Report Card — Megan MacKenzie

Read the Recommendations and see their status:

Definitions of Sexual Misconduct and Sexual Harrasment

Military Justice

The current definition of "sexual misconduct" should be abolished, and instead, the CAF should focus on sexual assault, sexual harassment, personal relationship and fraternization. This was also echoed in Justice Deschamps's report in 2015. Currently, "sexual misconduct" is used as an umbrella term but does not go far enough to address serious issues. The definition as it stands now is to be abolished and replaced with a new definition, highlighted in recommendation #2.
Status: Completed
Following internal consultations, a revised Defence Administrative Order and Directive (DAOD) 9005-1 was consulted with internal and external stakeholders. As of September 2024, the formal defintion has been abolished from CAF code. This was announced to the all CAF members via a CANFORGEN. Updates have also now been reflected in the Sexual and Gender-Based Violence Spectrum (further information in Arbour #2).
All policies must now be updated to reflect this change. This requires bureaucratic determination, and it will be important to monitor how quickly this happens. For now, the status can be marked at completed, but there is possibility for reversal depending on success of policy overhaul.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
The new definition of sexual assault highlights that the act is deliberate, non-consensual, and sexual in nature. Further, the new policies regarding sexual assault should reflect the Criminal Code as applicable.
Status: Completed
In conjunction with recommendation #1, the definition of sexual misconduct has been abolished from existing policies. This has come in conjunction with an introduction of sexual assault as a standalone item. In accordance with the Criminal Code, sexual assault is now defined as ‘intentional, non-consensual touching of a sexual nature’.
This leaves the CAF with three key definitions to refer to:
- Conduct deficiencies of a sexual nature including, but not limited to, service infractions and service offences of a sexual nature (when the act is not punishable under the Criminal Code);
- Harassment of a sexual nature
- Crimes of a sexual nature referring to sexual assault and all other criminal offences of a sexual nature under the Criminal Code.
The delayed updates to the The Sexual and Gender-Based Violence Spectrum have now also been implemented. This is especially important as it can be used as a guide for all CAF members regarding acceptable conduct, deficiencies in conduct and criminal acts while awaiting updates to all policy documents. The definition is also available on the CAF/DND intranet.

In the 5th EMR, Madame Therrien notes that she feels the emphasis on the criminality of sexual assault is now understood across the CAF and there is no longer the possibility for sexual assault being interpreted or seen on a spectrum. Ensuring consolidation of understanding is important following the change of definition.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
The CAF should adopt the Canada Labour Code definition of harassment, which is “any action, conduct or comment, including of a sexual nature, that can reasonably be expected to cause offence, humiliation or other physical or psychological injury or illness to an employee, including any prescribed action, conduct or comment.” This definition is far more understanding of what harassment is and overall is a more encompassing definition.
Status: Implemented
The Canadian Labour Code (CLC) defiinition for harrassment has recelty been adopted, with updates to the revelant DAOD and policy manual. This is a significant change that brings the CAF in line with Canadian Human Rights Tribunal case law.
The main tangible change as a result is that cases no longer need to 6 criteria for harrassement before being considered. It is also significant that, in accordance with the CLC, members can no go directly to a central authority to report sexual misconduct or harassment, bypassing the chain of command.
It is also expected that this change of process will make it easier to get data on incidences, which is useful for senior leadership tracking issues and trends.
Another important aspect of this change is that the Conflict Services group in the CAF has taken on responsibility for familiarizing members with the new definition e.g. through targeted sessions for senior leadership and town halls for all staff. This feels particulalry important as in the past
MND McGuinty: '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 is a plain language summary. For original wording, read the Independent External Comprehensive Review.
The definition of personal relationships should remain as is, however, the current understanding of adverse personal relationships should be abolished. By abolishing the current understanding of an adverse relationship, it is understood in the Arbour report that personal relationships should be accommodated when necessary and disclosed.
Status: Underway
The 5th EMR notes that the DND/CAF are currently in the process of reviewing the DOAD on personal relationships following the recommendation to update the advice. The current policy puts the onus on a senior member to decide if the difference in rank exists, and therefore the relationship is adverse. This leaves too much open to subjectivity and interpretation.

It is interesting that when mentioning this specific recommendations, Madame Therrien brings up the issues the DND/CAF have in keeping up with extensive policy changes and both the administrative work and staff expertise that is required to update all policy documents. This is said to lead to overcomplicated policy documents that are weak in content and structure which has a knock on effect on how clear and decisive the advice on misconduct can be. Justice Therrien thinks this issue is not the result of a lack of will from inside the forces, but we should be careful not to allow this issue of administrative capacity to become an excuse for inaction.

Madame Therrien suggests that the military should adopt a 'whole-of-enterprise' approach that 1) assesses how the policy needs to be changed 2) decides who/which instrument is best placed to carry this out 3) introduce a regulatory body for DOADs - as is already in place for overseeing regulatory amendments. This will help create an integrated system that is more strategic and deliberate in policy making work.
This commentary likely explains the the various delays we have seen in implementing this recommendation alone.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.

The CAF should not have the jurisdiction to oversee Criminal Code sexual offences, instead, they should move exclusively to the civilian criminal court system. Specifically, it would be an injustice to keep sexual offences within the CAF jurisdiction. This allows for less interference and a fair proceeding to happen. The current procedures in the military justice system fail victims.
Status: Underway
There has been some progress towards this change, but it is still a distance from implementation.

In Spring 2024, Bill C-66 for military justice reform, which including removing military jurisdiction over Criminal Code sexual offences was introduced. However, it died at the second reading after parliament was prorogued for the general election at the beginning of 2025.
In September 2026, MND McGuinty introduced An Act to amend the National Defence Act and other Acts (Military Justice System Modernization Act) which brings back the legislation that was originally introduced in Bill C-66. There are four main pillars to this proposed legislation:
1. The removal of the CAF’s investigative and prosecutorial jurisdiction over Criminal Code sexual offences committed in Canada.
2. Exclusion of military judges from the summary hearing system, and expand access to Victim Liaison Officers, under the Declaration of Victims Rights, to individuals acting on behalf of a victim.
3. Align provisions related to sex offender information and publication bans with the amendments made to the Criminal Code in An Act to amend the Criminal Code, the Sex Offender Information Registration Act and the International Transfer of Offenders Act. These proposed changes are essential to ensure the military justice system remains constitutional and aligned with the Criminal Code and the civilian criminal justice system.
4. It will also address eight recommendations (2, 7, 8, 10, 13, 14, 15, 16) from the Report of the Third Independent Review Authority to the Minister of National Defence of the National Defence Act by former Supreme Court Justice Morris J. Fish.

In conjunction with this, there has been some progress on the pilot project to transfer cases to provinical courts. This is done under the jurisdiction of the Canadian Forces Provost Marshal (CFPM). So far, 242 cases have been refered to civilian provinical police forces, with 58 declined. There is also 308 possible cases that have not been transfered, mainly at the victims request.

A wider framework is in development for standardizing provincial case transfer. A WG has been established between the CFPM and the Ontario Solicitor General. The idea is to develop a framework that can then be modeled in other provinces, with it remaining a possibility that a protocol for Ontario to be agreed this summer.
One of the key areas currently being discussed is a system for information sharing between the military and provicnal courts. This is particualry important for relaying back to the CAF when cases don't result in criminal proceedings but may still be relevant for military disciplinary and admin processes.

Overall, there is movement towards change, but the key element - military justice reform - seems to be at a standstill for the moment.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.

The DMCA should work with external resources regarding administrative reviews from 2015 to date relating to sexual misconduct, specifically for those members who did not have any career restrictions put in place. This is to be done to understand why these members were able to advance their careers despite sexual misconduct allegations and investigations. This includes understanding if and how service members were released from the CAF, ensuring transparency of administrative action following sexual misconduct, and data on how complaints are handled. Ultimately, this is to be done to ensure the best practices going forward.
Status: Implemented
The recommendations from the Externally-led Review Committee (ERC) have been accepted and listened to, with key items being prioritized for reform following the review of 80 files in which members were “retained without career restrictions” despite being recommended for release by commanding officers (COs). The key items are:
- Changes to the decision making framework, including removing the spectrum of severity and corresponding chart of consequences.
- Changes to decision making structure, including creating a board with experts on: administrative decision-making, sexual misconduct and member’s CO.
- Changes to mechanics of the process, including creating a more robust case management system standardized access to information including that held by police/prosecution offices. this reform is linked to the Ontario Solicitors General protocol being developed as detailed in #5.
Madame Therrien does note that while some of these items have been planned for immediate reform, while others are only being considered. Therefore, while this recommendation has now been implemented - the review has taken place - there is not space for full optimism about the extent of changes.

This is in area in which the 5th EMR goes into significant detail on the need for the CAF to reform. Madame Therrien stresses that the CAF should do more to get up to date with civilian case law on workplace sexual misconduct superior courts judgements and how these have changed over the past 10 years. This is especially important following the adoption of CLC definitions of sexual misconduct and harassment. This CLC alignment also comes with more up-to-date information on employer obligation and workplace safety legislation. Updates since 2021 mean that workplaces can be held liable if not enough is done to ensure they remain harassment free.

The trend in these civilian workplace judgements is that dismissal is favoured or upheld in less 'severe' cases, often after the first incidence of unwanted sexual touching. Similarly, remedial measures, such as transferring members to separate them from victims, have become less commonplace not only as it puts others in the workplace at direct risk. As a result, Madame Therrien urges the CAF to start basing their decisions on civilian case law rather than past CAF cases, which now seem outdated.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.

There should not be any objections to section 41(1)(a) of the CHRA by the CAF. Further, the CHRC should be able to assess any and all complaints of sexual harassment or discrimination at any stage, regardless of if the complainant has exhausted all internal complaint procedures. In order to ensure timely assessments of complaints, the Minister should ensure the CHRC and the CHRT are adequately resourced and prepared to handle complaints quickly. Further, the CHRC should be able to interpret the Canadian Labour Code definition of harassment broadly, to capture the uniqueness that is the military environment.
Status: Underway
In her second report, the External Monitor confirmed that this new approach has been widely communicated in several ways, including from the Minister’s office, on social media and via a CANFORGEN message. However, since 2023 the CHRC has received only 83 complaints, with 29 now concluded and representatives of the CHRC continue to meet with staff of Conflict and Complaints Management Services (CCMS) units from bases/wings to explain the role of the CHRC and how the process works. Also, only one case as of November 2024 had led to a commitment by the CAF to address shortcomings in their complaints process. Thus, questions remain as to the extent to which this recommendation has been effectively implemented.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
The CHRA should revisit the awarding of legal costs and increase the amount in damages, removing the cap of $20,000 that is found in most Canadian jurisdictions. The current cap on legal costs and awarding for damages is a deterrence for victims coming forward as legal costs can be more than the award, further perpetuating the burden that victims face in the light of sexual harassment. In addition to this change, many CAF members would not be eligible for free or reduced-cost legal support in most provinces due to their income. Allowing the CHRT to award legal costs and removing the cap on damage awards ultimately will improve justice for victims.
Status: Underway
Given this recommendation falls under the jurisdiction of the Department of Justice, Minister Anand has brought this recommendation to the attention of the Department of Justice officials to continue to work on implementing it. While this was one of the 19 recommendations promised for implementation by 2024, there remains a lack of clarity on the effective, rather than simply formal, implementation of it. As of June 2025, no new information about improvements in communication had been received.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.

Complaints related to sexual harassment or discrimination on the basis of sex or involving an allegation of retaliation for reporting should be directed to the CHRC, but only if the complainant chooses to do so. While not all grievances will fall under the jurisdiction of the CHRC, those that do fall under should be able to proceed instead of waiting to exhaust all options internally. The CAF should not reject the jurisdiction of the CHRC, even if internal means have not been exhausted yet. Forcing victims to go through the usual chain of command, which can be an extensive and lengthy process, is an unnecessary step when the CHRC should be able to hear grievances that would typically fall under their jurisdiction in other circumstances.
Status: Underway
Given this recommendation falls under the jurisdiction of the Department of Justice, Minister Anand has brought this recommendation to the attention of the Department of Justice officials to continue to work on implementing it. As with recommendation #7, the new approach allowing servicemembers to seek justice through the CHRC has been widely communicated in several ways, including from the Minister’s office, on social media and via a CANFORGEN message. However, given the few cases that have been brought to the CHRC since 2023, similar questions remain as to the effective implementation of this recommendation.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
Instead of letting sexual misconduct cases to sit within the system, they should be fast-tracked and prioritized. The purpose of this recommendation is to ensure sexual misconduct cases are dealt with promptly at the IA and FA levels. Further, this recommendation is intended to remove a barrier to reporting sexual misconduct. Going outside the chain of command is intended to improve consistency and the barriers that remain to reporting. Fast-tracking sexual misconduct cases is the least that can be done to repair relationships with victims instead of making them go through the lengthy process as it stands currently.
Status: Underway
For recommendation #10, there are several parts and sub-recommendations that will take time to make changes to the current military grievance system. As seen in Arbour's report, the intent of this recommendation is to ensure that grievances related to sexual misconduct are dealt with efficiently at all levels, away from the victim's chain of command and to remove barriers to reporting.
The CPCC has reported to the External Monitor that these grievances are now being expedited and that the new process includes a review by a subject matter expert within the office of the CPCC. In addition, these grievances are already being referred to MGERC, pending regulatory change. In the past-year-and-half 34 cases have been identified by CPCC and submitted to MGERC. A more formal system will be implemented as part of the transformation of the grievance system, and the required amendments to the Queen’s Regulations and Orders (QR&O) are underway.
The 4th EMR also reported serious issues with data tracking and reporting which are inhibiting progress in reform of the complaints process. The issue is such that there is low confidence that anyone in the CAF can can use data to determine, with any degree of confidence, either the true scale of the problem or the extent to which the organisation has taken the appropriate measures in response.
The CAF is working to overhaul the database but unfortunately, they have chosen an incremental approach which will first reconfigure the database of hate speech, and then apply the process to other forms of misconduct. This deprioritises MSV reporting.
A positive update coming out of the 5th EMR is that the CPCC is now the recognised initial authority for sexual misconduct grievances and they use the expertise of SMSRC and then if needed refer to Military Grievances External Review Committee (MGERC), who in the last year received 24 cases.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.

There should be several amendments regarding sexual misconduct under DAOD 9005-1. Specifically, Article 5 should be removed, which includes the duty to report. There are exceptions to this rule as it is currently practiced, with an understanding that officers do not have to report sexual misconduct. This is a problem as to counter-act under-reporting, the policies as they stand enforce the duty to report with limitations. There are no consequences for not reporting incidents, contributing to the issues of under-reporting. Ultimately, abolishing the duty to report would allow the CAF to move toward a more victim-centred approach.
Status: Completed
In response to recommendation #11, CAF/DND tasked the Duty to Report Working Group to develop a draft policy that will exempt sexual misconduct-related offences from the duty to report.
As of June 2024, CAF members are no longer bound to the Duty to Report for any forms of misconduct. This is in recognition of the need for a "trauma informed" approach, which gives agency to the victim in reporting. While applicable to all forms, this move represents an important step towards cultural change in relation to sexual misconduct particularly.
Members are still encouraged to report infringements, especially when there is no direct victim or affected person. It is also still mandatory according to three key conditions: when personnel are threat to themselves or others and in cases of abuse of child and financial crimes related to public funds.
The implemented changes to QR&O 4.02 (for Officers) and 5.01 (for NCMs) showing the repeal of subparagraph (e) referencing duty to report infringements, can be seen in each link above. However, as with changes to #1 and #2, it will be important to monitor the speed of updates to all relevant policy, and how well the changes are communicated. The 4th EMR notes the importance of this to ‘ensure coherence with the overarching philosophy that has been made official through the repeal’.
Alongside this duty repeal came changes to responses to reporting. Formal disclosure is no longer needed to access services/support, reported incidents must be entered into database within 2 days and direct reporting by victims to CHRC is now possible.
The 5th EMR has provided updates on how this repeal has progressed. There is still some admin related to the repeal being carried out, but all notable documents have been updated, including the Respect in the CAF (RitCAF) application and Victim Liaison Officer program.
It has since been announced that the Chief Professional Conduct and Culture (CPCC) would be looking at all policy, training procedures and performance measures to develop a plan for necessary mandatory reporting in specific situations as well as looking at what other barriers to reporting remain in place.
Madame Therrien also thinks the CAF needs to do more to reflect on how big of a change this repeal was, and if they have done enough to communicate this to make sure its repercussions are fully understood (only a CANFORGEN). She also welcomes the and emphasises the need to look at other barriers to reporting.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.

The SMRC name should be changed from the Sexual Misconduct Response Centre to the Sexual Misconduct Resource Centre to better reflect the services it provides. Under the guise of a Response Centre, this has led to mass confusion that it was intended to be a centre to handle sexual misconduct and harassment reporting and data collection. While this was the original intent of the Centre in the Deschamps Report (2015), the Arbour Report recommends that the SMRC focus on victim support and concludes that changing the name will be more reflective of the services it is to provide and would clear up confusion.
Status: Implemented
Following Arbour's recommendation to change the name of the SMRC to be more reflective of the services it provides, Minister Anand has directed DND to implement this recommendation in a manner that better describes the services it provides. As mentioned in Minister Anand's report, DND committed to implementing the renaming process by the end of 2022. As of May 2023, the Sexual Misconduct Response Centre (SMRC) has been changed to Sexual Misconduct Support and Resource Centre (SMSRC) to better reflect the services it provides.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
Consistent with the change to a Resource Centre, the SMRC needs to be reinforced to operate like a resource centre. As a resource centre, the SMRC should only interact with victims of sexual misconduct. Under the current guidance as a Response Centre, the SMRC can provide services to those in the chain of command and those who have been accused of sexual misconduct. Focusing on the victims themselves is consistent with the arguments of moving toward a victim-centred approach, and removes any real or perceived conflict of interest. By operating as a Resource Centre, the SMRC is able to provide the tools and support to those who have faced sexual misconduct, which can help them make informed decisions and learn about the processes of moving forward with complaints.
Status: Implemented
Recommendation #13 was accepted by Minister Anand in 2022. DND/CAF are continuing to move forward with reviewing the mandate and client scope of the SMRC to ensure that the needs of Members are being met. Following Minister Anand's announcement in May 2023, in line with the Arbour Report, this recommendation was implemented and the SMSRC is no longer responsible for monitoring the CAF. The 2023 annual report of the SMSRCshows that more than 1400 new cases were created, demonstrating that the demand for SMSRC services appears to be growing year to year.
In the 5th EMR, it was revealed that the Restorative Engagement initiative - a response to Heyder-Beattie final settlement agreement - now features various options for engagement including the chance for victims class members to meet with and explain their experiences to DND/CAF leaders. This gives victims a voice in making change with the potential for their experiences to inform the organization of root causes of military sexual violence and how they can adapt policy with this knowledge. So far, 2,154 claimants and 286 Defence representatives have taken part and it is considered a successful initiative.

It was also revealed in July 2025 that the SMSRC has scaled back its 24/7 service support to 7am-9p, Eastern Time and outside of these hours calls are to be answered by the Health Canada’s Employee Assistance Program (EAP) or clients can leave a voice mail to be followed up by SMSRC the following day. They have cited a desire to focus resources during the hours when most clients reach out to them.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
The SMRC should be treated as the 'front door' for victims seeking support and provide intermediary legal, medical and career advice, including connecting victims with appropriate resources. This recommendation emphasizes the importance of legal support to victims and concludes there needs to be immediate access to legal assistance for all victims of sexual misconduct. To ensure the legal support is free of interference, the SMRC should compile a roster of civilian lawyers should around the country who are able to provide the advice and assistance that is needed to survivors of sexual misconduct. To ensure the process is burden-free, the SMRC should prepare a fee schedule and set up direct payments to the lawyers so that victims do not have to worry about the potential costs of seeking legal advice, another potential burden that prevents victims from reporting.
Status: Underway
This process is moving well towards full implementation. The CAF/DND have recently introduced the Independent Legal Assistance (ILA) Program. The first phase that focused on reimbursement of legal claims was rolled out in February 2025. These reimbursements include expenses for legal information, advice, and representation in the military or criminal justice systems. In May 2025 , the program then progressed into offering full time legal information and assistance. This service is available to all DND/CAF staff over the age of 18 and offers bilingual advice from lawyers experienced in working on cases and sexual assault.
However, the next stage is important for complete fulfilment of this recommendation. This involves bringing in a full roster of full-time, civilian lawyers available to CAF members are various locations. Importantly, these lawyers would be paid directly by the SMSRC so that any financial burden, even temporary, bypasses the victim. The request for lawyers is expected to go out in January 2026.

In his press conference relating to the 5th EMR, MND McGuinty said that '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' but he also admits that 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'. Thus, while there has been progress, the difference between legal assistance and full time access to in-house lawyers means that we are still a way off from seeing successful implementation.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
The ownership of training and prevention of sexual misconduct should be moved to the CPCC. The purpose of this is to provide ownership to the CPCC, which is seen as the centre of expertise in aligning Defence culture with the Defence Team. This recommendation wants to provide the CPCC with more ownership in the creation of policies and implementation of training but keeps the SMRC at the centre of handling sexual misconduct complaints and supporting victims. As the experts on the topic, the SMRC should be consulted but not the sole body for information or training.
Status: Implemented
Minister Anand has directed the SMRC's authority of sexual misconduct training and education to the CPCC has been implemented. As mentioned in Therrien's report, this was previously assigned to the SMRC but has now been transferred to the mandate of the Chief of Professional Conduct and Culture.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
Monitoring the CAF effectiveness in responding to sexual misconduct should not be within the SMRC mandate, despite being considered the expertise in handling sexual misconduct. As the SMRC stated, there is a contradiction between providing support services while also monitoring their effectiveness. To be consistent with the victim-centred approach that Arbour argues for, the SMRC should not be involved in monitoring the CAF's responses to sexual misconduct. The SMRC should direct any concerns about effectiveness to the ADM(RS) to investigate allegations and monitor.
Status: Implemented
Minister Anand had directed DND to accept and implement this recommendation. This recommendation was implemented in May 2023. The SMSRC is no longer involved in monitoring CAF's effectiveness in responding to sexual misconduct.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
The report acknowledges calls for the need for independence of the SMRC; however, the report claims that the current structure is the most effective and that there is no other viable option that would serve the SMRC mandate as well as it currently does. The SMRC still needs to operate independently but still work with the CAF to ensure awareness about the available resources to its members.
Status: Implemented
Following Arbour's recommendation that the SMRC should continue to report to the DM, this recommendation has been implemented and the SMSRC will continue to report to the DM.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
As previously suggested by Arbour, the SMRC needs to be more independent in order to maintain trustworthy relationships with the members to which it provides assistance. The administrative structure needs to be reviewed to increase its independence. As mentioned in the report, the SMRC's funding and budget are reviewed by the VCDS. This should be reevaluated to ensure that the CAF has no say in how the budget and funding are created. To ensure independence, the SMRC should not be given other responsibilities that could compromise its independence.
Status: Underway
In November 2023, it was reported that much effort has been dedicated to increasing SMRC autonomy. This revised structure has been approved but not yet formalised.
In May 2024, the Third External Monitor’s Report stated that SMSRC’s funding schedule has presented challenges for the management team in planning its core activities, such as its independent legal advice and the Peer Support Program.
The 5th EMR considers this issue as ongoing: attempts to stabilize the financial and administrative situations have seen little success. Some permanent positions have been created at the executive level, but the rest of the organization's structure is still in flux. This creates big issues in ensuring expertise level and continuity of support for clients. Most expenditures are now also included in the baseline budget, including the two key programs: the Peer Support Program and Grants Program. This is an improvement on previous year-by-year financial provisions.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
The EAC's role needs to be revisited to better support the SMRC. Originally created to provide advice and recommendations regarding Operation HONOUR, the EAC's advisory committee should be restructured to review and support the SMRC's mandate. Currently, the advisory board is made up of external experts who are recommended by the Executive Director. To better support the SMRC, the EAC advisory board should be made up of external experts and advocates for victims and survivors. Within this new advisory board, there should be adequate representation of equity-seeking and minority groups who are disproportionately affected by sexual misconduct. Further, Arbour recommends the EAC publishes annual reports, alongside the SMRC, to highlight the evolution of the SMRC. This is intended to help support the SMRC where the SMRC might feel restrained.
Status: Underway
There is currently a review being done on the EAC's role. This work is nearing completion, and the Terms of Reference are expected to be finalized by the end of this fiscal year.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.

The recruitment of the CAF should be restructured, specifically regarding the enrolment and basic training processes. The current structure of the recruitment process is lengthy. If there was a probationary period created, this could be used to screen out those who do not meet the expectations of the CAF, overall shortening the recruitment process significantly. Additionally, this could modernize the recruitment process. Given the time that is invested into training each member is lengthy, by shortening the recruitment timeframe to allow for more screening and an overall improved assessment of members within a probationary period, it may be easier to discharge them earlier for misconduct or not meeting expectations that it would be further into their career.
Status: Implemented
There have been significant changes in regard to recruitment, enrolment, and basic training. As outlined in Minister Anand's report, the basic military training qualification is being redesigned to build inclusive teams, focusing on character, professional conduct, individual and team resilience, and military skills. This program is also being shortened from 10 weeks to 8 weeks. A new upcoming approach to the recruitment process will include a digital applicant portal and IT infrastructure, redesigned medical and security screening processes, improved aptitude testing and Information Sharing Agreement with Immigration, Refugees and Citizenship Canada (IRCC) to increase recruitment of low-risk foreigners. Many of these have been underway since May 2024.
Most recently, a trial was carried out for for bypassing aptitude test (CFAT) for those with degrees/college diplomas. More than 3000 recruits had been processed in this way between April and November 2024, and their are plans to extend the trial to other groups.
As of December 2024, the CAF now mandates a probationary period for all recruits, both in the regular forces and the reserves. This period serves two purposes: 1) it helps to make the recruitment process more efficient, by allowing extra time for the assessment of medical and security suitability and 2) supports a more swift removal of unsuitable candidates who show they are not aligned with the modern military ethos.

This probationary period has also been accompanied by modifications to the statement of understanding signed by all new recruits that ensures they are aware of of the purpose of this period.

More recently in 2025, power has been given the specific training establishments to have direct involvement in the release of a probationary member. In the RMC, this change has given power to the colleges' commandants rather than it first needing to go through a central authority. Madame Therrien notes that this is significant authority shift in the CAF.

In terms of tracking the success of this probationary period, the unit responsible for military careers will collect data on probationary releases to help inform future adjustments to the process. For now, it may be considered implemented.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
To reduce the current burden on the CAF, there should be some outsourcing of the recruitment functions to civilian experts. As suggested by Arbour, this could allow for better recruitment and allows CAF members to continue to work within their operational duties. Another reason outsourcing recruitment could be beneficial to the CAF in the long term is currently there are no female staff members working at some of the recruitment centres. By having a far more representative and diverse face of the recruitment staff, there may be the ability to also recruit diverse members. Outsourcing might be the solution to the lack of diversity that is currently represented by the CAF.
Status: Underway
There has been some work already started to outsource recruitment functions as per Arbour's recommendations. This began with work on comprehensive contracting strategies to outsource recruitment. throughout the 2023/2024 fiscal year. The CAF also worked with other organisations to tap into information that has already been collected. The outsourcing so far includes reference and background checks.
As of November 2024, no new avenues for outsourcing had been started. The current priority is to re-engineer the process of deciding recruitment needs, especially through digitalisation of this process, and then they will assess the best outsourcing options.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
Consistent with the introduction of a probationary period, the CAF should create new processes to ensure that problematic attitudes on cultural and gender-based issues are dealt with early on in the recruitment phase. There should be filtering in place to deal with any problematic attitudes early on, either at the pre- or post-recruitment stages, but it should not be left not dealt with for a long time. Ruling out undesirable opinions and attitudes is one early step to preventing misconduct, simply removing the candidates in the early phases of recruitment.
Status: Implemented
For recommendation #22, there is currently research underway looking into the best ways to satisfy this recommendation from Arbour. Work is ongoing regarding ways to improve the assessment of cognitive capacity, judgement, and character.
The introduction of the probationary period for new recurits, as laid out in #20, should make significant impact on the dealing quickly with problematic attitudes.
In his press conference relating to the 5th EMR, MND McGuinty also noted that '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'. This also indicates a move towards a more considered process to ruling out problematic attitudes.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.

To improve the training of members, the CAF should equip all schools with the best possible people and instructors. The training schools of the CAF are where cultural expectations are learned and fostered, requiring that these be taught by the best instructors possible. The CAF should prioritize training units and teaching positions, instead of allowing them to be considered a hindrance to career progression. There should be incentives for the positions, such as pay increases, promotions, or other career training. To ensure the best teachers possible for these positions, there should be an outreach to respected members and those who have shown they are good leaders to train future generations of members.
Status: Underway
The key to implementing this recommendation is addressing the inadequate background and attitude that those responsible for training within the CAF have when it comes to sexual misconduct and military culture.
The importance of well-suited instructors was duly noted by the CAF. In 2024, there has been an intentional move from away from the prioritising volume filling vacancies towards a deliberate approach based on moral suitability. This includes several initiatives to promote best-fit postings to the Canadian Forces Leadership and Recruit School (CFLRS).
As of June 2024, there has also been a re-design of several programs, including the basic military qualification curricula at the Canadian Forces Leadership and Recruit Training School (CFLRS) and the Intermediate Leadership Program at the Osside Institute. The Assistant Deputy Minister of Review Services (ADM(RS)) is conducting an evaluation of military justice and grievance training modules. Training at the police academy has already been evaluated, and report on military training is to follow.
The latest attempt to address this has seen the introduction of Character-Based Leadership workshops for instructors. These have received positive feedback. A screening tool has also been developed to help with more structured and systematic nomination of qualified instructors.
There has been limited improvements to the attractiveness of instructor roles. Teacher positions have now been placed on the same promotion scoring level as deployment, but the financial disadvantage that can minimize the vitality of this role is still an issue. Madame Therrien reports that the CAF is looking at ways to raise the profile of the instructor role but no detail is provided.
In connection with this recommendation, Review Services will soon publish an evaluation report on the state of several CAF training programs, including modules on military justice and grievances.
Overall, Madame Therrien reports that instructors are being expected to keep up with their own professional development and ensure that the way they are teaching is inline with modern military policy and culture. This approach has been chosen in place of #24, which recommends the creation of a new permanent trainer occupation.
She does, however, state in the 5th EMR: 'in my opinion, anyone looking to become a better leader in the CAF has ready access to modernized, interactive didactic materials and training sessions.’
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
To assist with the incentives to Arbours recommendation #23, the CAF should assess the advantages and disadvantages of forming a new trainer/educator/instructor occupation or as a specialty within other support roles. Creating permanent training positions could add to the culture of the CAF, including attracting diversity to the CAF, as suggested by Arbour. The skills and relationships that an educator would offer have many benefits, not just to themselves but also to the CAF as a whole, with the potential for this position to be a major change to the CAF.
Status: Implemented*
Following evaluation of the the possibility of a new and unique trainer role, the CAF have decided to go ahead with other strategies as outlined in #23. Therefore this recommendation is implemented, with with no subsequent reform
*The recommendation has been marked with a * to indicate that the assessment of new roles has been done, but they have not been introduced
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
Consistent with Arbour’s recommendation #22, there should be a new process put in place to remove any trainees at the early stages of recruitment or training who are clearly unable to meet the ethical and cultural expectations of the CAF. While the CAF may be under pressure to retain as many members as possible, the ultimate goal of the CAF should be to keep only the best recruits instead of allowing those who clearly do not meet ethical and cultural expectations to stay. In line with previous recommendations, the CAF should implement a probationary period policy in order to weed out those who will not be able to meet the expectations early on.
Status: Implemented
With the improved recruitment and training procedures, it is expected that CAF will be able to screen out those who are unable to meet the ethical and cultural expectations of CAF. Minister Anand has directed DND/CAF to pursue the creation of a probationary period to ensure problematic views and culture are screened out.
As seen in updates to #22, the new probation period has been fulled implemented, and in military colleges there is no longer a need to go through central unit before making a decision on ending the probationary period.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
Allowing CAF members to be seconded into the private sector and government departments ultimately will benefit the CAF in the long run. When members are able to work and gain experience in the private and government sectors they have new perspectives and knowledge that in return will benefit the CAF. Having members and employees who come from a variety of backgrounds and experiences will improve the culture of the CAF. This is invaluable knowledge that the CAF should seriously consider implementing for CAF members.
Status: Not Started
The Second External Monitor’s Report stated that some steps have been taken with regards to allowing CAF members to be seconded into the private sector, such as updating the secondment inventory and identifying which GOFO specialist positions within DND/CAF would benefit from exposure to external organizations, either other government departments or the private sector. An updated Secondment List, potentially inclusive of ranks below GOFO, was discussed in early 2024 at a senior level military governance committee. Once the necessary talent management structure has been created, the CAF will proceed with the terms of reference for the prioritized secondments and move ahead, subject to capacity and support from other government departments and external organizations.
As of November 2024, we are awaiting discussion about senior officer secondments which are being done with the results of the GOFO section boards in the coming months. Updates are expected before the first EMR of 20205 in May.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
After previously treating the Deschamps report as a checklist, the CAF should be fully committed to implementing it in regard to training related to sexual offences and harassment. To date, the recommendations from Deschamps have not been implemented fully or as intended. As Arbour describes, the CAF needs to work to improve the effectiveness of training related to sexual offences, misconduct, and harassment. There needs to be more than just online modules. Training should be a combination of modules and integrated practices. Further, training needs to come from field experts instead of relying on the chain of command to implement proper training.
Status: Underway
Minister Anand stated in her December 2022 report that CAF should fully implement all remaining recommendations from the Deschamps' report. The CPCC is to become responsible for training, which is in line with the previous recommendations from Deschamps and the new recommendation from Arbour. There have been a number of developments occurring with regards to this recommendation in the Canadian Defence Academy and CPCC and a policy is expected to be released in Spring 2025.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.

As described in the report, Arbour has found that the Cadet Wing has outlived its purpose and is now doing more harm than good. The instilled values in the Cadet Wing are damaging and undermining the potential to change the culture of the CAF from within the RMCs. There should be a move towards new, modern values, through better means.
Status: Underway
There have been some changes to the Cadet Wing and their role in the RMC's. There have been changes to the recruitment and selection processes, training and mentorship, and supervision of senior cadets. Notable though in Minister Anand's report is that they find the immediate removal of the CCoR would be detrimental to cadets, depriving them of military leadership experience.
As updated in the 5th EMR, the Canadian Military Colleges Review Board (CMCRB) 2025 report has strongly recommended that the Cadet Wing authority structure should remain in place but with significant modification, including removing all authority to impose corrective measures or make decisions on the loss of privilege. This should ensure that no cadet has any disciplinary power over another cadet. We await the implementation of this CMCRB recommendation.
More information on the background to this report can be found in #29.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
Due to the systemic problems that remain within the culture of the RMCs, there should be a serious consideration for if it would be worthwhile to continue to educate cadets at the military colleges. There are serious concerns within the structure and culture of the RMCs that warrant questioning if they are vital to the future of the CAF. Having students attend civilian universities instead of the RMCs might be beneficial, similar to Arbour's recommendation #26. In the meantime, the CAF and CPCC should work with the RMCs to address the systemic cultural concerns regarding sexual harassment and misconduct that are running throughout the RMCs.
Status: Implemented
In early 2025, the external Canadian Military Colleges Review Board (CMCRB) submitted its report to the minister. This was then published in March, revealing 49 recommendations which will now be used to guide changes on an array of matters. There main finding was that the colleges should remain, but are in need or major reform in order to combat harassment, sexual misconduct and harmful misogynist and racist behaviours.

The recommendations for reform fall under four main headings; 1) identity refocusing 2) governance restructuring 3) program rebalancing and 4) rejuvenating the infrastructure and operations. The DND/CAF have mapped out all 49 recommendations. Some have been actioned but other rely on long-term budget and infrastructure changes and so could take years to address. As a result, this recommendation can be considered 'implemented' as the rethinking has taken place, but the process for reform is still in the very early stages. One recommendation requires an annual report to the Minister and so moving forward, it may be a good idea to track the implementation of these changes alongside those in the Arbour report.
Other previous updates include:
One change noted in the 4th EMR is that RMC Kingston decided to removed the requirement to pass the PPT and physical fitness standard to be recommended for promotion, and replace it with the already universal annual requirement of CAF FORCE evaluation.
A survey was administered in 2023 to the entire student body at both Royal Military College of Canada in Kingston (RMC) and Royal Military College Saint-Jean (RMC Saint-Jean) to capture to capture cadets’ experiences with sexual misconduct or discrimination. In may 2024, the survey was released to the public, revealing that 5% of women at military colleges report being sexually attacked . Further findings are similarly damning with 82% of female students and 64% of male students reporting facing sexual jokes over the previous year as well as more than half of the female students surveyed said saying they experienced unwelcome physical contact or inappropriate sexual comments about their appearances or bodies. Both the PM and MND have responding to these ‘unacceptable’ findings and promised that things will change but the survey seems to only highlight ongoing issues and not progress. The 2024 survey results are being formulated and will soon be discussed with cadets and staff before then released to the public sometime in 2025.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.

When members are being praised it should be confirmed, to the best of their abilities, that the member is not being subject to any investigations at the moment regarding criminal, disciplinary, administrative or sexual misconduct. If any allegations come to be known, they should be disclosed as long as the information would not compromise the investigation. This is to strengthen the integrity of the system itself, ensuring those members who are under investigation are made aware to the system. As Arbour suggests, this is not to say that members under investigation do not get promoted, but to make allegations and information visible. The PAR system puts too much emphasis on performance and not enough on the conduct of members.
Status: Implemented
In relation to the recording of conduct deficiencies, the Minister directed the CAF to take account of completed investigations in the performance evaluation process and to take account of ongoing investigations as a factor in determining suitability for promotion. Early in 2023, a directive was issued in relation to the performance evaluation process stating that “comments shall be made on members who, during the reporting period, are subject to administrative or disciplinary action for a conduct deficiency, or conduct deficiencies, or convicted of a civilian offence”.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
Building off of recommendation #30, Arbour is worried about how selection boards do not have full access to a member's complete personal record. To mitigate this, the board should have access to all serious misconduct, at minimum any convictions that are under the Criminal Code, including but not limited to sexual misconduct. The CAF should create policies and procedures for selection boards regarding how to evaluate past misconduct and how to include this in decision-making. For convictions that have been suspended, these should be removed from the member's personal record.
Status: Underway
The focus for implementing this recommendation has been on bringing in more focus to character as well as competency and performance in leadership and promotion decisions. In order to do this, the CAF have introduced a new 'past conduct deficiency' form that must be completed for all potential promotions to and above LCol/Cdr to CWO/CPO1 rank. This form requires a review of members personal file and conduct sheet by the commanding officer and must include assessment for both on and off duty behaviour. For the same ranks and above, a screening form must also be submitted certifying that the member is not subject to any administrative or disciplinary action or conviction for a civilian offence.

However, it is not yet in all ranks. The focus has really been on leadership and this is important, but feel it needs whole sale implementation for it to take real effect.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
When Arbour was writing the report, there were only 15 women out of 140 GOFOs. Of the 15 women, only one was a black woman and one was Indigenous. To correct this vast over-representation of white men in the GOFO ranks, the Minister should be supported by a civilian advisor who is not a member of the Defence Team, who would act as an advisor to the Minister. Further, the Minister should consult with the CDS to understand what efforts are being made to have fairer promotion protocols and efforts to correct the over-representation of white men. Currently, the GOFOs are not reflective of the diversity that is Canada or the CAF.
Status: Implemented
Various options have been studied and the Minister has decided to formalize changes that were introduced in 2021 to the promotion process. These changes include the participation of two civilians: one, a senior Defence Team voting member who sits on the national selection board and the other, a contracted third-party interviewer who provides written input to the CDS. The contract provides for the Minister to be able to discuss with the contractor anything that arises out of the interview process, if required. While this external assistance is now available to the Minister, efforts being made to correct the over-representation of white men in GOFO ranks are ongoing.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
It is important for senior leaders to embody the values that the CAF is trying to get rid of. For this, there needs to be a 360-degree review in the promotion of GOFOs to weed out any who do not embody the values of the CAF and to end the damaging culture that remains. Only those who demonstrate the core values of the CAF should be the leaders. To ensure this, an external expert should be reporting to the Minister about the efforts and promotions that are happening.
Status: Underway
The November 2023 External Monitor’s Report announced that anyone being considered for a promotion to the ranks of General and Flag Officer now undergoes three separate psychometric tests designed to evaluate leadership skills, cognitive ability, reasoning skills and dimensions of character. Those selected for further consideration undergo another assessment that is based on feedback from multiple evaluators (360 degree). These tools have now been used for annual promotion cycles in 2022 and 2023, and again for the promotion cycle currently underway.
As of 2025, The CAF is still in the process of establishing a new contract for the psychometric tools that are used to assist evaluation for promotion. As a result of this, the annual external expert review has not taken place yet. This has also led to a delay in extension of the tools for promotions in all recommended ranks.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
Similar to recommendation #33, the new processes for GOFO should be expanded to all candidates being considered for promotion of lieutenant-colonel/commander or above, or to the rank of chief warrant officer/chief petty officer 1st class. This is the least that could be done to ensure that only those who embody the values and culture of the CAF are being promoted.
Status: Underway
In relation to recommendation #33, these tools have now been used for annual promotion cycles in 2022 and 2023, and again for the promotion cycle currently underway. The CDS has directed that a similar process be applied to the ranks of Major/Lieutenant-Commander and Sergeant/Petty Officer Second Class and above. Likewise, this will also be subject to the updated suite of assessment tools to come in 2025. In the meantime, the CAF will consider other evidence-based tools that it could employ for ranks below GOFO, such as an adaptive personality test currently being developed by the internal research team.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
To strengthen the integrity of the system, the PaCE system should include a self-certification or disclosure requirement on the PAR for those who are being considered for promotion. This would strengthen the integrity of the system and the trust of the member to self-disclose that they are not currently being subjected to any current or prior investigations for allegations. As Arbour suggests, this would increase the understanding of the seriousness that these allegations have and that there is no room for these in the CAF.
Status: Underway
The November 2023 External Monitor’s Report announced that candidates’ self-certification regarding past conduct issues will be linked to the promotion and appointment process rather than the performance evaluation process. The CAF has determined that this approach will meet the intent of the recommendation, while maintaining a commitment to due process where allegations have not yet been investigated or closed.
Various parts of this system are now in place but the CAF cannot proceed without the necessary tools. In the 5th EMR, Madame Therrien suggests that the CAF may consider introducing a stop-gap way of showing the effect of changes to promotion protocol are having. She suggests a synopsis presented to the Minister about instances where the measures have led to individuals not being put forward for promotion.
This proposition is interesting, and perhaps a good temporary measure, however, it does indicate that the final touches are are needed for full implementation are a longer way off that we would want them to be.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
As many of the high-ranking positions are led by men, the CAF should establish a system of progressive targets for the promotion of women in order to increase the representation of women in each rank. While there has been previous pushback about installing special programs to promote women in the Forces, the reality is without establishing quotas, women will not make up the goal of 25% of the CAF and will continue to be underrepresented in higher ranks. The fewer women that are in the higher ranks of the GOFO will continue to not reflect the reality that is Canada. The CAF should establish a system to meet the progressive target of 25% by 2025 and to get women into higher-ranking positions while abolishing the stereotype that these special programs are not to be taken seriously and that their qualifications will be questioned in a system like this.
Status: Underway
The CAF Employment Equity Plan has been created to increase the representation, inclusion, and participation of all under-represented groups. This process is ongoing and they recognize that it is more than just numbers, it is about ensuring everyone feels welcome and the current culture does not account for this. See Minister Anand's comments about this recommendation in more detail in her report.
As of June 2024, the CAF has completed a comprehensive analysis of the reasons why women are not equally represented at senior levels of the organization and is considering how to address this. In addition, a forecasting tool has been developed to model the outcome of various representation targets.
As of November 2024, each level 1 organisation with CAF personnel will be assigned specific promotion goals for CAF women, with annual reporting requirements to track progress. The aim is to to create 10-year horizons for work experience and professional development opportunities.
As reported in the 5th EMR, The CAF seems close to establishing a set plan for increasing the promotion of women. In the 2025-2028 Employment Equity plan, which is expected to be shared in the fall of 2025, promotion goals for women will be laid out for each different rank and occupational group. These will be accompanied with measures to track progress on the goals. Depending on how these are presented, it feels that this recommendation could be considered fully implemented once these goals are shared.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
The CAF is currently reviewing the universality of service, but this is limited in scope if a GBA+ lens is not applied to the review. The CAF should be reviewing the universality of service through a GBA+ lens to ensure that women and sexual misconduct victims are being fairly treated, with an understanding of their particular situations and risk factors. A GBA+ lens is essential to the equality of women and sexual misconduct victims in the CAF. Women and sexual misconduct victims need to be accommodated. As Arbour states, "in my view, promoting a gender-blind embrace of diversity is likely to become a self-fulfilling prophecy of failure, as formal, rather than substantive equality always risks doing"
Status: Implemented
The new universality-of-service policy has been released, which included consultation with an external subject matter expert on GBA+ lens inclusion. The 5th EMR implies then that the review has been completed, however little detail has been given on what this looks like in person.
Madame Therrien points out that the review maintains that certain standards still need to be met for promotions, but that the CAF will support those who cannot meet those standards at the moment with the intention of retaining more female members who are not yet qualified for a certain role.
Previous relevant updates:
There has also recently been a report on supporting veteran transitions including recommendation for research into why more servicewomen are medically released then men. The government has said it agrees with the need for this and will develop a ‘long-term research plan that is guided by a Gender-Based Analysis Plus and sex-and-gender approach’ which may has consequences for the CAF universality-of-service policy.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
Currently, there are no established consistencies among all branches of the CAF to address misconduct among those who are being considered in succession planning. As Arbour describes in more detail, it is only the RCN that has a framework in place to look at sexual misconduct among those who are being considered in the succession planning of the Navy. The RCN approach should be adopted by the other branches of the CAF to establish a consistent approach to broader succession planning. This would help establish across all branches that there are issues that are plaguing the CAF and one way to address them is by establishing a culture where sexual misconduct is not tolerated.
Status: Underway
In response to this recommendation from Arbour, Minister Anand has directed DND/CAF to create and develop a CAF-wide policy that addresses misconduct. It is important to note there are some flaws in the current RCN policies, as they only go so far to only look at officers who have faced removal due to a conviction, misconduct or performance. A draft policy that includes instructions regarding the establishment and maintenance of incident review lists is expected to be promulgated at the end of 2024. It includes guidance on how to mitigate bias that may “negatively impact different groups.”
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
The CAF would benefit from including independent civilian members who are not connected to the Defence Team to work on the appointments and promotions of members. Outside perspectives can provide insight and expertise to the board that might not otherwise be available to those who are associated with the Defence Team. This is intended to help keep the succession plans current and reflective of the realities of Canada.
Status: Not Started
The CAF is has evaluated its options for this recommendation and a new policy is expected by the end of 2024 (see #40 for full details). However, it appears that commitment to this recommendation will not be fulfilled. The 4th EMR suggests that the CAF have decided not have completely independent civilians members, but ‘non-affiliated’ CAF members from different level 1 commands and a civilian defence team member with a position just below the executive level.
It will also be important to check that the succession plan honours the previous commitment to ensuring that retired CAF members are not on these boards, even as independent contractors. It is understood this recommendation only pertains exclusively to succession planning and not annual promotions.
This decision was further affirmed in the 5th EMR. It will be important to track the alternative options that the CAF has chosen to pursue and if it is not successful, they made need to reflect and re-thinking bringing in civilian board members.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
Women should be a priority in succession planning. To do this, the CAF should apply a GBA+ lens to the planning, ensuring women are not directly or indirectly discriminated against in succession planning, considering factors including but not limited to maternity leave for example. Women should not be missing out on opportunities that are unique to women and instead should be considered in succession planning.
Status: Underway
The CAF has reviewed its career policies and procedures to identify potential barriers for women. Related to recommendation #38 and #39, a new succession planning policy will be promulgated by the end of December 2024.
As noted in the Arbour Report, succession planning pertaining to women needs to ensure that women are not being discriminated against by succession boards in this process. It will be important to look out for this once the succession plan is released.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.

Given that the ADM(RS) plays an active role in providing input and support, the ADM(RS) role should be increased to update the Minister about all ongoing investigations. This keeps the minister up to date about all active investigations and any other concerns regarding the Defence Team.
Status: Implemented
To address the recommendation that the Minister should be briefed directly on all investigations relating to sexual harassment, sexual misconduct and leadership culture in the Defence Team, CPCC will include in its statistical report(s) to the Minister, all administrative investigations that contain an element of sexual misconduct. In addition, the Assistant Deputy Minister (Review Services) (ADM(RS)) will report annually to the Minister on statistics and activities relating to investigations under DAOD 7026-1, in line with what is required under the Public Sector Disclosure Protection Act. The inaugural annual report on administrative investigations was submitted to the Minister in August 2023 and covered the fiscal year 2022-23. Both of these reports constitute a new practice and will be provided annually to the Minister.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
In line with updating the Minister on all active investigations, the ADM(RS) should report annually to the Minister regarding statistics and activities related to investigations under the DAOD 7026-1, which is what is required under the PSDPA. DAOD 7026-1 is the Management of Administrative Investigations, which covers allegations of administrative irregularities, impropriety, mismanagements or other irregularities regarding the DND and CAF. The PSDPA covers any wrongdoing by public servants. Reporting to the Minister about any violations of either guideline is essential.
Status: Implemented
Similar to recommendation #41, CPCC now includes in its statistical report(s) to the Minister, all ADM(RS) administrative investigations that contain an element of sexual misconduct. In addition, the ADM(RS) will report annually to the Minister on statistics and activities relating to investigations under DAOD 7026-1, in line with what is required under the Public Sector Disclosure Protection Act (PSDPA). The inaugural annual report on administrative investigations was submitted to the Minister in August 2023 and covered the fiscal year 2022-23.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
To ensure accountability, the Executive Director and SMRC should be able to direct the ADM(RS) to conduct administrative reviews that are relevant to the SMRC mandate. With this recommendation, the SMRC could alert the ADM(RS) about a case or concern, directing them to look into the matter further.
Status: Implemented
As stated in the Second and Third External Monitor’s Reports, SMSRC and ADM(RS) have worked together to create standard operating procedures that include the types of investigations that can be referred, and the mechanism to be used to facilitate the referral. There is now a Service Level Agreement between these two organizations with respect to the criteria for any referrals and the mechanism to be used.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
For the GIC appointments that require individuals to be members of the CAF at the time of their appointment, there should be a consideration to remove any legal impediments, including privacy concerns, that hinder access to personnel files in the CAF. Allowing access to personnel files is vital for the integrity of GIC appointments.
Status: Implemented
The established DND/CAF mechanism for removing legal impediments to PCO’s review of documents is to have the candidate(s) sign a consent form for the review of their personnel records and police records check. In addition, current CAF candidates have been required to proactively disclose any administrative or disciplinary action (in addition to that already contained in the applicant’s service records), or any convictions for civil offences. In 2024, this was put in place for the Judge Advocate General (JAG) nomination and will be followed as well with the upcoming Chief of the Defence Staff (CDS) appointment.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
The CPCC should create an online database with all research and policies relating to sexual harassment and misconduct, gender, sexual orientation, race, diversity and inclusion, and culture change. This database should be accessible to the public, except for documents requiring security clearance. Documents that require security clearance should still be listed in the database, with the ability to request them pending approval. These documents should be accessible to the public, academics, and journalists.
Status: Implemented
In October 2023, in response to this recommendation, the Minister announced the launch of an online Conduct and Culture Research and Policy Database. As announced, the database lists approximately 70 research papers and provides links to 80 policies and directives on a range of topics including sexual misconduct, diversity and inclusion, and women in the military. The research products include scientific reports and reference documents on these topics. This database has now been included in a broader Conduct and Culture Data Centre. This is an interactive online tool that contains approximately 150 data metrics from a variety of sources. It was released internally to the DND/CAF in the spring of 2024, and final preparations to provide public access to the Data Centre are underway.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
Academics play a vital role in the production of knowledge and reporting on the CAF, which is why the QR&O of article 5.2 of the DAOD 5062-1 needs to be reviewed. Currently, the QR&O can muzzle CAF members who participate in research, which hinders academic research (Arbour, p. 300). The QR&O should be reviewed and not perceived as a muzzle to CAF members. Further, the CAF should wave the SSRBR ethics review of external proposals that have already been approved by the Research Ethics Board of academic institutions. Research proposals undergo extensive reviews at universities before being approved, meaning the Research Ethics Board have done their due diligence before approving the research to start. The SSRRB is an unnecessary requirement to force research that has already been approved by an academic institution.
Status: Underway
The External Monitor has noted this is a lengthy process. In addition to a survey directed at academic institutions, the military personnel research team hosted a half-day session in late 2023 with academics and other researchers to discuss how the process could be improved. In consultation with the academic community and scholars, the SSRRB will move towards a more hybrid approach to streamline the review process and facilitate external research, while still operating within the TCPS 2 requirements.
An internal CANFORGEN was released in July 2024 to clarify the interpretation of a DAOD on social science research. It states that CAF members can participate in anonymous or confidential social science research. This works to remove barriers to their engagement. Revisions to DAOD 5061 and 5062 are targeted for the end of 2024.
Additionally, there is now three ways for the Social Science Research Review Board (SSRRB) to review research submission in which another ethics board, like that of the CAF, are involved. These are:
- simultaneous independent reviews by the SSRRB and REB.
- Waiving the ethical component of the SSRRB review where REB approval has already been granted, but maintaining the methodological review.
- Collaborative reviews with the academic/external REB.
These changes have been communicated broadly to research networks and communities.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
The Minister should inform Parliament by the end of the year of the recommendations that she plans to implement and those she does not intend to. She should address why she does not intend to implement recommendations, outlining the reasons that are preventing some recommendations not being implemented, and the status of implementing others.
Status: Implemented
On December 13th, 2022, Minister Anand tabled her report and informed Parliament that she plans to implement and accepted all 48 of Arbour's recommendations. Further, Minister Anand reported that she has directed the CAF/DND to move forward with the recommendations of the report and is committed to ensuring they are implemented. In the announcement, Minister Anand stressed that the changes will take time.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.
The Minister should appoint an external monitor to oversee the implementation of the recommendations in Arbour's report. The monitor should be allowed to create the team of their choosing to assist with this task. All documents should be available to the external monitor and their team. In addition to overseeing the implementation of this report, the team should produce monthly reports for the Minister, outlining the assessment and advice, with reports being made available to the public bi-monthly.
Status: Implemented
Minister Anand appointed Jocelyne Therrien as the external monitor on October 19th, 2022. Therrien has previously audited other federal departments and entities and reviewed harassment within the RCMP. As suggested by Arbour, the external monitor should work with a small team to produce monthly reports for the Minister and publish biannual reports for the public. On May 2, 2023, Jocelyne Therrien released her first bi-annual public report. Her Second and Third Reports were released in November 2023 and May 2024, respectively.
This is a plain language summary. For original wording, read the Independent External Comprehensive Review.

Administrative Action

Complaints

Military Grievance System

Duty to Report and Barriers to Reporting

Victim Support and the Sexual Misconduct Resource Centre (SMRC)

Recruitment

Military Training and Professional Military Education

Military Colleges

Human Resources

Input and Oversight

The Report Card:

Tracking the Implementation of the Arbour Report Recommendations

Latest Report Card:

Read the Recommendations and see their status:

Megan MacKenzie

© Megan MacKenzie | All rights reserved.
Visual Identity and Site Design by Loren AA

The Report Card:

Tracking the Implementation of the Arbour Report Recommendations

Latest Report Card:

Read the Recommendations and see their status:

Megan MacKenzie

© Megan MacKenzie | All rights reserved. Visual Identity and Site Design by Loren AA

© Megan MacKenzie | All rights reserved.
Visual Identity and Site Design by Loren AA