Media Response Lines on the Path to Dignity and Respect and Operation HONOUR

The Path to Dignity and Respect: The CAF Sexual Misconduct Response Strategy

Strategic Considerations

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This strategy is a key deliverable in response to the 2015 External Review Authority (ERA) report (Deschamps), which recommended the CAF establish a culture change strategy. Completing the implementation of the 10 recommendations from the ERA report is an SSE commitment (#18). In addition, the campaign plan and performance measurement framework included in The Path to Dignity and Respect fulfil DND/CAF commitments made in response to the Auditor General’s 2018 report on Operation HONOUR. As such, messaging should highlight that the CAF is listening to expert advice and implementing recommendations.

Narrative

As an organization, we must always strive to create an environment free from sexual misconduct, where all people are treated with dignity and respect. We have made it clear that any form of sexual misconduct within our ranks is unacceptable. It harms our people, jeopardizes our operational effectiveness, and is inconsistent with our values and ethical principles.

The CAF recognizes that a holistic, long-term approach is critical to addressing this complex issue.The Path to Dignity and Respect: The CAF Sexual Misconduct Response Strategy is a comprehensive strategy focused on aligning organizational culture to prevent and address sexual misconduct, and improve support for those who have been affected. It provides an in-depth analysis of CAF culture, and identifies what aspects must be eliminated, changed or strengthened to effectively address sexual misconduct. It also establishes a long-term plan for implementing the approach and a performance measurement framework to ensure continuous evaluation and improvement.

The Path expands Operation HONOUR into a holistic and sustained institutional effort focused on aligning behaviors and attitudes of CAF personnel with the principles and values of the profession of arms in Canada. It refocuses the Operation HONOUR mission on ensuring personnel never minimize, ignore or excuse sexual misconduct, which is key to building a safer work environment and trust among personnel and the chain of command.

The Path builds on the CAF initiatives already underway through Operation HONOUR and coordinates with existing complementary strategies and programs that will influence the culture change we are seeking. The Path is shaped by research and informed by evidence and subject matter experts. The CAF developed it in collaboration with the Sexual Misconduct Response Centre and it reflects recommendations from the Auditor General of Canada and parliamentary committees.

The Path is a significant milestone in the CAF’s efforts to address sexual misconduct and to achieve positive and enduring culture change that supports inclusivity, diversity and respect.

Quick facts

General

Operation HONOUR was launched in 2015 in response to the issue of sexual misconduct in the CAF.
As part of Operation HONOUR, National Defence established the Sexual Misconduct Response Centre (September 2015), independent from the chain of command, to provide worldwide, 24/7 support for military members affected by sexual misconduct.
6 Sexual Offence Response Teams have been established by the Military Police Group to increase investigational capacity and expertise in sexual assault cases.
16 Complaint Management Centres have opened under the Integrated Conflict and Complaint Management Program, which offers a range of options to deal with harassment, complaints, conflict resolution and grievances with a single point of contact.
Members at every level of the organization have received Operation HONOUR training— during recruit training, at units across the CAF, and during leadership and command courses throughout the year. Operation HONOUR training includes key definitions, roles and responsibilities of the chain of command, and information about support resources for members.
Since April 2018, more than 11,000 members have participated in the Respect in the CAF Workshop, which was recognized by the Office of the Auditor General as beneficial in promoting cultural change.
Statistics Canada has conducted two CAF-wide surveys focused on the issue of sexual misconduct (2016, 2018) (overview below) as part of the Operation HONOUR Research Program.
The CAF regularly releases reported incident statistics. The 2019 Sexual Misconduct Incident Tracking Report offers a roll up of incident statistics from 2016 to 2019.
The CAF has released four Progress Reports detailing actions taken under Operation HONOUR to ensure transparency.
In 2019, the mandate of the SMRC was expanded to include monitoring progress and providing expert guidance and recommendations on CAF policies and programs to support affected persons and prevent sexual misconduct.

Prevalence of sexual misconduct in the CAF (from 2018 StatCan Survey)

1.6% of all Regular Force members and 2.2% of Primary Reserve indicated that they were sexually assaulted in the context of the military workplace during a 12-month period in 2017-18 – no change since 2016.
The prevalence of sexual assault among women in the Canadian Armed Forces is higher than that among men (4.3% Regular Force women compared with 1.1% men; 7.0% of Primary Reserve women compared with 1.2% of men.) – no change since 2016.
70% of Regular Force members and 71% of Primary Reserve members saw, heard or experienced sexualized or discriminatory behaviour in the military workplace – decline since 2016.
94% of Regular Force members and 91% of Primary Reserve have very high awareness of Operation HONOUR.
45% of Regular Force and Primary Reserve members feel that Operation HONOUR has been very or extremely effective.

Reporting

Incidents of sexual misconduct can be reported to:

Chain of command;
Integrated Conflict and Complaint Management Service;
Canadian Forces Military Police;
Canadian Forces National Investigation Service; or
Local police.

Incidence of sexual misconduct reported to the chain of command

Note: Sexual misconduct incidents can be reported to the chain of command at any time. As such, incident data is dynamic. The data listed in these MRLs was accessed on 15 May 2019 and reported in the 2019 Sexual Misconduct Incident Tracking Report. The statistics for 2018-19 are included in the following bullets:

The majority of incidents are reported in the fiscal year that they occurred.
Incidents of sexual assault reported to chain of command
- 2016-17: 63; 2017-18: 114; 2018-19: 84
- The number of reported incidents of sexual assault in each fiscal year does not follow a clear trend.
- The majority of complainants can be categorized as womenjunior Non-Commissioned Members and members of the Regular Force.
Incidents of sexual misconduct excluding sexual assault reported to chain of command
- 2016-17: 390; 2017-18: 254; 2018-19: 172
- The number of reported incidents of sexual misconduct excluding sexual assault has decreased over the past three years but we need more data before we can confirm a trend.
- The majority of complainants can be categorized as women, junior Non-Commissioned Members and members of the Regular Force.

Note: Not all incidents are reported to the chain of command for a variety of reasons. For example, when an affected person discloses an incident to the Sexual Misconduct Response Centre (SMRC) and requests that no formal report or investigation be initiated. The chain of command may also not receive a report when an affected person seeks care from either the Canadian Forces Health Services or a civilian health care provider, both of which will respect patient confidentiality.

Incidence of sexual-related incidents reported to the Military Police

CAF members who wish to proceed with a formal criminal complaint have the option of reporting to their local Military Police unit, civilian police services or directly to the Canadian National Investigative Service (CFNIS).

1,364 sexual-related incidents were reported to the Military Police between 1 January 2016 and 9 December 2019, of which 1,299 were determined to be founded. In general, the rate at which sexual-related incidents were reported increased by 11.9% between 2016 and 2018. However, the number of sexual assault incidents reported in 2019 decreased by 13.6% when compared to the previous year.

Note: While decreasing the number of incidents is the goal, an increase in reporting is an important indicator of confidence in the reporting system, which is essential to building trust among personnel on this issue.

Actions taken for Reported Incidents

119 CAF personnel were released for sexual misconduct between April 2016 and the end of March 2020 (2016-17: 16; 2017-18: 30; 2018-19: 37; 2019-20: 36).
The Judge Advocate General (JAG) reports annually to the Minister of National Defence on the administration of military justice in the Canadian Forces. The JAG Annual Reports contain statistics relating to summary trials and courts martial, including information on proceedings arising from allegations of sexual misconduct.

Questions and Answers

Q1. Why are you adopting a new strategy? Has Operation HONOUR failed?

A1. This isn’t a restart. It is positive progression and proof of our continued commitment to addressing this threat.

Through Operation HONOUR, we have accomplished essential work in the area of policy, procedures and, most importantly, support for those affected. This work was essential to laying a foundation but we always knew we would need to broaden our efforts to change the attitudes and behaviours that contribute to or enable sexual misconduct, if we were going to achieve enduring results. This strategy builds on our work to date, while shifting the focus to achieving enduring culture change.

Q2. It’s been almost five years since Operation HONOUR was initiated and incidents are still occurring. How will this new strategy make a difference?

A2. The strategy shifts the focus of Operation HONOUR from an immediate response primarily concentrated on addressing incidents, to a long-term institutional approach aimed at preventing incidents from occurring in the first place.

Key characteristics of the strategy:

Evidence-informed – It is shaped by external and internal research on culture change, sexual misconduct, leadership, and military culture. It also uses adaptations of established models applied to other problems with similar challenges. (Examples: it uses the public health prevention model, socio economic determinants of health model, and the Kotter change model.)
Expert-informed – It has been internally and externally consulted. The CAF collaborated with the SMRC to develop the strategy, and it reflects input received through external and internal study of Operation HONOUR.
Prevention-based – It uses a public health prevention-based approach, which includes measures aimed at preventing problems from happening in the first place and reducing risks or threats to people, their health and their well-being.
Clear vision and mission – Building on research, best practices and experience, we have established a new vision and mission that reflects the focus on cultural alignment and the attitudes and behaviours that we want our personnel to adopt and model.
Performance-driven– The strategy defines what success will look like and sets out the outcomes we are seeking. It includes a performance measurement framework, which the CAF will use to measure progress and ensure a continuous cycle of improvement.
Coordinated –It has been developed to align with other current and developing CAF and DND strategies that are complementary to the efforts to successfully address sexual misconduct, such as the CAF Diversity Strategy, Operation GENERATION, the Canadian Armed Forces Human Resources Strategy (in development), and the Total Health and Wellness Strategy (in development).

Q3. The External Review Authority/Mme Deschamps recommended the CAF develop a culture change strategy back in 2015. Why has it taken so long to implement this recommendation?

A3. When we received the recommendations from the External Review Authority, we knew we needed to take immediate steps to increase awareness and understanding within our ranks, improve policies and procedures, and provide essential support for those affected. Most significantly, we quickly established the Sexual Misconduct Response Centre, independent of the chain of command, to ensure members affected by sexual misconduct could get expert support.

We also needed to develop the knowledge, resources and structures to ensure we could adopt an approach that centred on affected persons—which is essential. For example, we immediately established a significant research program in support of Operation HONOUR and Military Police sexual offence response teams to increase investigational capacity and expertise in sexual misconduct.

At the same time, we understood that we needed to work towards a more holistic approach focused on changing behaviours and attitudes to ensure an enduring effect.
To get it right, we needed time to consult with experts and build a plan based on thorough research and consultation.

The Path to Dignity and Respect is the culmination of all our efforts to date. It is based on extensive research, expert analysis and recommendations, data, feedback from affected persons and institutional experience. With this strategy, Operation HONOUR has evolved into a comprehensive and sustained effort across the institution, focused on creating a work environment where all people are treated with dignity and respect. It is about targeting the causes, rather than symptoms.

Q4. Why Cultural Alignment and not Culture Change? Are you saying the culture doesn’t need to change?

A4. Culture change is never about wholesale replacement of a culture. It is about establishing an institutional vision, and then strengthening the aspects that support it and altering or eliminating those that do not.

The CAF has well-defined values and ethical principles that are the foundation of our culture. There are also many very positive aspects in our culture; however, we must constantly and deliberately shape our culture to ensure it aligns with and supports what we aspire to be. When we identify unacceptable attitudes and behaviours, such as sexual misconduct, we must take concerted efforts to change CAF culture and this plan does just that.

The CAF is building new habits onto existing, familiar patterns that are meaningful for our personnel.

Q5. Why did you change the Operation HONOUR mission? Are you no longer trying to eliminate sexual misconduct in the CAF?

A5. Our vision will always be to eliminate sexual misconduct from our workplace. The new mission is drawn from a key principle of the strategy—zero tolerance.

“Zero tolerance” requires that all allegations be taken seriously and acted upon, and that no incident of sexual misconduct ever be ignored, minimized or excused. We believe this new mission clearly signals the direction we want to go, and what personnel expected to do to ensure that all CAF members are able to work in an environment free from sexual misconduct.

Q6. You say that this strategy is evidence-informed. What is the evidence that underpins it?

A6. We have drawn on a wide range of voices on military culture, institutional culture change and sexual misconduct to create this strategy.

Information and materials that have shaped the strategy include formal research conducted for the CAF and external studies, existing strategies and approaches, feedback and testimony from affected persons, and expert review and recommendations.

Through an analysis of this wide range of information, we were able to identify a number of key issues and themes, and draw some clear conclusions, which we have incorporated in the strategy.

However, the strategy is intended to be an evergreen document and the CAF welcomes all feedback. Comments and suggestions will be considered as part of a planned annual review and update process, which the CAF will use to incorporate feedback, as well as lessons learned, into the strategy on an ongoing basis.

Q7. Was the strategy peer-reviewed or endorsed by any organizations?

A7. The Sexual Misconduct Response Centre has endorsed the strategy. The Centre is an independent organization internal to DND but external to the CAF and leads support for affected persons in the CAF. The SMRC continually reviews and critiques the CAF’s efforts on sexual misconduct, and monitors our progress as well. In addition, the SMRC has established an External Advisory Council to enhance and support the Centre’s expertise and guidance, and we have briefed this group on parts of the strategy and integrated its feedback to the greatest extent possible.

While many organizations may have developed strategies for addressing sexual misconduct or for institutional culture change, to our knowledge, there are no organizations—civilian or military—that have developed a culture change strategy to address sexual misconduct. We have, however, drawn from a wide range of research and expertise to ensure our approach is sound. Performance measurement is also built into the strategy to ensure continual learning and improvement.

Over the course of the next few months, we will also be sharing the strategy with additional experts for discussion and feedback, and we will be welcoming feedback from all groups via our web site.

Q8. The CAF claims to be listening to and learning from those who have been affected by sexual misconduct in the CAF. Were affected persons consulted in the strategy?

A8. We are committed to listening and learning from affected persons. We have heard a wide range of views directly from individuals who have engaged with leadership on this issue, and indirectly through advocates, reviewers/auditors and concerned parties, such as parliamentarians. While each individual’s experience is unique, a number of themes have emerged and we have made a deliberate effort to address them in the strategy.

The CAF collaborated with the SMRC, which is an independent organization internal to DND but external to the CAF and leads support for affected persons in the CAF, to develop this strategy. The SMRC continually reviews and critiques the CAF’s efforts on sexual misconduct, and monitors our progress as well. In addition, the SMRC has established an External Advisory Council to enhance and support the Centre’s expertise and guidance, and we have briefed this group on parts of the strategy and integrated their feedback into the strategy.

Internally, we have sought review and feedback across the organization via our Operation HONOUR Steering Committee and the Non-Commissioned Members working group. These individuals have in-depth knowledge of the CAF, and experience in both implementing Operation HONOUR and supporting those in their commands affected by sexual misconduct.

We are confident that affected persons will see their views reflected in this document.

Q9. The Heyder-Beattie class action lawsuit settlement has a provision that allows class members to contribute to culture change. Why are you putting out a culture change strategy without input from class members?

A9. We have always known that to have an enduring impact Operation HONOUR would have to focus on changing our institutional culture. This is something we have been building towards all along, and establishing a comprehensive, long-term strategy is the next essential step.

To create the strategy we have drawn on research, evidence and recommendations from subject matter experts but it is also informed by the experiences of those who have been affected by sexual misconduct in the CAF. Many affected persons have shared their experiences with the CAF directly. We have also heard from them via other channels, such advocacy groups and external reviews and studies. In addition, we developed the strategy in collaboration with the SMRC, which supports affected persons in the CAF.

Listening to and learning from those affected is essential to preventing and addressing sexual misconduct and we will continue to do so as we move forward.

As part of the settlement, class members will have the opportunity to participate in a Restorative Engagement Program. The program will provide class members who choose to participate with a safe space to share their experiences of sexual misconduct with DND/CAF. This process will enable participants to contribute to culture change by increasing awareness and understanding of their experiences and the context within which harm has occurred. Class members can also provide feedback on the strategy, which will be reviewed and updated annually.

Over the course of the next few months, we will also be sharing the strategy with additional experts for discussion and feedback, and we will be welcoming feedback from all groups via our web site.

Q 10: A recent survey of Canadian Military Colleges suggests that sexual misconduct is still a major problem for students. What will this strategy do for them?

A10.The strategy is applicable across the CAF, and the campaign plan includes a wide range of activities that will have a positive effect on members at all levels, including students at military colleges. For example, the CAF is developing a training and education framework for all training establishments. The framework ensures that as military college graduates continue to build on the foundational training they have received on sexual misconduct and related issues when they undertake trade and other professional military education throughout their career. The campaign plan also indicates that the CAF is implementing the Sentinel Program in all training establishments. This program, which was established by the Royal Canadian Chaplain Services, is a peer support network made up of trained and supervised volunteer members of all ranks.

There are some activities in the campaign plan that target specific groups in the CAF, such as the military colleges. For example, the RMC Prevention Pilot program is an identified activity. This program is intended to provide information and interventions that specifically address the unique needs and requirements of the combined university (emerging adult) and early military (career) population. The pilot project was initiated in 2019 and work is underway to further develop this initiative.

Spokespersons

Primary: Lieutenant General Mike Rouleau, Vice Chief of Defence Staff
Secondary: Brigadier-General Andrew Atherton, DG of Professional Military Conduct—Operation HONOUR
PA Rep: Heather Ormerod

Approvals

MNDO (27 October)
DMO
CDSO
ADM(PA), Laurie-Anne Kempton
A/DG PASP, Véronique Duhamel
Commodore Rebecca Patterson, DG of Professional Military Conduct—Operation HONOUR (DPMC-OpH); Revisions approved by Col Richard Raymond, A/DG DPMC-OpH

Key Messages on Operation HONOUR

Strategic Narrative

The CAF is committed to providing a workplace free from sexual assault, harassment and discrimination. Anything less is unacceptable.

We have made it clear that any form of sexual misconduct within our ranks is unacceptable. It harms our people, jeopardizes our operational effectiveness, and is inconsistent with our values and ethical principles.

Through Operation HONOUR, the CAF is addressing the threat of sexual misconduct within its ranks and aligning behaviors and attitudes with the CAF’s military ethos, which is founded on the ethical principle of dignity and respect for all. Since 2015, the CAF has made steady progress, implementing the foundational programs, policies and practices needed for addressing sexual misconduct and providing support for those affected by it.

To ensure a sustained and effective effort, the CAF is implementing a comprehensive culture change strategy designed to prevent and address sexual misconduct and improve support for those who have been affected. Efforts will continue until all CAF members can perform their duties in an environment of teamwork, mutual trust, respect and dignity.

General

Any form of sexual misconduct is unacceptable. It is inconsistent with the values and ethical principles of the CAF, harms its people and jeopardizes its operational effectiveness.
The Canadian Armed Forces is committed to providing a workplace free from sexual assault, harassment and discrimination.
The CAF initiated Operation HONOUR in 2015 to address the corrosive threat of sexual misconduct within its ranks, and to realign behaviours and attitudes with the military ethos, which is based on the principle of dignity and respect for all.
Through Operation HONOUR, the Canadian Armed Forces has taken positive steps to address all forms of sexual misconduct within its ranks. We have:
- enhanced support for affected persons—establishing the independent Sexual Misconduct Response Centre, which offers confidential, 24/7 support to CAF members.
- increased awareness and understanding of sexual misconduct throughout the organization;
- developed and delivered training at all levels of the organization;
- clarified policies, procedures and definitions;
- implemented a systemic tracking system for reported incidents;
- established 16 Complaint Management Centres under the Integrated Conflict and Complaint Management Program to provide support for members reporting, or dealing with conflict resulting from, sexual harassment;
- established six Military Police Sexual Offence Response Teams to increase investigational capacity and expertise in sexual assault cases; and
- improved victim support for military justice proceedings, including the introduction of the Declaration of Military Victim’s rights.
The Operation HONOUR mission is to ensure that incidents of sexual misconduct are never ignored, minimized or excused. This is how we will build trust in each other and our institution, and how we will ensure a safe and welcoming work environment for all.
The CAF recognizes that a holistic, long-term approach is critical to addressing sexual misconduct and achieving enduring results.
Operation HONOUR is driven by a comprehensive culture change strategy, called The Path to Dignity and Respect. The Path is designed to prevent and address sexual misconduct and improve support for those who have been affected. This strategy focuses on aligning members’ behaviours and attitudes with the ethical principles and core values of the profession of arms in Canada.
Institutional culture change of this nature is complex and it takes time. We are continually improving as we go, using research, expert guidance and data and analysis to ensure that we’re progressing and getting the desired outcomes.
The CAF has established a learning cycle that draws on research, feedback, expert advice and institutional experience. Our approach demonstrates our commitment to continuous improvement and implementing recommendations and lessons learned.
Through Operation HONOUR we will continue to push forward towards our desired steady state: A CAF where all members proudly deliver operational excellence in an environment where everyone has the full support of an institution that fosters trust, respect, honour and dignity.

Themes

Sexual misconduct

The CAF defines sexual misconduct as conduct of a sexual nature that causes or could cause harm to others, and that the person knew or ought reasonably to have known could cause harm.
Sexual misconduct includes a wide range of conduct of a sexual nature—ranging from jokes of a sexual nature to sexual assault. The spectrum of sexual misconduct is clearly defined in the CAF policy on sexual misconduct (DAOD 9005-1, Sexual Misconduct Response).
All forms of sexual misconduct are unacceptable.
Sexual misconduct undermines trust, cohesion, confidence and morale, and thus threatens CAF operational readiness and effectiveness. Sexual misconduct is contrary to the values and ethical principles set out in the DND and CF Code of Values and Ethics.

Culture change

The CAF has well-defined values and ethical principles that are the foundation of its culture.
Like any professional organization, we must constantly and deliberately shape our culture to ensure it aligns with and supports what we aspire to be.
When we identify undesirable attitudes and behaviours, such as sexual misconduct, we must undertake efforts to eliminate, change, or strengthen aspects of CAF culture to respond effectively.
Institutional culture change is a complex undertaking that requires a persistent and methodical approach.
To guide its efforts, the CAF is implementing a culture change strategy, titled The Path to Dignity and Respect, which is designed to prevent and address sexual misconduct in the CAF.
Our efforts are having positive effects. According to the 2018 Statistics Canada Survey of Sexual Misconduct in the CAF, our personnel are witnessing or experiencing less sexualized and discriminatory behaviours, such as sexual jokes and comments, in the workplace; behaviours, which, if left unchecked, can lead to more offensive behaviours. The survey also indicates that personnel’s confidence in our efforts is growing, as is their trust in the chain of command to take the issue seriously.
This is how the process of culture change begins—with belief in the change and trust in those leading it. We know that we must continue to work hard to earn and increase this trust.

Affected person-focused approach

The CAF continues to listen and learn from persons affected by sexual misconduct.
The CAF’s efforts are informed, guided and monitored by subject matter experts, primarily in the Sexual Misconduct Response Centre--which operates as part of the Department of National Defence but is independent from the CAF chain of command.
The Centre is the lead for providing victim support services. It is also mandated to provide expert guidance and recommendations to the CAF to shape and evaluate CAF policies and programs to support affected persons and the broader goal of preventing sexual misconduct.

Response to incidents / zero tolerance approach

The CAF has adopted a “zero tolerance” approach, which means that all allegations are taken seriously and acted upon, and that leadership makes it possible and safe for those affected to report incidents.
Consequently, the Operation HONOUR mission is to ensure that incidents of sexual misconduct are never ignored, minimized or excused.
The CAF has developed orders, policies and direction to ensure personnel understand what constitutes sexual misconduct and how to respond to it appropriately.
The CAF has developed tools and resources that provide leaders with guidance on applying policies consistently, ensuring proportionality and procedural fairness, and supporting affected persons.
The goal is to promote shared understanding of sexual misconduct, establish a framework for holding people accountable and ensure that those affected get the support they need.
The CAF uses a range of processes—legal, disciplinary and administrative—to address incidents of sexual misconduct, while respecting procedural fairness and the rights of all those involved.

Support for persons affected by sexual misconduct

We recognize the lasting harm that sexual misconduct can cause, and ensuring the well-being of those affected is our primary concern.
A wide range of support and care is available for affected persons, as well as those who support them—including options which can be accessed without triggering the formal report to the chain of command.
The Sexual Misconduct Response Centre, which operates independently from the chain of command, is a key resource for anyone affected by sexual misconduct. Counselors are available 24/7 to provide confidential supportive counselling, provide assistance and information on available options and referrals to appropriate resources.
The Centre also offers services to help members who have filed a report navigate systems and processes by providing support, information and referrals, case coordination, advocacy, accompaniment, assistance with workplace arrangements, and other practical assistance.
Affected persons who choose to file an official report with the chain of command will be well supported and kept informed throughout the process.
Leaders have been clearly directed to treat affected persons fairly, compassionately, and to respect their preferences to the greatest extent possible.
Leadership remains responsible for the well-being of persons affected by sexual misconduct. Leaders are expected to respond to disclosures with empathy and have been directed to prioritize the well-being of affected persons throughout any process that follows.

Reporting process

All CAF members have a duty to report all incidents of sexual misconduct to the proper authorities, as per the policy on sexual misconduct (DAOD 9005-1, Sexual Misconduct Response).
Incidents should be reported to the chain of command; however, depending on the nature of the incident, they may be reported to the military police, CFNIS, civilian police, or the Integrated Complaint and Conflict Management service.
All reports are taken seriously and investigated to determine the facts. If warranted, appropriate charges will be laid.
We understand that reporting, and the processes that can flow from it, can be the source of significant stress for affected persons. This is why we also promote options that allow affected persons to disclose incidents without triggering a formal report—notably through the Sexual Misconduct Response Centre.
SMRC counsellors can provide callers with advice and information, which can include information about the reporting process; however, all information disclosed by the caller is held in confidence. If a caller indicates to the SMRC that they want to proceed with a formal complaint, a counsellor can facilitate reporting through an integrated Military Police Liaison Officer.
Through our experience dealing with sexual misconduct, and by working with experts in the field, we have gained a better understanding of how to strike a balance between ensuring the safety of the organization and supporting affected persons.
We have developed a policy for sexual misconduct response that identifies requirements, responsibilities and expectations related to sexual misconduct.
The policy directly addresses issues raised with respect to reporting by clarifying reporting obligations, while ensuring that the views of affected persons are considered and respected to the greatest extent possible.
The policy also makes it clear that there are a number of options for individuals affected by sexual misconduct to seek care and support without submitting a formal report to the chain of command.
CAF Members who wish to obtain more information about the process of reporting can call the Sexual Misconduct Response Centre for a confidential discussion. Counsellors can provide advice and information and facilitate reporting through an integrated Military Police Liaison Officer.
Our first concern is always the health and safety of our members, and we never want the stress of reporting to prevent someone from getting the care and support that they need.

Military Police investigations

CAF members who wish to proceed with a formal criminal complaint have the option of reporting to their local Military Police unit, civilian police services or directly to the Canadian National Investigative Service (CFNIS).
The Military Police has established six specially trained sexual offence response teams to improve its capability to support victims while investigating incidents.
CAF Members who wish to obtain more information about the process of reporting to the police can call the Sexual Misconduct Response Centre, which can arrange for them to speak with a Military Police Liaison Officer anonymously.
The Canadian Forces Provost Marshal has created the Sexual Assault Review Program, which established an open and transparent case review of unfounded sexual assault files investigated by the Military Police.

Military justice

Criminal charges related to sexual misconduct can be dealt with by either the military justice system or the civilian justice system.
In support of Operation HONOUR, the Director of Military Prosecutions has implemented policy changes to improve interactions between military prosecutors and victims; increased victim engagement, comfort and safety of complainants throughout the court martial process; and augmented prosecutor training with respect to sexual misconduct cases.
The Director of Military Prosecutions established the Sexual Misconduct Action Response Team (SMART), which has specialized expertise and best practices to deal expeditiously and efficiently with the most complex cases of sexual misconduct within the military justice system.
Bill C-77, which received Royal Assent June 21, 2019, created clear statutory rights for victims of service offences within the military justice system. This Bill will give the victims of service offences the same rights as those in the Canadian Victims Bill of Rights.
In the military justice system, military prosecutors have a number of options available to them that do not exist in the civilian criminal justice system. For example, military prosecutors may agree to proceed with a number of possible service offences under the Code of Service Discipline, which are not available to their civilian counterparts in those cases where it would be appropriate to do so.
These options provide the military justice system with additional flexibility to ensure that individuals accused of sexual misconduct offences, including sexual assault, are dealt with fairly through the military justice system.
Should the matter result in a trial by court martial, a number of independent military justice actors are involved in order to ensure that the matter is dealt with openly, fairly and in accordance with the rule of law.

Disciplinary and administrative actions

Following an investigation, CAF personnel whose actions contravene the conduct policies and expectations of the CAF, including sexual misconduct, can be subject to administrative or disciplinary actions, or both, depending on the incident.
Disciplinary action is initiated only if there are sufficient grounds to justify the laying of a charge under the Code of Service Discipline against a CAF member.
Administrative actions are initiated under regulations, orders, instructions or policies. For incidents involving sexual misconduct administrative actions can include remedial measures or release from the CAF.
Administrative action can be taken at any time, independent of the disciplinary process, and can be taken even if a disciplinary process result does not conclude with a finding of guilty.
The CAF has made it clear that it will issue a notice of intent to release from the forces to anyone charged with, and ultimately found guilty in either jurisdiction (military or civilian) of criminal charges related to sexual misconduct. However, we must ensure procedural fairness and respect the rights of all individuals involved—this is consistent with Canadian values.

Incident data tracking and trends

The CAF systematically tracks incidents of sexual misconduct reported to the chain of command across the organizations in a central database system.
Incident data tracking informs our understanding of the scope of the issue across the organization and helps us identify areas that require focused attention.
Incident data tracking also helps us ensure that all reported incidents are addressed appropriately.
Sexual misconduct incidents can be reported to the chain of command at any time but not all incidents are reported to the chain of command for a variety of reasons. For example, when an affected person discloses an incident to the Sexual Misconduct Response Centre (SMRC) and requests that no formal report or investigation be initiated.
While decreasing the number of incidents is our goal, it should be noted that increased reporting can be an indicator of increased confidence in the reporting system, which is essential to building trust among personnel on this issue.
Incident data alone does not provide a complete picture of sexual misconduct in the CAF or the effects of our efforts to address it. We collect and analyze a range of data that relates to our strategic objectives and desired outcomes. This is how we measure and evaluate progress on this complex issue.

Training and education

The principles of Operation HONOUR are embedded in education and training programs across the CAF and throughout the career paths of all CAF members.
Personnel ranging from recruits on basic training to senior members on career courses across the country are regularly reminded that exemplary conduct is part of their obligations as CAF members.
The CAF offers members a one-day, expert-led workshop, titled “Respect in the CAF”. This course is designed to foster a sustained change in attitudes and behaviours and focusses on building a respectful climate and culture within the CAF. Bystander intervention training has been built into the workshop.
The CAF also offers a “Respect in the CAF” mobile application, which offers information and resources for victims of sexual misconduct and those supporting them.

CAF member responsibilities

Leader commitment at all levels is one of the six guiding principles for the CAF’s approach to preventing and addressing sexual misconduct.
Leaders, whether formal or informal must embody and actively foster ethical behaviours and never actively or passively condone any form of sexual misconduct.
Leaders also have the primary responsibility for, and means of, ensuring the compliance of their CAF members with the CAF policy on sexual misconduct (DAOD 9005-1, Sexual Misconduct Response).
All CAF members have a duty to prevent and address sexual misconduct. Their responsibilities are outlined clearly in DAOD 9005-1, as follows:
- exercising leadership in their response to sexual misconduct incidents;
- being sensitive to needs of victims when receiving reports of sexual misconduct incidents;
- providing continued support to victims;
- responding to and reporting sexual misconduct incidents;
- responding to and reporting acts of reprisal;
- maintaining confidentiality of information;
- reinforcing and modeling respectful and appropriate professional behaviours;
- enforcing standards of conduct;
- promoting a culture in which bystander intervention is widely accepted, expected and supported;
- attending training, education and professional development activities in support of Operation HONOUR;
- being familiar with the spectrum of sexual misconduct;
- becoming educated on the meaning of consent; and
- ensuring professional relationships are based on trust and respect, aligned with CAF ethics and values.

Operation HONOUR & CMCs

Operation HONOUR applies to all levels of the organization, including our military colleges.
Operation HONOUR is introduced as part of the recruiting process and time and resources are dedicated to ensuring recruits receive sexual misconduct-related training before they even enter military college. Each year students at the college build on this foundation. They receive training and instruction designed to help them learn to truly understand what it takes to be a member of the profession arms.
Our military colleges are the gateway to the profession or arms. Our students have agreed to respect the principles of the profession of arms and, as part of their studies, they must demonstrate their understanding of what this means. We design our instruction specifically to ensure they are continually building and applying their understanding of the aspects of the profession of arms that apply to sexual misconduct.
Sexual misconduct is a complex social issue. It is important to speak to the issue directly but we also know that we must take a holistic approach. This is why we embed issues like gender respect, psychological safety, access to care, mutual trust and ethical behaviour into our curriculum. This is how we are building CAF leaders that will contribute to and uphold a culture of dignity and respect for all.
We continue to improve and refine our approach to preventing and addressing sexual misconduct within our ranks, using research, expert advice and institutional experience. Research studies like the Statistics Canada 2019 Survey of Canadian Military College Students’ Experiences of Unwanted Sexualized and Discriminatory Behaviours and Sexual Assault, are essential to our efforts to continuously learn, measure, adjust and improve.

Governance and monitoring

As part of our culture change strategy, we have established a rigorous and well-researched performance measurement framework with a range of indicators and outcomes to help us measure to evaluate progress.
The Statistics Canada cyclical surveys are central to monitoring our progress. No other national institution has asked for this level of scrutiny and analysis of what they are doing and how they are delivering with respect to workplace sexual misconduct.
The CAF’s efforts under Operation HONOUR are informed, guided and monitored by subject matter experts in the Sexual Misconduct Response Centre, which was established within the Department of the Defence but is external to and independent from the CAF chain of command.
The Centre provides guidance and recommendations to the CAF to shape the development and implementation of policies and programs. It also provides independent, external analysis of our efficacy through research and data analysis and provides recommendations for improvement.
The Sexual Misconduct Response Centre established an External Advisory Council to enhance and support the Centre’s expertise and guidance.
To ensure that CAF policy and program development is properly informed across the institution, the CAF established the Op HONOUR Steering Committee. The committee comprises representatives selected and delegated at the L1 Deputy Level to represent their L1. The Operation HONOUR Steering Committee is also informed by the Non-Commissioned Members (NCM) Working Group, which provides a voice for the largest component of the CAF.
The CAF established these leadership-led committees to ensure that the recommendations of the SMRC are integrated into policies, programs and training in a way that is comprehensive and feasible for the chain of command to implement

External studies and recommendations

2015 External Review Authority (ERA) Recommendations

The ten recommendations put forward in Mme Deschamps’ ERA Report established the foundation for Operation HONOUR.
The CAF has been working diligently to successfully implement these recommendations across the institution. This commitment is embedded in Canadian Defence Policy as SSE initiative 18.
With the release of a culture change strategy in October 2020 and a unified policy in November 2020, the CAF took a significant step towards fully implementing all the recommendations. Implementation of all 10 of the ERA recommendations is being verified by ADM(RS) and Defence Audit Committee.
Nevertheless, we are committed to continuing our work on this issue. The CAF recognizes that fostering a culture of dignity and respect is an enduring mission.

Auditor General of Canada’s Report on inappropriate sexual behaviours in the CAF

DND has completed six of the seven recommendations from the Auditor General.
The remaining recommendation to be addressed is the implementation of a national victim support plan and case management system. This work is being led by the SMRC and requires significant consultation to ensure that a wide variety of perspectives and expert advice is considered. The Department has committed to publishing a report on these victim support consultations with formal recommendations by November 2021.
With respect to the Duty to Report sexual misconduct. We have developed a unified policy (DAOD 9005-1, Sexual Misconduct Response) directly addresses issues raised with respect to reporting by clarifying reporting obligations, while ensuring that the views of affected persons are considered and respected to the greatest extent possible.

Standing Senate Committee on National Security and Defence

We welcomed the committee’s report on sexual harassment and violence in the armed forces.
We value the Committee’s recommendations and we are considering them carefully.
Work is completed or well underway on some of the recommendations, for example, we have clarified the definition of sexual misconduct and modified the Personal Information Bank so that the CAF can keep victims informed of the outcomes of administrative actions. The Sexual Misconduct Response Centre’s mandate has also been expanded.

Tough Questions

Many people are skeptical about the CAF’s willingness and ability to address sexual misconduct. What do say to those who doubt your approach?

Our actions over the past six years clearly demonstrate our resolve on this issue.
Through Operation HONOUR, we have engaged members across the institution and significantly increased awareness and understanding of this issue.
We have also accomplished important work in the area of policy, procedures and, most importantly, support for those affected.
This work was essential to laying a foundation but we always knew we would need to broaden our efforts to change harmful attitudes and behaviours if we were going to achieve enduring results.
We are implementing a culture change strategy to prevent and address sexual misconduct. The strategy shifts the focus of Operation HONOUR from an immediate response primarily concentrated on addressing incidents, to a long-term institutional approach aimed at preventing incidents from occurring in the first place.
Sexual misconduct is a complex issue and there are no quick or simple solutions.
We are learning and improving our approach as we go. For example, we recently released a new unified policy for sexual misconduct response. It provides a single source for definitions, requirements and responsibilities related to sexual misconduct--all in plain language. It reflects expert advice and knowledge the CAF has gained since releasing interim policy on sexual misconduct to clarify a number of key issues.
We are being open and transparent about our efforts to address sexual misconduct to demonstrate the steps we are taking to achieve results.

If awareness levels are so high, why are sexual misconduct incidents still occurring?

Sexual misconduct is a highly complex and persistent social problem.
While we have taken positive steps to address the perpetration of incidents of sexual misconduct—directly and indirectly—through policies, procedures and programs, we always knew we would need to develop a more comprehensive approach to change the attitudes and beliefs that we contributing to this unacceptable behaviour.
This is why we are implementing a culture change strategy to prevent and address sexual misconduct.
The strategy, which is called The Path to Dignity and Respect, acknowledges the role that the existing culture plays in the issue of sexual misconduct in the CAF and identifies what aspects of the CAF culture must be eliminated, changed or strengthened to confront it effectively.
Implementation of The Path will ensure sexual misconduct is never minimized, ignored or excused, and it will set the conditions for cultivating an inclusive and respectful work environment for all our members.

Surveys have shown that there was no decrease in sexual assault in the CAF from 2016 to 2018. Why is this?

Sexual assault is a highly complex and persistent social problem, and there are no quick solutions.
While we have taken positive steps to address the perpetration of incidents of sexual misconduct—directly and indirectly—through policies, procedures and programs, we have always been working towards a more comprehensive, long-term approach to change the attitudes and beliefs that contribute to this unacceptable behaviour.
In October 2020, we announced that moving forward, Operation HONOUR would be driven by a culture change strategy called The Path to Dignity and Respect.
The strategy is designed to prevent and address sexual misconduct and specifically identifies what aspects of the CAF culture must be eliminated, changed or strengthened to confront it effectively.
Implementation of The Path will ensure sexual misconduct is never minimized, ignored or excused, and it will set the conditions for cultivating an inclusive and respectful work environment for all our members.
Since 2018, we have also expanded the role of the Sexual Misconduct Response Centre. The Centre provides the CAF with expert analysis and advice on the development of policy, training, strategy, and evaluation of programs related to sexual misconduct. This change in approach has strengthened Operation HONOUR and we believe it will yield positive results.

How can you say you are making progress on eliminating sexual misconduct when your data on reported incidents clearly shows no significant decline in the number of incidents?

The CAF systematically tracks incidents of sexual misconduct reported to the chain of command to inform its understanding of the scope of the issue across the organization, to ensure all reported issues are addressed, and to identify areas that require focused attention.
That said, we know that incident data does not provide a clear picture of the situation
Sexual misconduct reporting is a particularly challenging issue in any organization. An abundance of research shows that incidents of sexual misconduct are underreported across society for a range of reasons and that processes resulting from reporting can be the source of significant stress for affected persons.
At the same time, increases in reporting do not necessarily mean incidents have increased. They can also signal increased trust in the institution to address the issue appropriately.
As such, collecting and monitoring incident data is important but on its own is not an indicator of progress. This is why we have established a rigorous and well-researched performance measurement framework with a range of indicators and outcomes to help us measure to evaluate progress.

Are you adequately supporting persons affected by sexual misconduct?

A wide range of support is available for affected persons and those who support them, and affected persons can seek care and support without triggering the formal reporting process.
The SMRC, which operates independently from the chain of command, is a key resource for anyone affected by sexual misconduct. Counselors are available 24/7 to provide confidential supportive counselling, provide assistance and information on available options and referrals to appropriate resources. Their services are available to affected persons and those who are supporting them.
Affected persons who choose to file an official report with the chain of command will not be subject to any form of retaliation and they will be well supported throughout the process by both CAF leadership and the SMRC, if they choose to make use of this service.
The Centre also offers services to help members who have filed a report navigate systems and processes by providing support, information and referrals, case coordination, advocacy, accompaniment, assistance with workplace arrangements, and other practical assistance.
The well-being of our members is always our primary concern. The CAF has developed a new unified policy on sexual misconduct to clarify definitions, requirements, responsibilities and expectations related to sexual misconduct.
The policy highlights support resources available for CAF members, and provides direction to the chain of command on how to support affected members appropriately throughout any process that may follow an incident.
The new policy will help promote shared understanding of this complex issue sexual misconduct, establish a framework for holding people accountable and ensure that those affected get the support they need.

Experts have said that CAF has a sexualized culture that is hostile to women and conducive to sexual harassment and assault. What have you done to change the CAF culture?

Culture change is about changing the shared beliefs and attitudes of an organization.
The first steps in achieving this kind of change is to acknowledge the problem exists and to raise awareness.
Through Operation HONOUR, we have raised awareness and understanding across the organization and accomplished essential work in the area of policy, procedures and, most importantly, support for those affected.
This work was essential but we always knew we would need to broaden our efforts to change harmful attitudes and beliefs if we were going to achieve enduring results.
Last fall, we released The Path to Dignity and Respect: The CAF Sexual Misconduct Response Strategy. The strategy marked the second phase of Operation HONOUR, in which we moved beyond our immediate response to a holistic, fully coordinated and sustained institutional approach.
The Path is a comprehensive, long-term strategy that acknowledges the role that CAF culture plays in the issue of sexual misconduct and identifies what aspects of the CAF culture must be changed, eliminated or strengthened to confront it effectively.
The Path is a unique approach, developed specifically for the CAF but based on extensive research, expert advice and experience in addressing sexual misconduct.
Achieving long-term, sustainable change will take time. We are committed to measuring and evaluating progress over the long term and remaining transparent about our progress—with both members of the CAF and the Canadian public.
Guided by The Path, we will push forward towards our desired steady state: A CAF where all members proudly deliver operational excellence in an environment where everyone has the full support of an institution that fosters mutual trust, respect, honour and dignity.

What happens when a high-ranking member is involved in and incident? Are there exemptions to the Duty to Report for top officials?

All CAF members have a duty to report to the proper authority any infringement of the pertinent statutes, regulations, rules, orders and instructions governing the conduct of any person subject to the Code of Service Discipline—this includes sexual misconduct.
Proper authorities who can receive reports of sexual misconduct are clearly identified in the CAF policy on sexual misconduct (DAOD 9005-1, Sexual Misconduct Response).
While members are generally expected to raise issues of concern with their immediate superior, we recognize that it can be difficult to do so if the command climate in their unit is not supportive or those involved are part of the immediate command team.
If this is the case, members are encouraged to report the incident to any superior member of the chain of command with whom they feel comfortable, as all leaders are obligated to deal with the matter appropriately or refer it to a leaders who can.

The CAF claims to be tough on those who perpetrate sexual misconduct but victims say that perpetrators are not being convicted or thrown out of the CAF. Are victims of sexual misconduct in the CAF getting justice?

All allegations of sexual misconduct are addressed by the proper authorities and investigated to determine the facts. If warranted, appropriate charges are laid.
Criminal charges related to sexual misconduct can be dealt with by either the military justice system or the civilian justice system.
In the military justice system, military prosecutors have a number of options available to them, which do not exist in the civilian criminal justice system. For example, military prosecutors may agree to proceed with a number of possible service offences under the Code of Service Discipline which are not available to their civilian counterparts in those cases where it would be appropriate to do so.
These options provide the military justice system with additional flexibility to ensure that individuals accused of sexual misconduct offences, including sexual assault, are dealt with fairly through the military justice system.
Should the matter result in a trial by court martial, a number of independent military justice actors are involved in order to ensure that the matter is dealt with openly, fairly and in accordance with the rule of law.
All courts martial are presided over by a military judge who is appointed by the Governor in Council and enjoys the same hallmarks of judicial independence as do civilian judges.
Independent military prosecutors carefully consider the circumstances of all cases, reviewing various options that exist in an effort to ensure that justice is carried out, which sometimes involves a guilty plea to a lesser charge.

Has Op Honour ever been subject to an audit or evaluation? If so, what were the results? If not, will it be?

In 2018, the Office of the Auditor General (OAG) of Canada conducted a review of Operation HONOUR to identify areas for improvement to help ensure the CAF was on track to achieving its objectives.
At that time, the OAG confirmed that the CAF had made some positive progress but recommended that the Forces make victim support a top priority, provide better education and training on the causes and effects of sexual misconduct, and incorporate more independent external advice and review to ensure it achieves the objectives of Operation HONOUR.
These findings were consistent with an internal review conducted by the CAF during approximately the same timeframe.
Since the AG’s audit, CAF has worked to address deficiencies by implementing its responses to the seven recommendations.
Currently, DND has completed six of the seven OAG recommendations. Completion has been verified by the Defence Audit Committee.
The issue of sexual misconduct in the CAF and the CAF’s response have also been studied by multiple parliamentary committees, many of which have provided recommendations.
- Standing Committee on Public Accounts (PACP), Standing Committee on National Defence Committee (NDDN), Standing Committee on the Status of Women (FEWO), and Standing Committee on Security and Defence (SECD).
In November 2019, the Federal Court approved a settlement agreement to the class action lawsuits (Heyder and Beattie Class Actions) against the Government of Canada alleging sexual harassment, sexual assault or discrimination based on sex, gender, gender identity or sexual orientation in connection with their military service and/or employment with the Department of National Defence and/or Staff of the Non-Public Funds, Canadian Forces. As part of the settlement, the Government of Canada agreed to conduct, five years from the settlement approval date, a comprehensive External Review to assess the progress of Operation Honour and the Sexual Misconduct Response Centre.
It should be noted that Operation HONOUR was initiated based on 10 recommendations from the 2015 External Review into Sexual Misconduct and Sexual Harassment in the CAF conducted by former Supreme Court Justice Marie Deschamps. For many, this report effectively set the bar by which to measure Operation HONOUR.
With the release of a culture change strategy in October 2020 and a unified policy in November 2020, the CAF took a significant step towards fully implementing all the recommendations. Implementation of all 10 recommendations is being verified by ADM(RS) and Defence Audit Committee.

Drafted by: Heather Ormerod, DPMC (based on previously approved materials)
Consultation with: MP PA; PLS PA; SMRC
Approved by: BGen Andrew Atherton, DG PMC
Revised by: Heather Ormerod
Date: 17 February 2021 (last review and update)

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Date modified:: 2021-07-07