CHAPTER VI
TRANSITIONS

INTRODUCTION

If we are to maintain a modern and effective military, the Canadian Forces will have to be able to recruit and, in particular, retain its fair share of the best people the country has to offer. Operational readiness is, in large part, a direct consequence of well-trained quality personnel and their ability to undertake the tasks assigned to them. Personnel policies can then prove as critical an element of operational readiness as can equipment. The terms and conditions of service applied by the CF must balance the needs of the individual, both Regular and Reserve Forces, with those of the organization, and reflect the best in contemporary human resource planning.

Challenges in human resource development are significant. Gender integration, the recruitment of visible minorities in order that the Forces better reflect society at large, rank stagnation and the effects of Alternative Service Delivery (ASD) on personnel are some of the more obvious issues at hand. As is often the case with large bureaucratic institutions, the CF have tended to lurch toward change rather than embrace it enthusiastically. The military temperament tends toward the status quo. While this can often prove a strength, in the current environment it is anything but. Many of the problems now faced by CF personnel were not imposed from outside. Not everything that has gone awry can be blamed on external factors such as decreased budgets, increased deployments or downsizing. Much of the responsibility lies with senior CF leadership itself. The housing stock did not decay because of neglect on the part of occupants, our wounded would have welcomed more compassionate treatment had it been available and the needs of service families did not come upon us suddenly. Lapses in judgement can prove as significant as cuts in budgets.

However, ours is not an exercise in laying blame. As noted earlier, poor leadership, budget cuts, and problematic behaviour have contributed to the decline in the quality of life of CF personnel. At the same time, all is not as bleak as some would have us believe. While visiting our troops in Bosnia and at the various bases it was obvious that there still exists a bedrock of sound leadership upon which the future of the CF can be built. An important test of leadership is performance in an operational theatre. In Bosnia it was clear that the challenge of leadership had been met. We were left with little doubt that, at all levels, leaders were both well regarded and capable. But, leadership also needs to be effective with regard to the day-to-day activities of administration, personnel support, career management, etc. Good leadership must be consistent throughout the chain of command and effective with respect to all responsibilities assumed. There was a perception, amongst CF personnel, that leaders above the level of Field Commanders were out of touch with their real needs and aspirations.

Military discipline dictates that lawful orders must be followed. Yet, while this principle cannot be a matter for debate, orders based on clear and understandable reasons will prove more effective than those whose rationale troops are merely expected to assume. Deference to authority is not as much a part of our society as it once was, and those coming to the military bring with them the cynicism and suspicion of authority that underlies much of today's civic culture. This is something with which the CF must come to terms.

A mundane example of how not to do things is the manner in which the "new alcohol policy," for troops serving in an operational theatre, was announced. It was presented as an edict from on high with no need of explanation. The response from the troops was, "don't insult us and don't treat us like children. Why must we all be made to suffer for the transgressions of an isolated few?" Indeed, many said that they did not so much mind the policy as the way it was instituted. The current policy is a significant irritant for many. Therefore, we recommend:

74. That the Canadian Forces re-examine the current relevancy of its alcohol policy and consider deleting it entirely.

In discussions of leadership we must also bear in mind that Commanders have fewer options with regard to decision making than they once did. A smaller force with fewer resources means that senior leadership is having to make choices between competing goods and not just between different means for achieving a desired end. The choice between spending resources on base infrastructure rather than on training or equipment, may in fact not be a choice at all. Operational readiness dictates that the latter come first, even though the former may prove a better boost for morale.

Leadership must be based on mutual respect between, and among, officers and Non- Commissioned Members. Leadership, at all levels, must take the concerns and aspirations of their people seriously. Good leadership is leadership that listens and that moves its members ahead, at least in part, on the basis of what it has learned from the rank and file. It is a two-way process.

CAREER MANAGERS

Throughout our hearings consistent concerns were expressed with regard to the system of career management and, in particular, with regard to career managers themselves. Many felt that their personal aspirations and needs were not adequately reflected in the decisions made by career managers. All CF members are assigned a career manager whose responsibility it is to monitor the individual's progress and make decisions with respect to postings. In order to be considered for promotion, individuals are expected to go through their requisite training, meet a minimum qualifying time, and are evaluated according to criteria based on a combination of performance and potential.

To remain competitive for promotion and employment, individuals must often move to different locations in order to obtain the necessary training and experience. Coupled with the increase in operational tempo, this means that even a limited form of stability can be difficult to achieve. For dual service couples, where each is required periodically to relocate, matters can prove especially frustrating. CF personnel recognize that relocation is a fact of military life, but, at the same time, many also believe that career managers do not do enough to try and reduce the frequency of moves or to take personal needs into account.

However, it is not merely the frequency of moves that is the irritant, but also the shortness of official notice given. All too often members are given only a few months, or less, notice before a new posting. This problem was pointed to frequently and, if we are to remedy it, the CF should consider adopting a longer planning cycle. Career managers must be given the tools with which to manage.

A longer planning cycle could help in ensuring that individuals be given between 6 to 12 months notice of their next posting. Such predictability would do much to alleviate both individual and family stress and permit members and their families to plan properly for their next location. Needless to say, this time frame would not apply for operational deployments. Currently, the CF operates on a 12-month planning cycle which seems to mitigate against being able to provide for greater notice. The adoption of a longer planning cycle will necessarily entail a re-examination of certain standard practices like the frequency of promotion boards. These practices can be adjusted. Thus, in order to enable CF personnel to better plan their relocations and to help alleviate individual and family stress, caused by frequent short-notice moves, we recommend:

75. That the Department of National Defence examine the feasibility of adopting a longer planning cycle whereby members could be given greater notice of their next posting. A report should be made to SCONDVA on an annual basis.

A further concern expressed involved the relationship between service members and career managers. Some felt that career managers lacked any true interest in their personal aspirations because the position was simply another rotational posting. As well, several witnesses complained about the fact that when they did speak with career managers they could not do so privately. Finally, there was also a degree of frustration expressed over the fact that career managers were stationed in Ottawa and not on individual bases, making them seem like little more than faceless bureaucrats. It is important for CF personnel to have confidence in the career management system. It is especially important that they have confidence in those administering the system and their personal careers. Even sound advice, coming from an an untrusted source, may not be well regarded.

CF personnel should, when they believe it necessary, be able to have conversations with career managers that are private and confidential. It is also important that there be some continuity in the career managers with whom one is dealing. If managers are changed too frequently it becomes difficult to build a sense of mutual trust.

At the same time, the role of career manager is neither an easy nor simple one. Those newly rotated into the position need time to familiarize themselves with a myriad of CF personnel policies; few of which are self-explanatory. It also takes time to develop confidence and expertise in any new position. Unfortunately, once career managers reach this point there is a good chance that they will be in line for their next posting. Matters are further confounded by the fact that the number of career managers has been significantly cut, with further reductions still to come. This, in itself, has not made it any easier to manage and explain the various aspects of downsizing and change.

If the career management system is to work it will need to be adequately staffed with individuals who have a thorough knowledge of the military and its personnel policies. And, CF members will need to be able to use it with confidence and an appropriate degree of privacy. We therefore recommend:

76. That CF personnel be able to have reasonable access to consult directly and privately with their career managers. That this measure take into account the need for military personnel to have access to service in the official language of their choice.

Given that reduction in career managers is largely related to budgetary restraint, it might be useful for the Department to look at other staffing options. We believe it is imperative that adequate staffing levels in this area be maintained. If this cannot be done by using regular CF personnel, then we should consider the option of partially privatizing the career management function. By this we do not mean giving it over to a private agency. Rather, we suggest that individuals with a thorough knowledge of the military personnel system be hired, on a contract basis, to help buttress the regular contingent of career managers. Such contracts could be of a relatively long-term nature, in order to ensure continuity, and could be offered on either a full or part-time basis. However, the Department must ensure that the contracting option is cost effective and is less expensive than using regular CF personnel only. We find it incongruous that, during a period of such dramatic change and restructuring, the very component of CF administration which can most directly affect the lives of personnel is being so dramatically downsized. An inadequate career management contingent will only further exacerbate frustrations already felt. In order to ensure that career management be an effective element of human resource development we recommend:

77. That the Canadian Forces ensure that the career management component remain adequately staffed, to meet both human resources and operational requirements.

ALTERNATIVE SERVICE DELIVERY

While the main focus of our undertaking was clearly CF personnel, during the course of our hearings we came to realize that Alternative Service Delivery is having a significant effect on civilian employees. We therefore deemed it important to offer comment.

Of all the programs recently initiated by the Department of National Defence, that of Alternative Service Delivery (ASD) has raised the most concerns. This comes as no surprise for the livelihood of a large number of CF personnel as well as DND civilian employees has been and will continue to be affected by ASD. Some of our witnesses were upset over the fact that, although they had proven themselves very efficient in highly technical work, their trade was still contracted out. Others were disappointed because their in-house bids, after much preparation, were not accepted. Individuals felt themselves particularly disadvantaged in the bidding process because they had to prepare their submissions on their own time - after hours and on weekends. While they often received help and encouragement from their Commanders, the fact that they entered the process as complete amateurs did not, in their opinion, make for a level playing field.

The Department instituted the ASD program in July 1995 in response to significant budget cuts and the need to make its operations more efficient while maintaining military capabilities. The 1996 federal budget announced the ASD plan which identified the first activities under consideration for ASD such as base and unit support at Goose Bay and Kingston, food services, second and third-line maintenance (such as the Aerospace Engineering Test Establishment in Cold Lake), and NATO Flying Training. Many of these activities have already been transferred to contractors or are in the advanced stages of the process. In October and November of 1997, the Department's Defence Management Committee (DMC) decided that ASD reviews should be undertaken of the department-wide supply and distribution system and site support services at seven locations. A number of bases were identified for review. As part of these reviews, consultations are held to confirm if contracting in fact offers savings and other benefits to the Department. Thereafter, industry and in-house teams will be given time to submit proposals. The reviews will take about two years.

The Department believes that ASD is a necessary element of restructuring, and that significant savings can be made. For example, it is claimed that the contract awarded to Serco Facilities Management Inc. for the support services at CFB Goose Bay will save approximately $22 million in 1998 and will produce similar savings in following years. It is also claimed that, given reduced costs, foreign militaries will be more inclined to use facilities such as those at CFB Goose Bay and CFB Moose Jaw.

From the perspective of those directly affected, reviews were somewhat more mixed. At first, the Serco contract at Goose Bay left many with significantly reduced wages and concerns about their long-term future. The contract called for 225 of the affected civilian personnel or more than 70% of the new workforce to receive job offers from the contractor while those who did not receive job offers were to be offered various options by the Department. However, because of complaints about the manner in which the contract was implemented - salary cuts, different job assignments, reductions in benefits, etc. - the Minister of National Defence and the Minister of Veterans Affairs announced, on 13 March 1998, a number of measures to meet the concerns of the employees. These included the awarding of a transitional allowance to some of the affected employees, a review by Serco of the salaries it was offering to employees and an extension of the period employees could stay in married quarters. On the other hand, there are also positive examples of ASD. At CFB Trenton, the food services were improved when an in-house bid by employees won the contract in late 1997. When we visited Trenton, there was some misunderstanding of the pricing policy, which, however, was subsequently cleared up. Care must always be taken that ASD solutions are not achieved by undermining the quality of life of serving members.

In the final analysis, the one thing that proved most disconcerting to personnel was the uncertainty they were facing. If the Department of National Defence is to continue with ASD it must see to the human resource needs of its members. Affected personnel need to be informed as early as possible in order that they be able to prepare in-house bids and they must be able to do so from a position that does not unduly disadvantage them. The Department must allow them the necessary time and resources with which to prepare themselves. In cases of job loss or mandated relocation, an inevitable consequence of any major restructuring, compensation or benefit packages and help with transition to new locations or careers must be fair. We therefore recommend:

78. That as soon as ASD is being considered, those affected be informed and consulted.

79. That those wishing to make an in-house bid be provided with adequate time and resources to ensure that their bid is professional and competitive. Personnel should be given a realistic chance to prepare bids.

80. That when job cuts or mandated relocations are an inevitable consequence of the introduction of ASD, those affected be provided with compensation and benefits.

CAREER DEVELOPMENT

If the Canadian Forces are to remain a profession of choice, they will need to make a firm commitment to lifelong learning. Preferred recruits will be more likely to join if they believe that the CF will aid in providing them with the requisite skills necessary for a smooth transition to civilian life. Not all recruits will want to make a lifelong commitment, and even those who do may find their military career coming to an end when they still have many productive working years left. The nature of service and the need to be able to recruit young talent, on a continuing basis, means that many will have relatively short careers with the CF. To develop greater professionalism, adequate support must be extended to an increasing number of personnel for professional and technical qualifications. It is also important that the skills acquired, while in the military, be accredited and transferable to the private sector.

The CF has in place a Second Career Assistance Network (SCAN) and an Educational Upgrading Program. Canadian Forces personnel including Class B and C Reservists, with a minimum of three years service, are offered career and personal transition services. These services are offered through SCAN and delivered by personnel selection officers at each base/wing. The purpose of the program is to assist military personnel in planning, preparing, and achieving their personal and professional transition to the civilian sector. Transition services include: individual counselling (career, educational, personal), seminars and workshops, vocational assessment, aptitude testing, resume assistance and preparation, job search and interview techniques, employment referrals, financial planning, and publications and reference material. While the program seems fairly comprehensive it is only available during a member's last five years of service. Transition planning is not something that should be left to the tail end of one's military career, it must be given consideration earlier on. We therefore recommend:

81. That the Second Career Assistance Network be made available to CF personnel at an earlier date in their careers and that funding be sustained in order to ensure its effectiveness. A report should be made to SCONDVA on an annual basis.

With respect to educational upgrading and second career training, available throughout one's service, CF personnel including Class B and C Reservists are entitled to a 50% reimbursement for tuition fees and books when pursuing academic training provided they successfully complete the courses taken. Academic upgrading and training ranges from secondary school to post-graduate studies. This is an annual entitlement which is based on the academic year in which the course or training commenced. Military personnel are also entitled to 50% reimbursement for training in preparation for second career purposes. Such training may involve qualification and certification courses and examinations required by a member to gain professional or trade recognition for employment in a non-military environment.

These benefits are significant, but again there may be room for improvement. For example, the Educational Upgrading Program includes the University Training Program for Officers (UTPO). The UTPO is a DND-sponsored plan open to commissioned officers, under the rank of lieutenant-colonel, who are in a position to complete their first baccalaureate degree within approximately 16 months. An officer selected for the UTPO is eligible to receive "normal pay and allowances and other financial entitlements, including those for the movement of dependants, furniture and effects as authorized by National Defence Headquarters." Courses under the program may be taken at either the Royal Military College or a recognized Canadian university. Members may also apply to take their courses while on leave without pay.

We were told that in 1997 only 10 undergraduate, or UTPO positions were made available. At the same time there were 50 post-graduate funded positions. In 1998 there were 110 applicants for 10 available UTPO positions, a significant increase over the previous year when there were only 57 applicants. Interest in post-secondary education is on the rise and it is therefore important that we try and increase access. During our visit to the Royal Military College we were particularly impressed with their Distant Education Program and believe it to be something positive upon which to build further. Insofar as higher education is important both for the development of leadership skills and in easing the eventual transition to civilian life, we recommend:

82. That the Canadian Forces give consideration to increasing the number of UTPO positions made available each year and consider expanding the Royal Military College's Distant Education Program. A report should be made to SCONDVA on an annual basis.

We also believe that higher learning should not be limited to the "higher-ups". Non-Commissioned Members can also have significant leadership responsibilities and may want to take university training and remain at their rank level, or take it in the hope of future promotion. University education for NCMS should not necessarily be viewed as an officer development program, as is the case with the University Training Plan for Officers, but rather as part of their lifelong learning experience.

We therefore recommend:

83. That the Canadian Forces facilitate increased access to academic upgrading for Non-Commissioned Members, to meet personal as well as military requirements.

CF personnel receive much in the way of technical and skills training throughout their careers. During our hearings we were told of the frustrations felt by many over the fact that their training, even when taken at civilian locations, was not later recognized by civilian or public sector employers. It is important that equivalencies between military and civilian training be properly recognized. CF members must be given proper recognition for their civilian training and appropriate civilian accreditation for military training. We therefore recommend:

84. That the Department of National Defence increase its efforts to facilitate the provision of appropriate civilian accreditation to military personnel for their military training and appropriate recognition for their civilian training.

The Canadian military is a repository of skills and talents that are relevant to much of the private and public work environments. Some employers recognize this, others do not. In order to see to the long-term well-being of its personnel, it is important that the CF expand the development of relationships with those in the private and public sectors, who could prove to be prospective employers.

Generally, a sound career development program should provide individuals with:

• a high degree of competence in key skills;
• the opportunity to gain recognized and transferable qualifications;
• funding for learning activities;
• access to information, advice and modern learning facilities, irrespective of rank or age;
• the ability to return to the civilian workplace with added value.

EQUAL OPPORTUNITY

Over time the composition of the CF will inevitably change as it continues to recruit more women and members from visible minority groups. In this respect, it will become more reflective of the changing nature of Canadian society as a whole. Such transitions are never easy.

The number of women in the Canadian Forces has increased from a total ceiling of 1,500 in 1971 to approximately 6,800 today; representing more than 10.8% of the Regular Force. Women represent approximately 20% of the Primary Reserve strength. Today women can serve in all occupations of the CF except for submarine duty.

The Forces have also recently engaged in an active recruiting campaign intended to attract more women into the combat arms. The army has requested that 25% of those recruited to combat arms be women, in order to obtain a critical mass for training and employment in various units. Women and men undergo the same integrated training, must meet the same academic standards and are eligible for the same career opportunities.

The fact that women are now "guaranteed" equal access and treatment is itself the consequence of changing societal norms. In this regard the military responded positively to standards set by other agencies. The 1,500 ceiling was removed in 1971 on the basis of recommendations put forward by the Royal Commission on the Status of Women. The departmental review of the Commission's findings also led to the gradual expansion of women's employment opportunities into non-traditional areas such as vehicle drivers and mechanics, aircraft mechanics, air-traffic controllers, military police and fire fighters.

Personnel policies were further reviewed in 1978 and 1985, after the passing of the Canadian Human Rights Act and the constitutional entrenchment of the Canadian Charter of Rights and Freedoms. As a result, women gained the right to serve at sea in replenishment ships and in a diving tender, with the army service battalions, in military police platoons and field ambulance units and in all air squadrons. Finally, in 1989 a Human Rights Tribunal decision directed the Canadian Forces to remove any remaining employment restrictions based on sex; the only exception being submarine duty.

While we applaud the full integration of women into the CF we also realize that the transition has not been an easy one. Publicized stories of sexual harassment and other forms of unacceptable behaviour and abuse of authority confirm this. During our hearings we were certainly made aware of the fact that women have not always been made to feel welcome as full and equal participants.

The CF have a zero tolerance policy with respect to sexual harassment and racism. In order to ensure its effectiveness a complaints procedure has been put in place. Any member who is a victim of any form of harassment, including racial harassment, is encouraged to report it to the chain of command. If the individual is uncomfortable going to the chain of command, alternate mechanisms are available. These include the harassment 1-800 number, the National Investigation Service, or the Ombudsman's Office. As well every member must take a harassment sensitization course (Standard for Harassment and Racism Prevention).

In the final analysis, those coming to the Canadian Forces must feel confident in the knowledge that the safety and integrity of their "person" will be respected. We cannot tolerate an atmosphere wherein women and visible minorities feel themselves to be anything but full and equal participants. We were struck by the seriousness of what we heard and therefore recommend:

85. That the Canadian Forces intensify their efforts in ensuring that all military members are aware of what constitutes a poisoned work environment for women and visible minorities and what constitutes harassment. A report should be made to SCONDVA on an annual basis.

86. That the Canadian Forces continue to emphasize and make known to all members the serious nature and consequences of not respecting harassment and discrimination policies. A report should be made to SCONDVA on an annual basis.

Having mechanisms in place is an important first step. However, unless their efficacy is clearly demonstrated, victims will not turn to them with any degree of confidence.

CLOTHING

Good kit has always been an important element of a soldier's life. Comfortable and well- fitting uniforms and environmental clothing are a necessity. We heard many stories of ill-fitting and uncomfortable kit: boots that were either ill-fitting or not suited to the activities undertaken, lack of certain items and long delays in acquisition.

The Clothe the Soldier Program is addressing many of these concerns for the military, and women's uniforms are being adjusted so that they better meet the needs of female members. However, we should not again fall into a situation where supply shortfalls create undue frustration. The design and acquisition of new clothing takes time and there will be occasions, like the new kit for the infantry, when delays are inevitable. But, these should be rare occasions. We therefore recommend:

87. That the Department of National Defence make every effort to ensure that, in future, there be no supply problems with respect to proper fitting and issuance of clothing and personal kit. Uniforms, environmental clothing, and specialized kit such as boots for tank crews must be suitable for the work and training undertaken and be issued when required. A report should be made to SCONDVA on an annual basis.

THE FUTURE

In order to provide a framework for addressing the various problems and changes faced by the CF, we will need to put in place a comprehensive human resources policy. This policy must:

• always ensure that operational requirements are met;
• incorporate what is best in current practice;
• provide jobs that are rewarding and challenging;
• allow the CF to recruit, retain and motivate quality people by offering them a fair and equitable pay and benefits package which recognizes the demands of military life;
• enable individuals to realize their potential and provide them with equal opportunity irrespective of race or gender;
• assist members to prepare for second careers;
• take individual and family needs and aspirations into account when determining postings and in the development of policies.

The human resource policy that is put in place must be integrated, comprehensive, transparent and readily understandable by all members.