet has the increased and modern capabilities needed to detect, deter and defend against threats to, or attacks on, Canada and North America in partnership with the United States, including through NORAD. 

These will be significant, but necessary investments, which will ensure Canada’s security and prosperity in a changing world. 

THE CAF’S PRIORITIES IN THE ARCTIC

CDR: Canada’s sovereignty and security in the Arctic are growing concerns. What are the Canadian Armed Forces’ strategic priorities for the Arctic in the near and long term? How will the military expand its presence and capability in this region?

General Carignan: Last spring saw the release of Canada’s new defence policy, Our North, Strong and Free. This is of critical importance because it clarifies where we will focus our efforts.

Our first focus is Canada’s defence, including the defence of our Arctic as well as contributing to continental defence in partnership with NORAD.

Many Canadians might think the competition and conflict we see on TV or on our phones is taking place far from our shores.

But the reality is that we can no longer rely on geography – what some have called “our splendid isolation” – to provide the security our forebears enjoyed.

The NOSH will establish scalable capabilities that can be quickly activated to support northern operations. The NOSH will increase the CAF’s responsiveness across the Canadian Arctic and North and support a greater year-round military presence. 

CANADA’S PRESENCE IN THE INDO-PACIFIC

CDR: Given China’s growing influence in the Indo-Pacific region, how do you assess the role of the Canadian Armed Forces in the region? What strategies should Canada adopt to enhance its security and alliances in the face of Chinese expansion?

General Carignan: Canada and our Allies remain determined to maintain a free and open Indo-Pacific region.

As the Canadian Armed Forces continue to implement Canada’s Indo-Pacific Strategy, our focus includes increased engagement through: • Persistent deployment of three RCN ships per year in the region; • Increased CAF participation in regional and multinational exercises and activities; • Tailored defence training to strengthen resilience and interoperability; • Cyber Defence cooperation with regional partners and enhanced cyber capacity development.

Together, these engagements directly support the promotion of peace, resilience, and stability in the region, and help uphold an international system based on rule of law.

CDR: What were your thoughts about the Chinese task group that recently conducted operations off Australia?

General Carignan: This is very concerning and highlights China’s aggressive posture in the Indo-Pacific. Three Chinese warships conducted live-fire exercises in the Tasman Sea between Australia and New Zealand in February 2025. The ships’ operated in Australia’s exclusive economic zone but did not enter territorial waters.

CDR: Now that there is a return of great power competition, should the CAF shift from a capability-based planning model to a threat-based planning model?

General Carignan: Although we cannot know with certainty what the future wars will look like or what specific roles the CAF will be asked to fill by the Government of Canada, we use foresight, understanding of the characteristics of the future operating environment as well as military expertise to develop capstone concepts that guides our force development efforts.

We are using a concept driven threat informed planning process to ensure the CAF is built as a credible and capable instrument of military power, able to defend Canada and project high value warfighting roles alongside our allies and partners.

THE CAF IN LATVIA

CDR: Are you looking at permanently basing CAF members in Latvia? Would that not be more efficient and effective from a human resources perspective?

General Carignan: In 2022, Canada and Latvia agreed to establish a persistently deployed Brigade — more than doubling the size of Canadian and multinational persistent presence in Latvia —from ~1,500 Allied troops to over 3,000.

Recognizing the geographic distance between Canada and Latvia, we’re deploying and pre-positioning many of our forces and enablers forward in Latvia. By 2026, Canada will complete the full implementation of persistently deployed brigade capabilities to Latvia. 

Additional forces will be assigned to reinforce Latvia at high readiness from their home countries.

Since last fall, we have however undertaken a full review of our footprint in Europe to develop the best possible options to command and control and maintain our forces in Latvia as well as our commitment to NATO. A permanent base could be one of the options being considered.

CDR: If in extremis, how many more troops are you able to add to the CAF contingent already in Latvia?

General Carignan: The CAF’s ability to conduct operations and activities vary depending on the nature of the government-approved mission, the authorities granted, the applicable Canadian and international law, direction, ethics, doctrine and policy. We would develop military options, which include number of troops, that are responsive to the situation at play. 

CDR: I appreciate that the Government would have to provide such direction, but if asked, what capacity does the CAF have to put troops on the ground in Ukraine for a stabilization force if a ceasefire is announced?

General Carignan: The CAF’s ability to conduct operations and activities vary depending on the nature of the government-approved mission, the authorities granted, the applicable Canadian and international law, direction, ethics, doctrine and policy. We are currently developing options for the government’s consideration in collaboration with allies and partners. 

USING AMERICAN-MADE EQUIPMENT

CDR: In light of unpredictable behavior from the United States, do you have any concern that so much equipment used by the CAF is sourced from the US, and more importantly, that the use of that equipment has ITAR restrictions which mean there is no true Canadian autonomy in the use of such equipment?

General Carignan: The North American defence industrial base is deeply integrated and has been for more than seven decades.

Our increased spending will focus on further fortifying the foundations of Canada’s armed forces in order to better position ourselves to implement all the capabilities we have committed to in Our North, Strong and Free.

Strengthening Canada’s defence capabilities must go hand in hand with strengthening our defence industrial base.

National Defence has committed to change how it works with industry, innovators, and researchers, moving away from transactional approaches for acquiring capabilities to sustained strategic partnerships founded on transparency and trust.

At the same time, we are working on a Defence Industrial Strategy to support an innovative, effective, and secure Canadian defence industrial base.

These changes in approach present a significant opportunity for Canadian industry as we continue to ensure defence spending creates jobs and fosters innovation right here at home.

THE ROLE OF AI & UNCREWED SYSTEMS

CDR: What role do you see technology, such as artificial intelligence and uncrewed systems, playing in modernizing the Canadian Armed Forces, and how will these capabilities be adopted or integrated sooner?

General Carignan: I see a critical and essential role for AI and uncrewed systems in our modernization efforts. The speed of technological change requires a shift in organizational mindset—a willingness to embrace innovation and experimentation, and to continuously adopt emerging technologies. The digitalization of defence is central to this objective. The Canadian Armed Forces is updating its tools and processes to better suit them to the modern world. We will make full use of our digital technologies by overhauling outdated and analog processes to improve our ability to hire people, conduct security screening, and share information in a timely way. This includes expanding the use of artificial intelligence-driven data management tools, as well as initiatives to advance big data management, acquire analytical tools, and expand cloud-based computing on open and secure networks

CDR: With the rise of non-state actors and hybrid warfare tactics, such as cyber attacks, disinformation campaigns, and unconventional military tactics, how is the Canadian Armed Forces evolving to meet these modern security challenges?

General Carignan: The security threats we are facing are multifaceted and go beyond the strict military pillar. The key is a close collaboration with whole-of-government partners such as Global Affairs Canada, Canadian Security Intelligence Service, Royal Canadian Mounted Police, Communications Security Establishment Canada, Public Safety Canada, Canada Border Services Agency, Transport Canada, etc. to tackle the current and future operating environment. 

The establishment of CAF Cyber Command represents an important milestone for DND/CAF. Echoing similar moves by allies, a dedicated cyber command reflects the essential role of cyber in modern operations and demonstrates to our allies, partners and adversaries Canada’s commitment to operating in a contested cyber domain.

The CAF Cyber Force’s main priorities are: • Responding to cyber incidents on DND/CAF networks; • Integrating defensive cyber operations into broader military operations; • Strengthening defence systems, network monitoring and control; • Conducting offensive cyber operations against potential adversaries in the context of government-authorized military missions.

DND/CAF has initiated a thorough review of Information Environment related terminology, doctrine, and policies. This work is still ongoing. A draft policy is currently in the works to improve how we collectively operate and act in a contested Information Environment in a manner that is legal, professional, responsible, and ethical, and with appropriate governance, accountability, and oversight.

COMBAT CAPABLE PERSONNEL

CDR: What are the current numbers of combat capable personnel in the CAF versus support and administrative personnel?

General Carignan: The principle of universality of service or “soldier first” principle holds that CAF members are liable to perform general military duties and common defence and security duties, not just the duties of their military occupation or occupation specification. Tactical competence in individual and collective warfighting skills remains central to the profession of arms. Most collective training is focused on warfighting.

Upon enrolment, military professionals in Canada accept unlimited liability; the primary feature that sets the military apart from other professions in Canada. Unlimited liability means the legal requirement for CAF members to accept that, in the process of their duties, they may have to risk their lives or the lives of those they lead to achieve success in the military missions assigned by the Government of Canada.

While other first responder professions like firefighters or police officers share certain aspects of liability and risk to their lives, the military is unique in that this unlimited liability also includes the legitimate use of force to injure or kill combatants in the name of national defence. Not only can soldiers, sailors, aviators and special operations forces be lawfully ordered to risk their life, but they can also order others to do the same. In addition, CAF members can be ordered to kill combatants or issue such orders to other CAF members, in accordance with applicable Canadian and international law.

CDR: What is the future of the Nanisivik Naval Facility?

General Carignan: While construction of the Nanisivik Naval Facility is complete, it is not operational due to ongoing concerns with the condition of the accompanying jetty structure.

Work is ongoing to establish the NOSH – which will offer utility to the Canadian Armed Forces and provide enhanced access, and an extended operating season. As part of this initiative, we’re looking closely at our current and future projects to verify that we’re investing in the right infrastructure in the right places. As this work progresses, we’ll have more information to share in the coming months on the future of our Northern and Arctic infrastructure presence.  

CDR: What are your thoughts about expedited citizenship via service in the Canadian Armed Forces for permanent residents?

General Carignan: Current or past members of the Canadian Armed Forces can apply for citizenship using a fast-track process. This fast-track option speeds up the citizenship application process for permanent residents serving in the CAF and foreign military members on exchange with the CAF. To be eligible, applicants must meet all of the standard conditions to apply for citizenship (except for the residency requirement), have completed three years of service in or with the CAF in the six years before the date of application and have met personal income tax filing obligations.

Expediting our processes does not mean that we are lowering our standard or lowering our security tolerance. It is an incentive to join our forces. Choosing to pursue a career in the Canadian Armed Forces is not only about achieving fulfillment through one of the more than 100 full- and part-time occupations available, but also, and above all, to protect Canadians at home and abroad.

PROCUREMENT PROCESS

CDR: Has there been any discussion on removing the IRPDA (Independent Review Panel for Defence Acquisitions), which has added another layer of complexity in defence procurement?

General Carignan: We consistently review our processes and structures and the IRPDA is currently under review to ensure value added. The IRPDA has provided us with excellent advice and recommendations, and we deeply appreciate their input.

DND abides by Canadian legislation, central policies and procedures to ensure procurement is conducted in a fair, open and transparent manner in accordance with Treasury Board policies, as well as regulations, guidelines, trade agreements, and procedures.

Public Services and Procurement Canada and Treasury Board of Canada Secretariat put the guidelines in place which are in turn applied by DND/CAF through the Assistant Deputy Minister (Materiel) which manages the full lifecycle of defence materiel, from acquisition, through maintenance and support to disposal.

CDR: How are recruitment efforts going?

General Carignan: As you know recruitment and retention are my top priorities. Canada’s defence policy, Our North Strong and Free, commits to modernizing CAF recruitment to rebuild the military by 2032. We are closing the gap and are now projecting that we will achieve the target of authorized strength of 71.5K Regular Force members by March 31, 2029. 

Since April 2024, the CAF has enrolled more than 6,300 new Regular Force members, which is a significant increase over the same period last year. With over 240 selected that are pending enrollment, the CAF achieved and will go beyond its recruiting goal for this fiscal year, which ends March 31, surpassing our objective of 6,496 new Regular Force members. This number is higher than the totals of the last five fiscal years

CDR: What are your reflections from being at the recent Invictus Games in Vancouver?

General Carignan: Chief Warrant Officer McCann and I were delighted to welcome the 2025 Invictus Games community to Canada. What a remarkable event. More than 500 competitors from 23 nations—united by their strength, skill, resilience, and determination. And by the power of sport.

One of the things I love most about the Invictus Games is how they support ill and injured Armed Forces members, veterans, and their families on the road to recovery. Competitions like this bring such a sense of drive, purpose, and accomplishment. They boost both physical and mental health and they forge friendships that transcend rank, flag, and background. That—more than any medal—is the real victory. I was so inspired by the competitors and their families and friends who accompanied them.

Athletics and military life have always had a deep connection. They share many traits. A willingness to confront challenges head on. Courage in the face of adversity. An unrelenting drive to step out of your comfort zone. Respect, teamwork, camaraderie—the list goes on. 

I’m so proud of Team Canada and of every competitor from every nation. When nations and military leaders come together—even to celebrate friendly competition—we reinforce the bonds that unite us.

CDR: Thank you.

Joetey Attariwala is CDR’s Senior Staff Writer