The Honourable Bill Blair, Minister of National Defence, released the fourth 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 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.

In this latest report, Madame Therrien provides an update on the implementation of recommendations based on her regular discussions with Minister Blair and DND/CAF officials, as well as review of documents, policies and processes.

Madame Therrien reiterates that there is a genuine will to change the organizational culture of DND/CAF—noting significant positive momentum since 2021. Examples of positive progress cited in her report include:

  • the creation of a probationary period by December 2024 that will more systematically assess the suitability of recruits in terms of moral values, including the capacity to release members with less administrative burden than currently exists;
  • initiatives implemented to streamline the process of getting a recruit in the door and ready for training;
  • the professional education continuum focused on ethical values that get reinforced throughout a member’s career;
  • a promotion process that is built upon the precepts of character-based leadership; and
  • the efforts to choose instructors who genuinely personify and can effectively teach appropriate behaviour.

While the drive for institutional change is evident, Madame Therrien notes that some challenges remain persistent. The quality of data available creates obstacles to fully understand the scope of the problem and whether organizational changes have had the desired effect. She also notes the challenges created by CAF rotation patterns, specifically when it comes to institutionalizing the desired change.

Madame Therrien states that all 48 IECR recommendations have been actioned, as have several recommendations from other external reviews. Twenty-two IECR recommendations have been deemed fully implemented.

The Military Justice System Modernization Act, Bill C-66, has also reached second reading in the House of Commons. This legislation would definitively remove the CAF’s jurisdiction to investigate and prosecute Criminal Code sexual offences committed in Canada, giving exclusive jurisdiction to civilian authorities.

In a statement, Minister Blair welcomed this report and thanked the External Monitor for her independent and external perspective. Minister Blair also outlined the progress made to date, and measures that the Government is taking to implement the remainder of Madame Arbour’s 48 recommendations.

“Meaningful cultural change in the Defence Team requires significant effort. That is what we are delivering. Implementation of the 48 recommendations provided by former Supreme Court Justice Louise Arbour is critical to our efforts and we continue to make steady progress. The External Monitor, Madame Jocelyne Therrien, is helping us stay on track and focused on the intent of the recommendations, so that we deliver meaningful results for our people.”

The Honourable Bill Blair, Minister of National Defence

“This latest report highlights important progress we’ve made toward building a more inclusive workplace. Implementing these recommendations is helping us break down barriers and find new ways of doing things, which is strengthening our organization. Thanks to the diligent work of Defence Team members and the valuable insights from the External Monitor, we are driving positive change.”

Stefanie Beck, Deputy Minister of National Defence

“A positive, inclusive, and respectful environment is not just a goal, but a necessity. It fuels our mission and empowers us to achieve operational excellence. As we work to implement these external recommendations, we are seizing the opportunity to effect positive change within our institution and creating a high-performing culture where people are at their best.”

General Jennie Carignan, Chief of the Defence Staff

“We’re encouraged that our efforts to improve our professional conduct are gaining significant momentum across the organization. By actively listening to our team members and continuously adapting our systems and mindsets, we’re confident we’re on the right path to strengthen the team where each person can contribute their very best. We’re committed to making meaningful and lasting change.”

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

ADDITIONAL INFO

  • Madame Jocelyne Therrien was appointed as External Monitor in October 2022 for an initial term of one year, fulfilling Recommendation 48 of the IECR report. The External Monitor’s term has been renewed annually and was recently renewed for an additional year on October 19, 2024.
  • Per the External Monitor Terms of Reference, Madame Therrien’s role 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. , while considering those of other external reviews.
  • The report released today builds on previous status reports of the External Monitor, released:
    • 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.
  • 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.
  • On March 21, 2024, Defence Minister Bill Blair introduced Bill C-66, or the Military Justice System Modernization Act. The proposed legislation addresses key recommendations from former Supreme Court Justices Louise Arbour and Morris J. Fish. To address the recommendation 5 from the IECR, the proposed legislation would definitively remove CAF jurisdiction to investigate and prosecute Criminal Code sexual offences committed in Canada. The bill is currently in its second reading in the House of Commons.
  • On June 2024, DND released the Comprehensive Implementation Plan (CIP), a detailed, five-year roadmap that indicates how the institution is addressing recommendations from four key external review reports, including the IECR. 

Statement from Minister Blair on the Fourth Biannual Report of External Monitor

“Members of the CAF have made a commitment to safeguard sovereignty and security for Canada and Canadians. Our commitment is to make sure they can get the job done. We are doing that by fostering respect and inclusion in our workplace, which builds stronger teams with more diverse perspectives and better enables our military to be ready to defend Canada and its interests. Former Supreme Court Justice Louise Arbour gave us a way forward on changes needed in our institution and the External Monitor is guiding us and holding us accountable as we implement those changes. I welcome this fourth report and thank Madame Therrien for her work. 

“We are continuing to make tangible progress in response to the IECR recommendations. With 22 recommendations addressed, and another nine expected to be completed by the end of this year, we are on track to have all 48 addressed by the end of 2025. 

“Introduced in March 2024, Bill C-66 would give exclusive jurisdiction to civilian authorities to investigate and prosecute Criminal Code sexual offences committed in Canada, definitively removing such cases from the CAF’s jurisdiction. It also implements key recommendations from former Supreme Court Justice Morris Fish’s review of the military justice system. Unanimous support for Bill C-66 has been indicated to move it to committee for consideration, which is the next step in it becoming legislation.

“As Madame Therrien notes in her report, Recommendations 20, 22 and 25 focus on making the recruitment process more efficient and effective. We are continuing with the implementation of improvements to the recruitment process as we committed to in Canada’s Defence Policy Update, Our North, Strong and Free, by establishing a probationary period to enable the faster enrolment of applicants, and the timely removal of those who do not adhere to our conduct requirements. This new probation period will be implemented by December 2024.

“We are also changing our approach to recruitment in other meaningful ways. As mentioned in the External Monitor’s report, we are streamlining the security clearance process to reduce the time it takes new recruits to move into their positions. National Defence has signed an Information Sharing Agreement with Immigration, Refugees and Citizenship Canada to enable better access to information about Permanent Resident applicants. We are also reviewing medical requirements to make them more reflective of societal norms.

“As noted by Madame Therrien, the CAF has trialed an exemption to the Canadian Forces Aptitude Test (CFAT) for certain occupations for applicants with university degrees or college diplomas, and for those who already meet occupational educational requirements. Since April 2024, more than 3,000 individuals are being processed according to this new approach. For them, the CFAT is applied later during basic training. I can share with you today that following the success of this trial, this approach will now be used for all incoming applicants.

“As we have heard from many CAF Defence Team members, partners, and stakeholders, how we describe and define issues or situations can directly affect how we respond. In short, words are important. As noted by Madame Therrien and Madame Arbour, clarity in terms of what is deemed as inappropriate behaviour represents the first step in its eradication. This is why, in line with Recommendation 1, the CAF updated the broad definition of “sexual misconduct” in its policies in June 2024 and included sexual assault as a clear definition, referring to the Criminal Code as the applicable law. Today, I am pleased to share that the Sexual and Gender Based Violence Spectrum has been developed to serve as a learning and communication tool that clearly identifies a range of behaviours—from acceptable conduct to inappropriate behaviour, conduct deficiencies and criminal acts. Providing examples of unacceptable behaviors sets clear expectations about conduct and consequences in our workplace, and can help Defence Team members respond appropriately when they occur.   

“Openness and transparency are paramount to our progress and a publicly available plan to accomplish this is key. I am happy to report that in June 2024 we released the Comprehensive Implementation Plan (CIP). It is a detailed, five-year roadmap that indicates how the institution is addressing recommendations from four key external review reports, including the IECR.

“In October 2023, we launched an online database to make our conduct and culture research and policies more open and accessible, in line with IECR Recommendation 45. Today we are making more data public through the Conduct and Culture Data Centre. This interactive online tool means Canadians can now access more information about Defence Team people, demographics and culture.  

“I am also pleased to report that Recommendation 8 of the National Apology Advisory Committee (NAAC) Report has been addressed. The establishment of an anti-Black racism Ministerial Advisory Committee will provide external and independent oversight and guidance on current and future DND/CAF anti-Black racism policies, programs, and initiatives. We will be selecting members this winter and launching the committee in spring 2025. This will mark the completion of the last outstanding NAAC recommendation.

“Madame Therrien speaks to the impact that the current pace of change is having on DND/CAF. She notes that it may be difficult to continue to sustain this pace, and that it may be helpful to take a step back to determine where the chances of instilling real change are greatest. I acknowledge that this transformational process is long and challenging. Given the broad nature of culture evolution, we began this journey with a wide scope. We are now consolidating our efforts to focus on making the improvements that have the greatest impact for Defence Team members.

“I once again thank Madame Therrien for her frank evaluation of our progress and remaining work. Through this productive process, we are advancing institutional change in a smart and sustainable way, while being accountable to the progress that our members, their families, and Canadians deserve. We have made some very real progress, and we know there is more to be done.”